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The insights of T. H. Marshall and Pierre Bourdieu are drawn upon, integrated and extended to show how social spending policies have been key sites for historical struggles over the boundaries and rights of American citizenship. In the 19th century, paupers forfeited their civil and political rights in exchange for relief. Rather than break definitively with this legacy, major policy innovations in the United States that expanded state involvement in social provision generated struggles over whether to model the new policies on or distinguish them from traditional poor relief. At stake in these struggles were the citizenship status and rights of the policies’ clients. Both the emergence of such citizenship struggles and their outcomes are explained. These struggles emerged when policy innovations created new groups of clients, the new policy treated clients in contradictory ways and policy elites formed ties to social movements with stakes in the status and rights of the policy's clients. The outcomes of the struggles have been shaped by the institutional structure of the policy and the manner and extent to which the policy became entangled in racial politics. Historical evidence for these claims is provided by a case study of the Works Progress Administration, an important but understudied component of the New Deal welfare state.