HOSTILITY TO THEATER has been a virulent feature of American life since before the country was founded. In 1774, the First Continental Congress passed the Articles of Association, which aimed to restrict trade with Britain. But the Articles also discouraged “every species of extravagance and dissipation,” which included stage plays among “other expensive diversions and entertainments” like horse racing and cockfighting. The consequences were real: playhouses sat empty, and acting companies toured abroad. This was an early attempt, though hardly the last, to ban theater in the soon-to-be United States—the result of a centuries-old prejudice that has never completely faded from our cultural discourse. Anti-theatrical efforts are not historical blips; they’re an American tradition.

James Shapiro’s The Playbook: A Story of Theater, Democracy, and the Making of a Culture War (2024), a brilliant and absorbing account of the 20th-century effort to establish something like a national theater in the United States, doesn’t go back quite as far as the Revolutionary Era. Between 1935 and 1939, a New Deal work relief program, the Federal Theatre Project, staged over a thousand productions nationwide, reaching an estimated audience of 30 million people. It was an astonishing undertaking, one whose impetus can be difficult to grasp from a 21st-century perspective. “It was the product,” Shapiro writes, “of a moment when the arts, no less than industry and agriculture, were thought to be vital to the health of the republic and deserving of its support.” That moment turned out to be brief, and the Federal Theatre was short-lived. Its inevitable demise was the result of a sustained effort by a group of lawmakers who were determined to end funding for a program they saw to be “spreading a dangerously progressive as well as a racially integrated vision of America.”

One of those lawmakers was Martin Dies Jr., a racist congressman from Texas who quickly emerges as the villain in Shapiro’s story. Ambitious and undaunted, Dies “saw which way the political winds were blowing” and set sail in that direction, eventually finding himself at the helm of the Special Committee on Un-American Activities (laying the groundwork for Joe McCarthy’s crusade a decade and a half later). The Federal Theatre proved an easy target, and casting its productions as “un-American” and “Communist” earned Dies national attention. He sought to make a name for himself and to shut down the relief program: by 1939, he had succeeded on both counts. A disappointed President Franklin D. Roosevelt reluctantly signed off on the Federal Theatre’s termination, and it soon faded into obscurity. (Its materials—playbooks, programs, and other theatrical ephemera—were unceremoniously deposited in an airplane hangar in Maryland, where they remained unnoticed until the 1970s.)

In Shapiro’s persuasive account, Dies established a “playbook” (a term that, as Shapiro’s epigraph points out, has a theatrical resonance) that set the stage for some of the same right-wing strategies still in use today. These include making the debate about what is American and what isn’t; identifying and attacking vulnerable groups and organizations; employing intimidating and threatening, even violent, rhetoric; and using the press to disseminate dubious, headline-grabbing claims. Shapiro’s focus is specific—a single federal initiative that existed for only a brief time—and in this sense, the book is reminiscent of some of his Shakespeare scholarship, particularly the award-winning 1599: A Year in the Life of William Shakespeare (2005) and its follow-up, The Year of Lear: Shakespeare in 1606 (2015). This approach allows Shapiro to illuminate, in archivally rich detail, not only the attacks on the Federal Theatre but also its productions and the people behind them. This is an important, much-needed study whose relevance to our current culture wars is uncomfortably apparent from the first page. But it’s also worth noting that efforts to suppress theater were nothing new in the 1930s, even if Dies was remarkably percipient in his tactics. The Federal Theatre’s closure is just one episode in the United States’ long and troubling history of anti-theatricalism.

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The Playbook opens on a contentious congressional hearing in December 1938. Here we meet Hallie Flanagan, the Vassar College professor who had been tapped to lead the Federal Theatre a few years earlier, defending the enterprise—and theater itself—with phenomenal poise and determination. Dies and his colleagues grilled her on the question of whether the Federal Theatre was promoting propaganda, apparently unaware that, as Flanagan explained, most theater is in some sense “propagandistic”: it questions the status quo and comments on societal norms and practices. If anything, these productions were “propaganda for democracy,” and as Shapiro points out, “the overwhelming majority” of the Federal Theatre’s productions “were unobjectionable.” But the committee’s concern was those few controversial plays that were more piercing in their social commentary. The fact that Flanagan had spent time as a Guggenheim Fellow studying theater in Europe (including the Soviet Union)—a tradition she found to be “intellectually rigorous” and “committed to education and propaganda”—didn’t help her cause.

In theory, the purpose of the hearing was to discuss the Federal Theatre’s activities and, at perhaps a deeper level, the question of whether drama can ever be completely neutral or apolitical. But instead, it became an opportunity for grandstanding, a forum for Dies and his colleagues to attack the country’s “enemies” and “the spiritual lethargy and moral indifference” that allegedly threatened it. Everything about this congressional scene seems painfully familiar: the characters, the setting, the script. Some of the lines Shapiro quotes could easily have been spoken in the current congressional session. (As I began reading The Playbook, for instance, Marjorie Taylor Greene was refusing to call Anthony Fauci “doctor” and stating that he should be imprisoned as he testified before the House Select Subcommittee on the Coronavirus Pandemic.) That the Dies committee’s interrogation of Hallie Flanagan seems so immediate speaks partly to Shapiro’s gifts as a storyteller, but also to the state of American government in 2024.

In addition to the moral tenor of Dies’s attack, there was also a financial aspect: whether taxpayers should have to pay for theatrical productions that advocate a social message (although one gets the sense that Dies wouldn’t have been any happier had they been entirely dispassionate). This is a common refrain of anti-theatricalists: that theater is costly and wasteful, and that the money—especially when drawn from the government’s purse—could be better spent elsewhere. Why allocate relief funds to actors to perform a play, the committee wondered, when you could give it to them to perform a tangible service? Why build a theater when you could build a highway? Flanagan reminded the committee that the entire Federal Theatre Project had only “amounted to […] the cost of building one battleship.” It’s a common rebuttal even today, though its effect may be limited: when the New York City arts budget was recently in danger of being slashed—a decision that, thankfully, was narrowly averted—one New York Times editorial observed that these programs could be supported “for the price of a police helicopter” (their police department’s budget authorized the purchase of two).

Again, though, in these sorts of discussions, logical reasoning usually takes a backseat to uninformed showboating. The Dies committee aimed to paint a very specific kind of picture for their fellow legislators and the American people, rooted less in fact than in ideology. This presents another axiom of anti-theatrical movements: opponents tend to know very little about the theater they’re attacking. None of the committee members, Shapiro observes, “had ever seen a Federal Theatre production.” Nor did they have much knowledge of theater more broadly: one of the committee members, Joe Starnes of Alabama, became an object of ridicule when he unwittingly asked if Shakespeare’s contemporary Christopher Marlowe was a communist. The Dies committee wanted to gut a program they knew almost nothing about. It seems telling that the committee’s 124-page report did not mention a single play.

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The sheer popularity of theater in 19th and early-20th-century America can be difficult to fathom. In The Playbook’s second chapter, we encounter a young Willa Cather, who at the turn of the century was a theater critic in Lincoln, Nebraska. Despite being a rural state with a population just above a million, Nebraska boasted over 50 playhouses in 1890: during a particular week in Lincoln in the spring of 1894, Cather was able to see and review five separate theatrical productions. The metrics alone are staggering. Shapiro estimates that as many as a quarter of the adult-aged population in Lincoln saw a play that week—“a theatergoing intensity,” he claims, “not seen since London in Shakespeare’s day.” “[P]laygoing,” Shapiro concludes, “was a national pastime.”

That popularity would wane in the decades that followed, due in large part to the arrival of motion pictures. Lamenting what had been lost, Cather remarked in the late 1920s that only live theater “can make us forget who we are and where we are,” while films “do not make us feel anything more than interest or curiosity or astonishment.” In a sense, the Federal Theatre’s success recaptured what had been so magical about American theater just a generation earlier: the Omaha World-Herald proclaimed that it “filled […] the gap that was made when the movies took over.” But popularity is a double-edged sword: from ancient Greece to the Shakespearean stage, successful theatrical traditions have almost always met with hostility. To be sure, the Dies committee was more successful than many previous anti-theatrical efforts throughout history. But it also attests to just how vibrant the Federal Theatre—and the spirit of American theater it reclaimed—was.

The Playbook’s central chapters each focus on a single Federal Theatre show, including a production of Shakespeare’s Macbeth that premiered in April 1936. It was staged in Harlem by one of the “Negro Units,” which had been established across the country “to support Black actors and playwrights.” Set in 19th-century Haiti, with a cast of 137, this incredibly innovative production—which became known as the “Voodoo Macbeth”—was also the Federal Theatre’s biggest hit. This was especially clear on opening night when a marching band made its way through Harlem behind a banner that read “Macbeth by William Shakespeare,” and a crowd of more than 10,000 people gathered outside Harlem’s Lafayette Theatre; a preview performance a few nights earlier had drawn 3,000. The Lafayette’s capacity was about 1,200.

None of that success prevented certain journalists from writing about the production in negative, racist terms. (Here and elsewhere, Shapiro does not shy away from these accounts, opting instead to give a full picture of the atmosphere surrounding the Federal Theatre and the obstacles it faced.) Nor did it stop the director, a 20-year-old Orson Welles, from taking full credit: his working script was titled “Macbeth by William Shakespeare, Negro Version, Conceived, Arranged, Staged by Orson Welles”; in later years, he would recall the production without even mentioning its lead actors, Jack Carter and Edna Thomas, or the many other cast and creative team members responsible for its success. But the Harlem Macbeth was nonetheless a great triumph for the Federal Theatre, and its popularity undeniable. After transferring to Broadway, it traveled the country for three months with a company of 180 people—“the largest Shakespeare production,” notes Shapiro, “to ever tour America.”

It is easy to see why Dies and his like-minded cohort found the Federal Theatre’s productions so threatening. It wasn’t just that they promoted a more liberal, inclusive vision of the United States than Dies was comfortable with. It was also that they were drawing huge crowds across the country—and their message was spreading.

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One of the most striking aspects of The Playbook—at least to a reader who, like me, is deeply interested in amateur theater—is how many people involved in the Federal Theatre Project were not theater professionals. To some degree, this was by design: the Federal Theatre’s intention, after all, was to put people back to work, often regardless of the credits on their résumés. But it is nevertheless surprising that its leadership also drew from amateur backgrounds. The majority of Hallie Flanagan’s theatrical experience came from her time at Vassar, where she was involved in campus productions and designed a program around “Experimental Theatre.” This notion of experimentation undoubtedly shaped her vision of what the stage should be, and it helps us to conceptualize the Federal Theatre as a whole: for the majority of productions, a polished Broadway show was neither the goal nor the outcome. They even sometimes came across as a bit ragtag: in one instance, Flanagan stepped in at the last minute to help build a set and locate props, as if she were helping to salvage a student play.

Much more than professionalism, the goal of the Federal Theatre was to be relatable to its audience members and to make them reflect on important social and political issues. Relevance was key—especially for those who may never have been in a theater before, or not for many years—and to make productions relevant, they had to be adaptable. In the summer of 1936, the Federal Theatre signed a deal with Sinclair Lewis to produce a theatrical version of his chilling novel It Can’t Happen Here (1935), which warned about the destruction of democracy and the rise of fascism. The book had originally been slated to be turned into a film by MGM, but the script—which did not hold back in its depictions of “concentration camps, the burning of the books, the invasion of homes”—was ultimately deemed too “politically inflammatory.” The goal was to have the play open simultaneously in different cities across the country, demonstrating that, “like a film, a play could open on the same day everywhere.” This plan proved to be overly ambitious, and productions were canceled, for various reasons, in New Orleans, Kansas City, and Brooklyn. For those that went forward, however, the individual directors had been encouraged to “bring the play to a close in a way that worked best locally.” The ending in Cincinnati, Tacoma, and Seattle was different from the ending in Omaha, which was different from the ending in San Francisco. Part of having a “national” theater was recognizing that the play would speak differently to different parts of the nation.

The situation was similar with a play called One Third of a Nation. Its subject was the dangerous, substandard living conditions in New York City: the play both began and ended with a tenement fire. But housing issues were not the same everywhere, and once again, regional productions were encouraged to adapt the play for local audiences. During a two-month run in Philadelphia, Shapiro explains, “the focus was changed from White to Black slum dwellers, and the survivor of the tragic tenement disaster in the opening scenes is a Black woman rather than a Jewish man.” The primary public concern in Philadelphia was construction quality rather than fire, so the “disaster” at the beginning of the play was changed to a building collapse. As was often the case, the Federal Theatre’s art channeled reality, making it more immediate for those on and off the stage. Shapiro quotes from Arthur Jarvis Jr., who notes that “some cast members lived in the very conditions condemned by the drama and could bring their personal experiences to each performance.”

Not all of the Federal Theatre’s productions were successful. A play called Liberty Deferred, which confronted the horrors of racism throughout American history, met with intense resistance and was never staged—an emblem of the Federal Theatre’s failure to live up to its ideals. And when the Federal Theatre sold the film rights to One Third of a Nation, it was turned into a sanitized, whitewashed version that heavily diluted the play’s biting message about the need for government intervention in the housing emergency. The project’s ultimate failure, of course, came at the hands of the Dies committee. But in its attempt to establish a national theater—one that had a broad reach, spanning racial and class divides and speaking to both local and nationwide concerns—the Federal Theatre came closer than anything has before or since.

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We don’t need to look too hard to see the Dies committee’s legacy. In a brief epilogue, Shapiro points to present-day efforts to suppress the arts, from House Republicans’ attempts to defund the National Endowment for the Arts to attacks on student theatrical productions in high schools across the country. As I was writing this review, it was reported that Florida governor and erstwhile presidential candidate Ron DeSantis decided without explanation to veto all grants for arts organizations; it is no coincidence that he has championed book bans and education mandates that have led to the removal of Shakespeare from school libraries and classrooms.

What, then, is the path forward? It is at least encouraging that, if anti-theatricalism is an American tradition, so too is resistance to it. It was none other than George Washington who, despite the ban on theater, sanctioned a series of performances by army officers at Valley Forge in the spring of 1778, intended to boost morale and rally the cause; Joseph Addison’s Cato, apparently one of Washington’s favorite plays, depicted liberty’s victory over tyranny. Washington was fighting against Britain, but he also took a stand against one of the Articles of Association’s oppressive restrictions. The colonists followed his lead: when Congress doubled down on its anti-theatrical stance a few months later, several states refused to support their position. 

The Playbook is a timely reminder both of the power of theater and of the vehement antipathy it can generate. In establishing one of his main themes, Shapiro stresses in the book’s preface that “the health of democracy and theater, twin-born in ancient Greece, has always been mutually dependent.” But the third sibling in this story is anti-theatricalism, which usually arises when theatrical traditions flourish in healthy democracies. It would be easy to view the Federal Theatre’s demise as more or less unique, an isolated incident from which today’s conservative lawmakers continue to draw inspiration. But it would be more accurate to view the story of American anti-theatricalism as a continuous tradition that never really went away and perhaps never will.

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