Waggonner was born in
Plain Dealing to Joe David Waggonner Sr. and the former Elizzibeth Johnston. He graduated from Plain Dealing High School and in 1941 from
Louisiana Tech University, where he was a member of
Kappa Sigma. On December 14, 1942, he married Mary Ruth Carter. The couple resided in their later years in
Benton, the seat of Bossier Parish, and then in the more populous
Bossier City. During
World War II and the
Korean War, Waggonner served in the
U.S. Navy, having attained the rank of
lieutenant commander. In between and after the wars, he was a petroleum product wholesaler. On July 23, 1960, Waggonner was elected to the Louisiana State Board of Education from the Third District of the
Louisiana Public Service Commission, unseating incumbent C. Raymond Heard. In 1961, Waggonner was chosen president of the Louisiana School Boards Association and the United Schools Committee of Louisiana, positions from which he promoted
segregationist policies. He had also been instrumental in the founding of the
White Citizens Council in the late 1950s, and served as the president of its Louisiana Fourth District Chapter. ==Election to Congress==