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john a. powell, Jason Reece and Stephen MenendianThe Kirwan Institute for the Study of Race & Ethnicity
Prepared for the United States Department of JusticeHousing and Civil Enforcement Section
Washington, D.C. July 8, 2010
The Community of Opportunity Model for Fair Housing & Educational Equity
Today’s Discussion Opportunity Matters (john)▪ The Community of Opportunity model for fair housing
Methods and Implementation (Jason)▪ Why and how do we map opportunity?▪ What have opportunity maps been used for?
Legal Applications (Stephen)▪ Educational applications and potential use for liability
and remedy
I was born…
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I grew up…
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My parents were sharecroppers in the South.
They left the South in search of opportunity.
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They moved north seeking opportunity and bought a house.
Today I would say they bought into a low opportunity neighborhood.
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The vacant grassy plots are not parks.
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Vacant lots and abandoned houses
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I grew up in a low opportunity structure in a declining opportunity city.
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LOW OPPORTUNITY HIGH OPPORTUNITY
Only 1 in 4 students in Detroit public schools finish high school (based on analysis from Education Week in 2007)
More the 60% of the men will spend time in jail
There may soon be no bus service in some areas
It is difficult to attract jobs or private capital
Not safe; very few parks Difficult to get fresh food
The year my step daughter finished high school, 100% of the students graduated and 100% went to college
Most will not even drive by a jail
Free bus service
Relatively easy to attract capital
Very safe; great parks
Easy to get fresh food
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“Opportunity” is a situation or condition that places individuals in a position to be more likely to succeed or excel.
Opportunity structures are critical to opening pathways to success: High-quality education Healthy and safe environment Stable housing Sustainable employment Political empowerment Outlets for wealth-building Positive social networks
Racialized…
• In 1960, African-American families in poverty were 3.8 times more likely to be concentrated in high-poverty neighborhoods than poor whites.
• In 2000, they were 7.3times more likely.
Spatialized…
• marginalized people of color and the very poor have been spatially isolated from opportunity via reservations, Jim Crow, Appalachian mountains, ghettos, barrios, and the culture of incarceration.
Globalized…• Economic
globalization
• Climate change
• the Credit and Foreclosure crisis
Outcomes
&
Behaviors
Social
Physical
Cultural
These structures interact in ways that produce racialized outcomes for different groups, but also in ways that influence racial identity
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Some people ride the “Up” escalator to reach
opportunity
Others have to run up the “Down” escalator to get there
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Five decades of research indicate that your environment has a profound impact on your access to opportunity and likelihood of success
High poverty areas with poor employment, underperforming schools, distressed housing and public health/safety risks depress life outcomes A system of disadvantage Many manifestations
▪ Urban, rural, suburban
People of color are far more likely to live in opportunity deprived neighborhoods and communities Social determinants of race: Where
you live dictates access to opportunity structures and also determines racial norms
…to a multi-dimensional understanding….
• Structural Inequality– Example: a Bird in a cage.
Examining one bar cannot explain why a bird cannot fly. But multiple bars, arranged in specific ways, reinforce each other and trap the bird.
• One variable can explain why differential outcomes.
20Source: Barbara Reskin. http://faculty.uwashington.edu/reskin/
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Lower EducationalOutcomes for Urban
School Districts
Increased Flightof Affluent
Families fromUrban Areas
Neighborhood (Housing)
Segregation
SchoolSegregation(Economic)
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Everyone should have fair access to the critical opportunity structures needed to succeed in life.
Low Opportunity neighborhoods limit the development of human capital
A Community of Opportunity approach can develop pathways that result in increased social and economic health, benefiting everyone Looking at people, places and linkages
▪ Linkages = building connections to areas of opportunity
▪ Example: Opportunity based fair housing
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Deliberate, coordinated, and regional investments in people, places, and linkages
Two-pronged approach:▪ Targeted in-place, urban
revitalization strategies▪ Mobility-based investments for
marginalized residents to access high opportunity communities’
These are Not opposing strategies! A sustainable, transformative development strategy requires both
How do you map opportunity? What has it been used for?
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Why are maps particularly effective in dealing with issues of equity? Regional, racial and social inequity often
manifest as spatial inequity Maps are naturally the best tools to display
this spatial phenomena
Other disciplines and sectors are using multivariate mapping to problem solve Private industry Public sector
▪ NSP▪ Recent interest in mapping by HUD for supporting
sustainable communities▪ See recent Urban Institute report
Mapping visually represents the cumulative effects of opportunity segregation Also a strong analytical tool to
look at disparate impact (especially those impacts which are spatial and racial in nature)
• One map may contain tens of thousands of pieces of information than can be understood in seconds
A good map can enable you to tell a story or solve a problem
• Research has shown that people can solve problems faster with map based information, than by looking at charts, tables or graphs
The Kirwan Institute has conducted “opportunity mapping” for states and metropolitan regions across the US Projects in at least a dozen states
▪ Full State Analysis: MA, CT, OH, FL▪ Regions: Seattle, San Francisco, Chicago, Atlanta, Baltimore,
Washington D.C., Detroit, Austin, Sacramento, Los Angeles, New York, Houston, New Orleans
Why identify the “State of Opportunity” How are low-income groups situated in the State? How are racial and ethnic groups situated? How does housing intersect with race, class and
opportunity What can be done to improve the opportunity
landscape?
How do you map opportunity? Data representing community conditions was gathered
for neighborhood (census tracts) across the state or region▪ Data for all indicators of community conditions was aggregated
to the Census Tract level and analyzed to create a comprehensive opportunity index for the census tracts (neighborhoods) throughout the state or region
The opportunity index is then mapped and census tracts are broken into quintiles based on their opportunity score▪ Very Low, Low, Moderate, High, Very High
EDUCATION
Student poverty rates Reading/Math test scores Adult educational attainment Teacher qualifications Graduation rate
HOUSING & NEIGHBORHOOD HEALTH
Home ownership rates Crime incidence Vacancy rates Home value appreciation Neighborhood poverty rates Population change Proximity to parks/open space Proximity to toxic waste release
sites
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Proximity to employment Commute times Job growth trends Business start trends Unemployment rate Public assistance rate
ECONOMIC HEALTH
All indicators grounded in social science research literature, also indicators can be more narrowly tailored to meet the needs of particular populations (e.g. public housing residents).
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Education Opportunity
Score
Economic Opportunity
Score
Housing & Neighborhood
Score
Final Opportunity Score (Map)
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Example of an Opportunity Map: Detroit MI
(Dark Areas = Most Opportunity Rich Communities)
(Light Areas = Most Opportunity Deprived Areas)
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0%
20%
40%
60%
80%
100%
% African American % Asian % Latino % Whites
Low and Very Low Opp. Moderate Opportunity High and Very High Opp.
Background on this project Originated from effort to incorporate
mapping analysis into legal services Partners Massachusetts Law Reform Institute,
MA Legal Assistance Corp (foundation) and other Legal Services Entities
Year long process of meeting with stakeholders to understand mapping needs and issues
Training with service providers & agencies (using mapping for programming)
Three areas of opportunity were analyzed using GIS mapping capability: Education Quality and
Opportunity Economic Health and
Transportation Neighborhood Stability and
Health
Comprehensive Opportunity Map: Greater Boston
Program design and use within legal services New programming – proposed “Adopt A Zip Code” program Use in exploring client concerns/challenges Internal use by funder (MLAC)
State level program design (public sector) New $5 million state affordable housing program, targeted
to high opportunity communities (see press release) Targeting of $21 million in NSP funds to low opportunity
communities by the MA Department of Housing and Community Development
Implementation still unfolding
Connecticut “The mapping is guiding our next round of fair
housing testing…our mapping report has been identified by the CT Department of Economic and Community Development as one of the three central principles that will guide its planning over the next five years.” ▪ Erin Boggs, CT Fair Housing Center
Baltimore Remedial proposal in Thompson v. HUD
Chicago (Leadership Council for Metropolitan Open Communities) Use in advising voucher holders in neighborhood selection
Austin Use in evaluating city’s affordable housing investments
Related Project: Washington County, OR Advised on opportunity map created by the County included in recent
consolidated plan for County▪ Exploring application in planning activities for the broader Portland region
Child Development Jacksonville, FL & the Duvall County children’s commission
Education Montclair, NJ and Louisville, KY (more on this in Stephen’s comments)
Coalition Work (PRRAC) National Coalition on School Diversity & Civil Rights Task Force on
Federal Housing Policy
Education applications and potential use for liability and remedy
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► Since the racialized nature of opportunity isolation is a spatial phenomena, maps are naturally an effective way to represent it
► Maps allow us to understand volumes of data at a glance through layering
► Mapping is a very powerful tool in looking at educational inequity & opportunity
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► School Composition layered over census tract data in Montclair, NJ
► Maps illustrate how residential segregation can manifests in schools
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►Magnet school policy counteracts effects of neighborhood segregation
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►Educational outcomes are a product of many inputs. ►Using social science research, we can identify factors
that correlate with educational performance. ►Mapping looks at multiple factors which correlate
with educational outcomes and social benefits, in a given neighborhood.
Direct Education Indicators
School poverty rate
Average teaching experience
Percent reading proficiency - 11th grade
Percent writing proficiency - 11th grade
Percent math proficiency - 11th grade
Graduation rate 2004-2005
Percent of teachers with Bachelor's degree
Percent of teachers with Master's degree
Total hardware/software (computer expenditure)
Access to libraries
Percent associates degree or higher
Other Neighborhood Indicators
Percent poverty
Percent unemployed
Access to prenatal care
Total crime indicator
Percent of houses owner-occupied
Percent of houses vacant
Housing median value
Child poverty rate
Median household income
SOUTHWEST OHIO SOUTHWEST CENTRAL OHIO
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► Mapping the geographic distribution of opportunity helps us to evaluate where these opportunity mismatches exist in a community and to design interventions to move people to opportunity
► Student assignment policies can be created using these indicators, drawing attendance Zones, boundaries, or through controlled choice plans.
District Indicators Steps NotesJefferson County/Louisville, KY
1) Median HH Income2) Racial Composition of
Neighborhood3) Ed. Attain of Parents
1) Parental Choice within Resides Zone
Two-Zone model
Berkeley , CAL 1) Average Nbhd Income2) Ed. Attain of Adults in
Nbhd3) Racial Composition of
Nbhd
1) Sibling2) Parental Choice within
Zone assignment
Controlled Choice, 3 Attendance Zones; Upheld by Cal. Ct. of Appeals
Montclair, NJ 1) Median HH income 2) HH Poverty Rates 3) # of F/R Lunch Stds4) Ed. Attain of Adults in
Nbhd5) Racial Composition of
Nbhd
1) Special needs2) ESL3) Siblings4) Parental Choice within
Zone Assignment
Magnets Plan, Freedom-of-Choice, 3-Zones, K students only
Chicago, IL 1) Median family income2) Adult Ed. Attainment3) % of Single-Parent HH4) % of Owner-Occupied
Homes5) % Of ESL students
1) Siblings2) ½ of remaining seats
proximity lottery3) Remaining Seats by
SES census block zone
4 Census Block Zones
Source: Civil Rights Project at UCLA
Source: Civil Rights Project at UCLA
“We conclude that the particular policies challenged here – which aims to achieve social diversity by using neighborhood demographics when assigning students to schools – is not discriminatory. The challenged policy does not use racial classifications; in fact, it does not consider an individual student’s race at all when assigning the student to a school.”
- ACRF v. Berkeley Unified School Districts
► GOAL: Each school has diversity of students from each zone, within 5% point deviation of K class zone baseline.
► K and transfer students are assigned based on parental preference and zone balance.
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Notes on Parents Involved
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Justice Kennedy’s opinion is controlling as the fifth vote.
J. Kennedy, ConcurringThat the school districts consider these plans to be necessary should remind us that our highest aspirations are yet unfulfilled. School districts can seek to reach Brown’s objective of equal educational opportunity. But the solutions
mandated by these school districts must themselves be lawful.
In my view, the state-mandated racial classifications at issue, official labels proclaiming the race of all persons
in a broad class of citizens – elementary school students in one case, high school students in another – are
unconstitutional as the cases now come to us.
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School boards may pursue the goal of bringing together students of diverse backgrounds and races through other means, including strategic
site selection of new schools; drawing attendance zones with general recognition of the demographics of the neighborhoods; allocating resources for special programs; recruiting students and faculty in a targeted fashion; and tracking enrollments, performance, and other
statistics by race. These mechanisms are race-conscious but do not lead to different treatment based on a classifications that tells each student he
or she is to be defined by race.
“If school authorities are concerned that the student-body compositions of certain schools interfere with the objective of offering an equal educational opportunity to all of their students, they are free to devise race-
conscious measures to address the problem in a general way without treating each student in a different
fashion soley on the basis of systematic, individual typing by race.
►After decades of integration efforts and hard won gains, many districts concerned that the reversion to neighborhood schools and local control would result in rapid resegregation implemented voluntary integration plans.
►This refers to integration efforts and strategies that a school system might employ, absent a legal obligation to do so.
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