




AMERICA'S MOST SEGREGATING SCHOOL DISTRICT BORDERS
A dynamic economy is constantly changing. Thousands of new offices and work sites open each year, and thousands close. As markets evolve, so does the workforce, creating constant churn. Sometimes, the impacts are local: when there is a fundamental shift in the industries that power particular communities, jobs disappear and housing prices fall. The school districts serving those neighborhoods see poverty rates climb and dwindling resources must stretch to support more high-need students.
Disruptions are a natural element of a market economy. Still, there are steps that can be taken to protect communities against such shocks—steps that, unfortunately, are the very opposite of our approach to public education. Governments seeking to cushion against risk might choose to provide social services on a regional basis, drawing funding from a broad area and a variety of revenue streams. They might change transportation systems and local boundaries to open up opportunities that would otherwise be just out of reach. They could double down on their investment in learning, so those who have lost jobs or have not yet entered the workforce can compete in a shifting economy. But in education, they do none of these. Tightly drawn school district borders determine not only where children attend school, but also, to a large extent, how well resourced those schools will be. The people within those borders—rich or poor—are asked to support their schools with local property taxes. Often, shortfalls in state support mean that in order to keep schools going, needy communities must pay increasingly high taxes out of ever-declining incomes.
When a high-need district is next-door to a much better-off school system, it is clear that the area has the capacity to do better by its neediest children—but is isolating them instead. The boundaries around Youngstown, Ohio are a case in point. The city never truly recovered from losing five steel mills in the 1970s and 1980s. Its population declined by more than half, leaving behind a far needier community. Today, an astonishing 47% of Youngstown’s children live below the poverty line, compared to just 6% in neighboring Canfield—a gap equivalent to the one between Detroit and the tony ski town of Aspen, Colorado.
Youngstown is poorer than any of its ten neighbors, showing that as the city’s misfortunes have mounted, they haven’t spread. Instead, poverty has been concentrated within the borders of Youngstown City School District. This kind of segregation comes about largely because of how we organize and fund school districts. When district lines split better-off neighborhoods from poorer ones, that keeps local dollars on one side of the line and needy students on the other—and wealthy communities have every incentive to keep it that way.
This report identifies which of America’s school district boundaries create the steepest degree of economic segregation. Click the arrow below to see the stories of some communities isolated by these borders and our big picture findings, or click the EXPLORE buttons on the lower left to see the national maps.
Fault Lines has been updated since its original publication in August 2016. Click here to see the original.
The nation’s most segregating school district border divides Rochester from Penfield. In the 1950s and 60s, Rochester saw an influx of black residents seeking manufacturing jobs. Meanwhile, white city-dwellers began to leave for the suburbs. Penfield grew rapidly, and it took steps to safeguard its affluence. It essentially banned new construction of multi-family housing and set minimum sizes for homes and yards, a policy that would come to be known as “exclusionary zoning.” This put Penfield out of reach for lower-income families.
Meanwhile, Rochester’s manufacturing sector began to wane, leading to population decline and a decrease in fortunes. Trapped in a deteriorating city, poor Rochester residents filed a lawsuit challenging Penfield’s exclusionary zoning. In 1975, the Supreme Court found for Penfield. The ruling showed the way for communities that want to price out poorer residents. The border between the two school districts works in exactly the same way. The school finance system’s heavy reliance on local property taxes ties district budgets to home values, which means that when wealthier districts keep their walls up, they also keep property values high, local dollars in, and needy kids out.
For more on this border, see the long-form report here.
The fourth-largest poverty gap in the country is the 41-point divide between Claiborne and Hinds Counties in Mississippi. Claiborne needs more resources, not fewer, in order to properly support their high-need student body. But the district’s tax base is poor—not just because of low home prices, but because of state and federal actions taken with little concern for the Claiborne community.
In the early 1950s, a United States Army Corps of Engineers project had the side effect of flooding 657 acres of Claiborne County, destroying timber and devaluing the land. This takes a sizeable chunk out of the district’s property tax base each year. An even greater loss resulted when Mississippi exempted nuclear power plants from local property taxes—a 1986 change in law that affected just the state’s one and only nuclear plant, located in Claiborne County, almost immediately after it began operation. Meanwhile, other kinds of power plants continue to generate property tax revenue for their districts—districts whose populations are, on the whole, less needy than Claiborne’s.
While Claiborne struggles to fund its schools, Hinds County thrives. The district’s voters recently approved a $60 million bond to make updates and improvements to all its schools.
For more on this border, see the long-form report here.
The eighth-most segregating school district border is between Benton Harbor, Michigan and St. Joseph. Benton Harbor’s big industrial employer, Whirlpool, moved its factories overseas in 2010, after a long decline in local fortunes. Whirlpool still maintains a corporate headquarters locally, and its various nonprofit arms now buy and develop city land, taking advantage of government programs that are meant to spur investment.
One example is Harbor Shores, a luxury development supported by state tax breaks that are intended to aid projects in distressed areas. Parts of the development were set for St. Joseph, but construction in the more affluent town would not have been eligible for state assistance. To qualify, St. Joseph transferred some land into Benton Harbor. But once the tax breaks expire, that land, and the high-priced housing built on it, will go back to St. Joseph. This is a clear example of a wealthier community getting to have it both ways. The school district border walls St. Joseph off from Benton Harbor children, keeping its property values high and student poverty levels low. Yet when it was in St. Joseph’s interest, a border could be moved—to allow it to profit off the poverty of Benton Harbor.
For more on this border, see the long-form report here.
The country’s ninth-greatest school-district divide separates Clairton and West Jefferson Hills in Pennsylvania. Clairton is the rare story of an industrial town where the main employer has stayed—and the dependency of the local economy upon it has brought disastrous results.
Clairton Coke Works provides about a third of local tax dollars, but it also produces intense air pollution. Emissions got even worse recently as fires at the plant disabled air-quality controls. The numerous harms include a child asthma rate that is very high at 18%, well above the rate for Pennsylvania overall. Still, Clairton needs Coke Works. Union groups advocated against idling the plant despite the fires, and the mayor recently said that “If we closed that mill down…we’d be like a ghost town.” Leveraging its position, the plant’s owner reduced its tax bill by 40% on appeal. This is hard on Clairton, but the city cannot push back too forcefully when the alternative is nothing at all. The district needs those local funds; the state doesn’t even provide enough to bring Clairton up to parity with West Jefferson Hills. Meanwhile, Clairton faces the greater costs associated with serving its higher-need students, including providing school-based health services like asthma care.
West Jefferson Hills, though, has not had to make such hard choices about its local dollars. Residents have approved seven straight years of tax increases for schools and opened a brand- new high school this fall.
For more on this border, see the long-form report here.
When viewing the most socioeconomically segregating borders in the country on a map, a clear pattern takes shape. Almost all of the deepest divides are located in two areas—the former Rust Belt and the Deep South. Both of these regions have been largely left behind by shifts in industry and changes in our workforce. But what is clear from our analysis is that not all communities were equally affected when the economy bottomed out. In fact, the fallout was felt deeply by some communities while their neighbors are still unscathed.
Ohio, which enrolls 3% of all students in traditional public schools in the country, is home to 34% of the most segregating lines in our report. New York, with 5% of the nation’s enrollment, houses 18% of the worst school district borders, including the biggest gulf in the nation—the 41-percentage point difference between Rochester and its neighbor Penfield Central. Michigan and Pennsylvania, which collectively educate 6% of all US students, are home to another 22% of the nation’s worst borders. In total, 37—or 74% of the worst borders are in the Rust Belt alone.
The four states with the most borders in the Top 50 have a common structural element—they have drawn and maintain very small school districts. Consider Pennsylvania, where there are seven school districts to every county in the state—or New York, where there are eleven. That is a deep contrast to Maryland, which educates 886,000 students across only 24 county-based school districts, or North Carolina, which enrolls just 100,000 fewer students than Pennsylvania, but does so in a quarter of the number of districts. States with larger school district borders are able to smooth out the kinds of financial fluctuations that come from a fluid economy. This is one of the reasons why states like Maryland and North Carolina do not contain the kind of drastic “haves and have-nots” of the states in this report.
It would be easy to see the structure of divisive school district borders as immutable. These lines, however, are not facts of nature. They are drawn by people, often in service of clear financial interests: given that nearly every state’s school funding system starts from local property taxes, better-off communities have every reason to draw and maintain borders around high-value areas, keeping local dollars in.
District lines should not mark the limit of students’ opportunities. States have an obligation to all their children, and they violate that trust when they allow district borders to divide students into haves and have-nots. Each year, legislatures have the power to make different policy choices: to fund schools in a way that cuts the tie between school budgets and local property values and to draw school district borders carefully and inclusively. Schools can still be governed locally, but do not need to be funded that way.
The data is compelling. The charge is clear, and the stakes are high. It is time for a new approach.
This state is excluded because at least two-thirds of students were excluded from the dataset.
Name | Enrollment | Poverty Rate | Local Revenue Per Pupil | State Revenue Per Pupil | Percent Nonwhite | Median Household Income |
---|---|---|---|---|---|---|
Birmingham | 24,070 | 35% | $5,023 | $5,148 | 99% | $33,770 |
Greene | 1,154 | 48% | $4,124 | $6,285 | 100% | $20,954 |
Tuscaloosa | 18,430 | 16% | $3,087 | $5,598 | 39% | $57,880 |
Vestavia Hills | 7,150 | 4% | $6,881 | $4,796 | 20% | $98,653 |
Nogales | 5,749 | 45% | $1,723 | $4,504 | 99% | $28,408 |
Sahuarita | 6,133 | 10% | $4,398 | $3,474 | 60% | $64,909 |
Hartford | 20,309 | 35% | $3,785 | $17,228 | 89% | $33,841 |
South Windsor | 4,159 | 4% | $15,206 | $6,070 | 37% | $105,986 |
Putnam | 11,255 | 40% | $2,420 | $5,309 | 47% | $33,619 |
St. Johns | 38,550 | 8% | $6,313 | $3,781 | 23% | $73,640 |
Name | Enrollment | Poverty Rate | Local Revenue Per Pupil | Percent Nonwhite | Median Household Income |
---|---|---|---|---|---|
Greene County | 1,154 | 48% | $4,124 | 100% | $20,954 |
Birmingham City | 24,070 | 35% | $5,023 | 99% | $33,770 |
Perry County | 1,442 | 50% | $1,766 | 99% | $22,973 |
Macon County | 2,023 | 41% | $2,656 | 99% | $32,308 |
Bessemer City | 3,605 | 32% | $3,973 | 98% | $31,308 |
Chickasaw City | 1,056 | 43% | $2,006 | 74% | $30,929 |
Barbour County | 847 | 43% | $3,221 | 94% | $33,318 |
Lowndes County | 1,508 | 39% | $3,003 | 99% | $29,785 |
Sheffield City | 1,068 | 34% | $4,240 | 47% | $33,463 |
Autauga County | 9,307 | 18% | $2,012 | 33% | $55,317 |
Borders in the Dataset | Borders in 50 Most Segregating List | Average Percentage Point Poverty Difference | Largest Percentage Point Difference | Highly Segregating Borders |
---|---|---|---|---|
311 | 2 | 8 | 32 | 18 |
151 | 1 | 8 | 34 | 5 |
630 | 0 | 7 | 29 | 17 |
968 | 0 | 6 | 28 | 24 |
176 | 0 | 5 | 19 | 0 |
272 | 1 | 6 | 31 | 22 |
25 | 0 | 5 | 11 | 0 |
141 | 1 | 7 | 32 | 6 |
433 | 1 | 7 | 31 | 19 |
138 | 0 | 4 | 12 | 0 |