MAPPING FOR CHANGE: SEIZING OPPORTUNITY & CONFRONTING CHALLENGES SEIZING OPPORTUNITY & CONFRONTING CHALLENGES

USING MAPS & GISPresentation to:

Presented by:

J R S i R h (R 35@ d )

Presentation to:Jessie Ball duPont Foundation

January 13th 2010

Jason Reece, Senior Researcher (Reece.35@osu.edu)

Samir Gambhir, Senior Research Associate (Gambhir.2@osu.edu)

The Kirwan Institute for the Study of Race & Ethnicity

The Ohio State University

Today’s Presentationy

Background Kirwan Our Work – Opportunity Mapping

Using Opportunity Mapping – Two Examples Using Opportunity Mapping – Two Examples Baltimore Massachusetts

Local example – exploring mapping applications Exploring opportunities/challenges in Duval County

Concluding Thoughts Moving forward

B k d

Th Ki I i & O W k

Background

The Kirwan Institute & Our Work

About Kirwan

Multidisciplinary applied research

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Multidisciplinary applied research institute Our mission is to expand opportunity 

f ll i ll f tfor all, especially for our most marginalized communities

Founded in 2003 by john powell Opportunity Communities Program 

(1/3 of staff) Opening pathways to opportunity for p g p y pp ymarginalized communities through investments in people, places and supporting linkages

i i Opportunity mapping

Opportunity Matters: Space, Place, and Life OutcomesOutcomes

“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 High quality education

Healthy and safe environment

Stable housing

Sustainable employment

Political empowerment

Outlets for wealth‐buildingg

Positive social networks

Opportunity Matters: Neighborhoods & Access to OpportunityNeighborhoods & Access to Opportunity

Five decades of research Five decades of research indicate that your environment indicate that your environment has a profound impact on your has a profound impact on your access to opportunity and access to opportunity and likelihood of successlikelihood of successlikelihood of successlikelihood of success

High poverty areas with poor High poverty areas with poor employment, underperforming employment, underperforming schools distressed housing andschools distressed housing andschools, distressed housing and schools, distressed housing and public health/safety risks public health/safety risks depress life outcomesdepress life outcomes A system of disadvantageA system of disadvantage Many manifestationsMany manifestations Many manifestationsMany manifestations

Urban, rural, suburbanUrban, rural, suburban

People of color are far more People of color are far more likely to live in opportunitylikely to live in opportunity

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likely to live in opportunity likely to live in opportunity deprived neighborhoods and deprived neighborhoods and communitiescommunities

About Our Work

Emphasis on how systems work to produce inequity How do multiple issues interact to either depress or uplift certain populations or communities?

What can we do to “strategically intervene” and improve f i li d i ioutcomes for marginalized communities

Extensive use of mapping in our workI it h hi f t i t Inequity has a geographic footprint

Leverage points sometimes geographic in scope Maps powerful for tools for

h Research Designing policy/programming Communicating research/issues to the public and other 

stakeholdersstakeholders

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T i l d f Typical map used for applied policy researchresearch Foreclosures in Columbus, OH

Helps target areas for investment or policy interventionintervention

Mapping Opportunity: Why and How

The Kirwan Institute has conducted “opportunity mapping” for states andopportunity mapping  for states and metropolitan regions across the US Projects in at least a dozen states

What is an opportunity map? Comprehensive map, showing various 

neighborhood indicators Opportunity indicatorspp y

Why identify the “State of Opportunity” How are low‐income groups situated in the State?

H i l d h i i d? How are racial and ethnic groups situated? What can be done to improve the opportunity landscape?

Investments

Policy Reforms

Targeting Services

Mapping Communities of Opportunity: Methods and IndicatorsMethods and Indicators

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 opportunityCensus Tract level and analyzed to create a comprehensive opportunity index for the census tracts (neighborhoods) throughout the state or region

Th i i d i h d d b k i 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

Creating the Composite Opportunity Map: Example From a Recent CN ProjectExample From a Recent CN Project

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Education Opportunity

Score

Economic Opportunity

Score

Housing & Neighborhood

Score

Final Opportunity Score (Map)Score Score Score Score (Map)

Example of an Opportunity Map: Detroit MI

(Dark Areas = Most Opportunity Rich Communities)

(Light Areas = Most Opportunity Deprived Areas)

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U i O t it M i

T C S di

Using Opportunity Mapping

Two Case Studies: Baltimore, MD & Massachusetts

Application and Impactpp p

In the past five years our opportunity In the past five years our opportunity mapping has been utilized in communities across the nation to promote social justice Expanding opportunity for marginalized Expanding opportunity for marginalized 

groups – informing policy & action

Recent examples: Public housing residents and fair housing in Baltimore,Public housing residents and fair housing in Baltimore, 

MD

Legal service populations & neighborhoods of opportunity MA

Opportunity Mapping & Fair Housing: Thompson v. HUD in BaltimoreHUD in Baltimore

Mapping initiative originated during pp g g gDirector powell’s involvement in both the liability and remedy phases of litigation, on behalf of NAACP Legal Defense Fund and the Maryland ACLUACLU Initial partners

Maryland ACLU NAACP Legal Defense Fund

Expanded beyond litigationR i l f i h i li i Regional fair housing coalition

Framework for program evaluation & identifying housing opportunities or challenges in the region

Used the opportunity community model to identify solutions for fair housing litigation in the Baltimore region (remedial proposal pending) Potential impact on 7 000 public housing families Potential impact on 7,000 public housing families 

in the Baltimore region

What is Thompson v. HUD?p

Litigation brought on behalf of class f 14 000 Af i A i id tof 14,000 African‐American residents 

of public housing in response to history of racial segregation of public housing and concentration in poor, g p ,distressed neighborhoods in Baltimore  Represented by Maryland ACLU and 

NAACP Legal Defense FundNAACP Legal Defense Fund US District Court of Maryland, Judge 

Marvin Garbis Began in 1995 judge issued liability Began in 1995…judge issued liability 

ruling in 2005 Remedial trial held in 2006

Still waiting for final remedial decision

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More on Thompson v. HUD More on Thompson v. HUD

In January 2005, US District Court Judge Garbis found HUD liable for violating the federal Fair Housing Act, for not providing fair housing opportunities to Baltimore’s African American public housing residents "Baltimore City should not be viewed ... as a container for all of the poor of a 

contiguous region“

HUD failed to affirmatively promote fair housing by failing to consider a regional approach to desegregating public housing “[T]he failure adequately to take a regional approach to the desegregation of public 

housing in the region that included Baltimore City violated the Fair Housing Act and requires consideration of appropriate remedial action by the Court.” q pp p y [Hon. Marvin J. Garbis, Memorandum of Decision.  Carmen Thompson et. al. vs. US 

Department of Housing and Urban Development et. al.  January 6, 2005: 104]

Fair Housing & Subsidized Housing in the Baltimore Regiong g

Subsidized housing opportunities in Baltimore are generally clustered in the region’s predominately fAfrican American 

neighborhoods 

Also high poverty neighborhoods

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Photos Near Public Housing Sites in Baltimore

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Opportunity Mapping in Baltimore

Use of 14 indicators of neighborhood opportunity to designate high and lowopportunity to designate high and low opportunity neighborhoods in the Baltimore region

Indicators of Opportunity (General)pp y Neighborhood Quality/Health

Poverty, Crime, Vacancy, Property Values, Population Trends

Economic Opportunity Economic Opportunity  Proximity to Jobs and Job Changes, Public 

Transit Educational Opportunity

School Poverty School Test Scores School Poverty, School Test Scores, Teacher Qualifications

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Subsidized housing opportunities in Baltimore are generally clustered in the region’s lowest opportunity neighborhoods

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Final Plaintiff’s Proposed Remedy

Plaintiffs propose providing desegregative housing opportunities Plaintiffs propose providing desegregative housing opportunities in the region’s high opportunity neighborhoods to remedy HUD’s fair housing violations With the goal of providing nearly 7,000 affordable housing opportunities 

in high opportunity communities to public housing residents who volunteer to relocate in ten years

Flexibility in implementation (new construction and vouchers)

Aligned with proposals to provide support services for residents who volunteer for the programwho volunteer for the program

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Other Impactsp

Outside of the litigation, the opportunity maps have g , pp y pbeen used in a variety of ways Program evaluation and planning

M it i ti l t d Monitoring partial consent decree program

Identifying Opportunities/Challenges Assessing opportunities/challenges related to the foreclosure crisis

Regional housing advocacy Baltimore Regional Housing Coalitiong g

Research Tracking outcomes for families who move to high opportunity areas (John Hopkins)areas (John Hopkins)

Initial Moves and Secondary Moves by Thompson Consent Decree Program Participants

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MA Legal Services and Opportunity CommunitiesOpportunity Communities

Background on this project Originated from effort to incorporate 

mapping analysis into legal services

PartnersPartners Massachusetts Law Reform Institute, 

MA Legal Assistance Corp (foundation) and other Legal Services Entities

Year long process of meeting with stakeholders to understand mapping 

d d ineeds and issues Training with service providers & 

agencies (using mapping for programming)programming)

Mapping Communities of Opportunity: Methods and Indicatorsand Indicators

Three areas of opportunity were analyzed using GIS mapping capability: Ed ti Q lit d Education Quality and

Opportunity

Economic Health and T t tiTransportation

Neighborhood Stability and Health

Comprehensive Opportunity Map: Greater Boston

Applications and Impactpp p

Program design and use within the legal services New programming – proposed “Adopt A Zip Code” program Use in exploring client concerns/challenges Use in litigation (National Consumer Law Center)g ( ) Internal use by funder (MLAC)

Direct advocacy State opportunity impact assessment (proposed) State opportunity impact assessment (proposed) Dissemination among state agencies

State level program design (public sector)$ ll ff d bl h d New $5 million state affordable housing program, targeted to 

high opportunity communities (see press release) Implementation still unfolding

L l A li ti

E l i i i / h ll h h

Local Applications

Exploring opportunities/challenges through mapping in Duval County, FL

Exploring Duval Countyp g y

Exploring the dimensions of child povertyp g p y Geography of neighborhood/school poverty & student performance

Exploring investments Children's services & ARRA

L ki i i Looking at intersections Foreclosure patterns and child vulnerabilityWhat does a comprehensive opportunity map forWhat does a comprehensive opportunity map for Jacksonville look like (sample map) Intersection with race, subsidized housing, foreclosure

Exploring Investments in relation to need – Child Poverty & Children’s Services Investments

Example: Understanding Investment

Patterns

An early look at ARRAAn early look at ARRA (stimulus) investments and

jobs created.

C ti thi i lCaution: this map is only as accurate as the source data

(ARRA data problematic)

Example: Sample ComprehensiveSample Comprehensive Opportunity Map (prepared in 2009 for MWC)

Based on neighborhood performance relative to other neighborhoods in state. Indicators:Indicators:

Index based on•Adult educational attainment•School poverty•School poverty•Teacher qualifications•FCAT scores•Unemployment•Public assistance rates•Public assistance rates•Jobs and job changes•Commute time•Proximity to Toxic Waste•Home values•Home values•Home vacancy/ownership•Crime

Opportunity Map: In relation to subsidized housing and foreclosure patterns

Cl i Th ht

M i F d

Closing Thoughts 

Moving Forward

Applicationspp

What is this information/approach useful for?/ pp Diagnostics and targeted investments

Identifying areas of opportunity and challenges

O t iti Opportunities Opportunities for investment

Targeting services better, targeting programs

Challenges E.g. foreclosure patterns – interconnections between foreclosure and children in need

Looking at broader policy issues and concern

Communications – using maps to illustrate areas of concern, areas of opportunity, broader community discussions

Moving Forward - Strategiesg g

Spend time identifying areas of concern/need prior to p y g / pmapping Targeted inquiries and analysis (areas of concern, areas of 

opportunities for progress)opportunities for progress)

Diagnostics (programs, investments etc.)

Consider mapping to help address broader challenges Planning and strategy, communications, public discourse, advocacy –

outreach, stakeholder, informing program design

Comprehensive opportunity maps more useful in this role p pp y p

Be aware of data challenges Access to data sometimes a limiting factor

Thank You!For questions, comments or for more information: www.kirwaninstitute.orgor e-mail us at Reece.35@osu.edu or Gambhir.2@osu.edu

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