Growing Together to Expand Opportunity for All in the Portland Region

Making the most of the Sustainable Communities Initiative

Growing Together to Expand Opportunity for All

in the Portland Region

john a. powellExecutive Director, Kirwan Institute for the Study of Race and

EthnicityWilliams Chair in Civil Rights & Civil Liberties,

Moritz College of LawMetroPortland, ORAugust 3, 2010

IntroductionHow do you build livable, sustainable communities that work for, and are inclusive of, everyone?

The Portland WayA leader in regional, sustainable development

40 years of progressive land use planning

Quality of Life in region

Source: Public Opinion Research Survey, DHM Inc.2009.

HUD Livability Principles(1) Provide More Transportation Choices. Develop safe, reliable, and economical

transportation choices to decrease household transportation costs, reduce our Nation’s dependence on foreign oil, improve air quality, reduce greenhouse gas emissions, and promote public health.

(2) Promote equitable, affordable housing. Expand location - and energy-efficient housing choices for people of all ages, incomes, races, and ethnicities to increase mobility, improve access to jobs, expand educational opportunities, and lower the combined cost of housing and transportation.

(3) Enhance Economic Competitiveness. Improve economic competitiveness through reliable and timely access to employment centers, educational opportunities, services, and other basic needs of workers, as well as expanded business access to markets.

(4) Support Existing Communities. Target federal funding toward existing communities—through strategies like transit-oriented, mixed-use development, and land recycling—to increase community revitalization and the efficiency of public works investments and to safeguard rural landscapes.

(5) Coordinate Policies and Leverage Investment. Align federal policies and funding to remove barriers to collaboration, leverage funding, and increase the accountability and effectiveness of all levels of government to plan for future growth, including making smart energy choices, such as locally generated renewable energy.

(6) Value Communities and Neighborhoods. Enhance the unique characteristics of all communities by investing in healthy, safe, and walk able neighborhoods—rural, urban, or suburban.

HUD Mandatory Outcomes(1) Creation of regional transportation, housing, water, and air quality plans that are

deeply aligned and tied to local comprehensive land use and capital investment plans.

(2) Aligned federal planning and investment resources that mirror the local and regional strategies for achieving sustainable communities.

(3) Increased participation and decision-making in developing and implementing a long range vision for the region by populations traditionally marginalized in public planning processes.

(4) Reduced social and economic disparities for the low-income, minority communities, and other disadvantaged populations within the target region.

(5) Decrease in per capita VMT and transportation-related emissions for the region.(6) Decrease in overall combined housing and transportation costs per household.(7) Increase in the share of residential and commercial construction on underutilized

infill development sites that encourage revitalization, while minimizing displacement in neighborhoods with significant disadvantaged populations.

(8) Increased proportion of low and very low-income households within a 30-minute transit commute of major employment centers.

QuestionWhat are the strategies and activities needed to reach these outcomes?

Understanding OpportunityUnderstanding the geography of opportunity can make our regional investments more effective.

Opportunity Matters…. “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

How does Portland compare to the nation?

Select characteristics

Portland city, OR USA

20002006-2008

ACS 20002006-2008

ACSMedian HH Income (1999) $40,146 $48,993 $41,994 $52,175

% population 25+, HS Graduate or Higher 85.7 89.2 80.4 84.5% Population 25+, Bachelors Degree or Higher 32.6 39.6 24.4 27.4

Families Below Poverty 8.5 10.5 9.2 9.6

Median value SF Home $154,900 $293,300 $119,600 $192,400

Source: Census data

Collective Concerns for the Region

Housing Affordability Educational Attainment Poverty Recession & Unemployment

Housing: Affordability

Housing affordability is a region-wide issue:• Declining affordability of SF homes• By 2005, median household income was less than 1/3 of housing price• In 2008 in Multnomah County,

• 52% of renters and 43% of owners paid more than 30% on housing

• Compared to 50% of renters and 37.5% of owners nationally

Source: Coalition of Communities of Color and Portland State University. “Communities of Color in Multnomah County:An Unsettling Profile.” 2010Figure c/o Coalition for a Livable Future, Regional Equity Atlas.

Housing Costs, % incomeHousing + Transportation, % income

Yellow: Less than 30%Blue: 30% and Greater

Yellow: Less than 45%Blue: 45% and Greater

Source: Center for Neighborhood Technology. 2010 http://htaindex.cnt.org/mapping_tool.php#region=portland&theme_menu=0

http://htaindex.cnt.org/mapping_tool.php�

Percent of Persons 25+ by Highest Educational Attainment

Portland -Vancouver,

OR -WA PMSA

Central city of:

Portland city, OR

Suburbs

Did not Graduate HS

1970 37.6 39.6 36.3

1980 22.0 24.2 20.6

1990 15.7 17.1 14.8

2000 12.8 14.3 11.9

HS Graduate

1970 35.4 33.4 36.7

1980 36.4 32.2 38.3

1990 26.9 24.9 27.6

2000 23.8 22.2 24.3

Some College or Associate

Degree

1970 14.5 14.6 14.3

1980 22.1 21.5 22.4

1990 34.2 32.0 35.1

2000 34.5 30.8 35.9

College Graduate or Advanced

Degree

1970 12.5 12.4 12.7

1980 19.6 22.1 18.7

1990 23.3 25.9 22.5

200 28.8 32.6 27.9Source: SOCDS Census data

EducationWhen compared to the region and suburbs:

•Portland has higher percent of people who did not graduate HS,

• and a higher percent of people with advanced/ college degrees

Increasing poverty in the region and Portland

Poverty Rate (Percent)

Portland -Vancouver, OR -WA PMSA

Central city of:Portland city, OR

Suburbs**

1969 9.7 12.6 8.0

1979 9.0 13.0 7.2

1989 9.9 14.5 7.6

1993 Estimated* 11.2 15.9 8.9

1995 Estimated* 9.9 14.5 7.8

1997 Estimated* 9.2 12.6 7.8

1998 Estimated* 9.4 12.8 8.1

1999 9.5 13.1 7.6

2003 Estimated* 10.4 13.4 8.8

Source: SOCDS Census data*Estimated poverty rates for 1993, 1995, 1997, 1998, and 2003 are derived from the Census Bureau's Small Area Income and Poverty Estimates. ** Suburb data are defined as the total for the Portland-Vancouver, OR-WA PMSA less the sum of data for these cities: Portland city, OR ; Vancouver city, WA ;

Unemployment Rate (%)

Portland -Vancouver -Beaverton, OR -WA MSA

City of: Portland city, OR Suburbs

Average Annual 2000 4.4 4.7 4.3





Average Annual 2009 10.6 10.4 11.2

Effects of the Recession…

Source: SOCDS Census data

But, opportunity is also….

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

Neighborhoods Matter… Neighborhoods are critical to

understanding access to opportunity

For example, research shows that living in a neighborhood of concentrated disadvantage is equivalent to missing a full year of school (Sampson 2007)

Does your neighborhood provide pathways to opportunity and success?

Safe environment, good schools, positive peers and role models, employment, accessible transportation options to amenities and jobs

Or does your neighborhood present you with barriers to opportunity and success

Unsafe environment, failing schools, poor peers and role models, no employment

Some people ride the “Up” escalator to reach opportunity

Others have to run up the “Down” escalator to get there

Our opportunity context matters

The Cumulative Impacts of Spatial, Racial and Opportunity Segregation

Neighborhood Segregation

School Segregation

Racial stigma, other psychological impacts

Job segregation

Impacts on community power and individual assets

Impacts on Educational Achievement

Exposure to crime; arrest

Transportation limitations and other inequitable public services

Adapted from figure by Barbara Reskin at: http://faculty.washington.edu/reskin/

Segregation impacts a number of life-opportunities

Impacts on Health

http://faculty.washington.edu/reskin/�

Why do some people have access to the “good life” while others do not?

It’s more than a matter of choice….

Historic Government Role

A series of federal policies have contributed to the disparities we see today School Policy Suburbanization & Homeownership Urban Renewal Public Housing Transportation

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Today,

Institutions continue to

support, not dismantle, the

status quo. This is why we

continue to see racially

inequitable outcomes even if

there is good intent behind

policies, or an absence of

racist actors. (i.e. structural

racialization)

Example: Redline Mapping and AnalysisHow historic redlining practices helped shape today’s opportunity landscape

A snapshot of opportunity in Portland today

A snapshot of opportunity in Portland today, contd.

Historic Government Policies Enforcing Inequity:The FHA and Redlining

“If a neighborhood is to retain stability, it is necessary that properties shall continue to be occupied by the same social and racial classes. A change in social or racial occupancy generally contributes to instability and a decline in values.”

–Excerpt from the 1947 FHA underwriting manual

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How Have Discriminatory Systems Influenced Portland today?

From Redlining…

Original Portland 1938 Redlining Map

Historic Redlining Practices and Access to Opportunity in 2010

…to Reverse Redlining…

High Interest Rate Loans as Share of Home Purchase Loans by Race/Ethnicity (2008)

Metro Area

Hispanic 5.9%

Non-Hispanic White 3.5%

Non-Hispanic Black 4.3%

Non-Hispanic American Indian 2.0%

Non-Hispanic Asian/Pac. Islander 1.9%

High Interest Rate Loans as Share of Home Purchase Loans by Race/Ethnicity and Income (2008)

Low-Income

Middle-Income

Upper Income

Hispanic 6.8% 7.0% 3.5%

Non-Hispanic White 5.0% 3.2% 3.0%Non-Hispanic Black 1.8% 3.7% 6.2%

Non-Hispanic Asian/Pac. Islander 2.1% 1.8% n/a

Source: http://diversitydata.sph.harvard.edu/Data/Profiles/Show.aspx?loc=1092

http://diversitydata.sph.harvard.edu/Data/Profiles/Show.aspx?loc=1092�

1938 Redlining and Subprime Lending

…To Gentrification, a new form of exclusion

From 1990 to 1999, the average home price in the Portland region rose 97% from $96,000 to $188,600. In some previously redlined areas prices increased 150 or 200% in five years.

Source: K. Gibson and C. Abbott. “City Profile: Portland, Oregon.” CitiesVol.19, No.6 December 2002. Photos c/o William Yardley. “Racial Shift in a Progressive City Spurs Talks” The New York Times, May 29, 2008

The blues represent decreases in SF homes for rent. What is unclear is whether these decreases represent displacement, or tenure changes. Some of the darkest blue areas especially may indicate displacement.

Source: Coalition for a Livable Future, Regional Equity Atlas.

Displacement or tenure change?

Key Opportunity Areas There are challenges that are burdening everyone in the

community and region, but there are also uneven effects across groups, especially across the following domains: Education School poverty Achievement gaps Proficiency gaps

Housing Affordability Fair credit Homeownership and wealth

Economic Income disparities

Education Opportunities

Education: School poverty

The percentage of students in the region on FRL grew from 27.8% in 1999 to 35% in 2003.

The poverty of a school, more than the poverty of the individual, determines students’ educational outcomes

The 1966 Coleman Report concluded that concentrated poverty inevitably depresses achievement on a school-wide and a district-wide basis—the effects are not contained within school walls.

Data from the Regional Equity Atlas. The Coalition for a Livable Future. Research from Poverty and Race Research Action Council Annotated Bibliography: The Impact of School-Based Poverty Concentration on Academic Achievement and Student Outcomes.

School poverty contd. In 1999, 86 schools had >50% of students on FRL; in 2003, this

increased to 133 schools

The “tipping point” is the threshold at which problems spiral beyond the control of the school. Most experts place that point at 50%. At this point, all students’ prospects are depressed

The number of schools where 75.1-100% of students were on FRL doubled between 1999 and 2003 (from 15 to 30)

Once the concentration of poverty in a district reaches 60% or above, the district can no longer rely on its own internal efforts to improve outcomes

Data from the Regional Equity Atlas. The Coalition for a Livable Future. Research from Poverty and Race Research Action Council Annotated Bibliography: The Impact of School-Based Poverty Concentration on Academic Achievement and Student Outcomes.

Education: Attainment GapsGraduation Rates

2009 for 3 largest school districts in Multnomah County:

• PPS: 52%• Reynolds: 51%• David Douglas:

62%

Source: Coalition of Communities of Color and Portland State University. “Communities of Color in Multnomah County:An Unsettling Profile.” 2010

Education: Proficiency Gaps

• Everyone’s proficiency declines over time, but students of color fare much worse and persistent achievement gap;

• Is a 59% math proficiency rate OK for tenth graders? We know a 38% is not.

•What’s our goal?


Housing Opportunity

Housing: Affordability

• In 2000, nearly 20% of renters spent more than 50% of income on rent.

• One study found that for families with children paying more than 50% of their income on rent, they spent 30% less on food, 50% less on clothing, and 70% less on healthcare. Partnership for America’s

Economic Success, 2010.“The Hidden Costs of the Housing Crisis: The Impact of Housing on Young Children’s Odds of Success.”


Housing: Fair Credit

• Black borrowers were also 1.6-2.2 times more likely to refinance through subprime lender, and Latinos were 2.7-3.4 times more likely, than similarly-situated white borrowers. (Regional Equity Atlas)

Source: Table from Coalition of Communities of Color and Portland State University. “Communities of Color in Multnomah County:An Unsettling Profile.” 2010

Predatory subprime lending had little to do with sustainable homeownership for families, and more to do with equity stripping.

Housing: Homeownership and Wealth

• Minority homeownership gap has been increasing over time• In Clark, Multnomah, and Washington counties, homeownership rates for people of color lag not only whites, but national rates for the same racial groups.

Disparities in homeownership translate into disparities in wealth.• Homeowners of color are more reliant than white households on housing for

wealth, with 95% of wealth for Black households, and 96% of wealth for Hispanic households derived from their primary residence, compared to 70% of white wealth. (http://sociology.ucsc.edu/whorulesamerica/power/wealth.html)


http://sociology.ucsc.edu/whorulesamerica/power/wealth.html�

Economic Opportunity

Economic: Income Disparities


White families

are making 4.6 times that of families of color

White families

are making about 1.1

times that of families of color

Economic: Income Disparities contd.


This is a

tenfoldincrease

in disparity

since 1995;white

families’ incomes are 2.2 times

that of families of color

Everyone is worse off, but white

families still

making 7 times that of

families of color

A Closer Look…

In Decile 1: White families experienced a 55% decrease in incomeFamilies of Color experienced a 71% decreaseIn Decile 5 (middle class):White families income essentially remained unchanged, declining by 1.4%Families of Color experienced a 11% decrease

1979 2007

White Families Families of Color White Families Families of Color

Decile 1 $11,025 $2,400 $5,000 $700

Decile 5 $55,799 $35,998 $55,000 $32,000

Decile 10 $137,409 $122,502 $260,000 $116,500

What’s our goal? How do make sure allfamilies are sharing in region’s

prosperity?

How do we change this geography?Change our systems and structures

Growing Together

“Equitable regionalism affirms the need for every community to have a voice in the resource development and future of the region. It builds and sustains region-wide, collaborative institutions with inclusive representation and a common goal: improving the health of the whole and expanding opportunity for all people and communities across the region. Equitable regionalism requires comprehensive and strategic investment in people and neighborhoods.”

“Regionalism: Growing Together to Expand Opportunity for All.” 2007. Summary report, pp. 1-2.

Strategies for Growing TogetherThink in new waysTalk in new waysAct in new ways

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Thinking in New Ways:Transformative Thinking

transformative thinking to combat structural racialization; we need to find new approaches.

personal and social responsibility are important: we should maintain them in our advocacy and analysis

approaches should consider the structures and systems that are creating and perpetuating these disparities and work to reform them for lasting change.

Talking in New WaysI. How do we talk about race?II. Targeted universalism—a new frame for dialogue (beyond

disparities)

I. How to Talk about Race

Speak on structures and systems rather than explicit individual action/reaction

Speak on the subconscious—the implicit bias that is stored within the mind

Speak on relationships—build collaborations and engage in real discussion

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II. Targeted universalism as communication strategy

Moves beyond the disparities frame

Focuses on the universal goals shared by all the communities while being sensitive to the targeted strategies that are responsive to the situation of marginalized communities

Acting in New WaysI. Engagement and inclusionII. Targeted universalism as policyIII. Opening access through people, places, and linkages

I. Engagement and Inclusion

“That historically disadvantaged communities, especially communities of color and those living in poverty have a voice and are represented in all decision making to assure that the benefits and burdens of growth and change are distributed equitably.”

“While this consortium of regional partners is initially designed to develop the Housing Equity and Opportunity Strategy, the intent is to have the consortium develop a governance structure to oversee the implementation of regional housing and equity measures on an on-going basis.”

“Grant funding will be used to involve community-based organizations (as well as local governments) in specific tasks and decision-making related to the regional housing strategy with the objective of having increased capacity and capability to engage in decision-making beyond the duration of the grant.”

From Vision Statement and Declaration of Cooperation

II. Promote Universal Policies in Targeted Ways

• There is no “one size fits all”• “One vision, many paths”• Process:

• What is the goal?• How do we tailor

strategies to different groups, who are differently situated, to lift them to that goal?

III. Opening AccessKirwan’s Opportunity Communities Model

A Multi-faceted Approach:Strategies for Connecting to Opportunity

The Sustainable Communities Regional Planning GrantAligning your proposal with HUD

Considering people, places, and linkages

Activities should: Affirmative further fair housing and promote affordable housing in high

opportunity areas (23) Promote greater transit supportive development (incorporating to the

degree possible the full range of housing to all ranges of family incomes)…[provide] improved service for historically marginalized populations and viable alternative to automobile ownership (24)

Avoid adverse environmental impacts on neighborhoods through careful planning and siting of housing and community facilities (25)

Redress persistent environmental justice concerns in communities (25) Promote inclusion of underrepresented populations in economic

sectors…and training to support the full range of workforce and worker needs in the region (26)

Discussion Defining universal goals and benchmarks Developing targeted strategies

“Applicants will be evaluated on their ability to identify the outcomes they seek to achieve, the clarity with which they articulate the elements of the Regional Plan for Sustainable Development that will help achieve those outcomes, and the specificity of the benchmarks that they establish to measure progress toward a completed product that guides all of the necessary work.”

www.KirwanInstitute.org

KirwanInstituteon:

www.race-talk.org

Growing Together to Expand Opportunity for All in the Portland Region

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