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Race and City-County Consolidation : Black Voting Participation and Municipal Elections

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Race and City-County Consolidation : Black Voting Participation and Municipal Elections University of Louisville ThinkIR: The University of Louisville's Institutional Repository Electronic Theses and Dissertations 5-2009 Race and city-county consolidation : black voting participation and municipal elections. Angela Stallings Hagan University of Louisville Follow this and additional works at: https://ir.library.louisville.edu/etd Recommended Citation Hagan, Angela Stallings, "Race and city-county consolidation : black voting participation and municipal elections." (2009). Electronic Theses and Dissertations. Paper 559. https://doi.org/10.18297/etd/559 This Doctoral Dissertation is brought to you for free and open access by ThinkIR: The University of Louisville's Institutional Repository. It has been accepted for inclusion in Electronic Theses and Dissertations by an authorized administrator of ThinkIR: The University of Louisville's Institutional Repository. This title appears here courtesy of the author, who has retained all other copyrights. For more information, please contact [email protected]. RACE AND CITY-COUNTY CONSOLIDATION: BLACK VOTING PARTICIPATION AND MUNICIPAL ELECTIONS By Angela Stallings Hagan A Dissertation Submitted to the Faculty of the Graduate School of the University of Louisville in Partial Fulfillment of the Requirements for the Degree of Doctor of Philosophy School of Urban and Public Affairs University of Louisville Louisville, KY May 2009 RACE AND CITY-COUNTY CONSOLIDATION: BLACK VOTING PARTICIPATION AND MUNICIPAL ELECTIONS By Angela Stallings Hagan BA, University of Illinois Urbana-Champaign, 1997 MPA, University of Louisville, 1998 A Dissertation Approved on April 8, 2009 by the following Dissertation Committee Di~sertation Co-Director Dissertation Co-Director 11 DEDICATION This dissertation is dedicated to my husband Kenneth H. Hagan, Jr. and to my parents Ronald E. Stallings and Alice A. Stallings who have given me unconditional support III ACKNOWLEDGMENTS I would like to express gratitude to my co-chairs, Dr. Hank Savitch and Dr. Ron Vogel, for their encouragement throughout the extended dissertation process as well as throughout my graduate studies. Several people deserve recognition for assisting in data collection and/or providing information in the study cities: In Nashville, Joan Nixon of the Davidson County Elections Commission provided election reports electronically, saving me an additional trip. Nicholas Lindeman of the Nashville-Davidson County Metro Planning Commission provided some Census maps and data electronically. Archivist Ken Fieth (Nashville-Davidson County Metro Archives) provided invaluable knowledge and assistance in locating old electoral maps and historical data no longer stored by local government offices. In Jacksonville, Cory Sawyer, City of Jacksonville Planning and Development, assisted with GIS mapping of pre- and post-consolidation boundaries. The Duval County Supervisor of Elections Office staff allowed me direct access to electoral records and maps and even gave me comfortable workspace for several days. Special thanks to Beth Fleet, who pulled files for me and made other contacts, and Andy Montgomery, who assisted with copying files and creating maps and reports for me. Two retired professors, James Crooks, Ph.D., retired professor, University of North Florida, and Bert Swanson, Ph.D., retired professor, University of Florida, provided wonderful insights into the history and politics of the Jacksonville consolidation. In Louisville, Lisa Kraft, Jefferson County Board of Elections, researched map files and provided copies, and Eric Schneider of the Urban Studies Institute at the University of Louisville, assisted with GIS mapping of an electoral district map layered with Census tracts. Most of all, I thank my husband, Ken, for his financial and emotional support through the years, and my parents, for encouraging me to never give up and providing incentives to finish. IV ABSTRACT RACE AND CITY-COUNTY CONSOLIDATION: BLACK VOTING PARTICIPATION AND MUNICIPAL ELECTIONS Angela Stallings Hagan April 8, 2009 Despite the fact that few large metropolitan areas have had city-county consolidations, interest remains high in these mergers as a means of restructuring urban government. Evaluation literature on city-county consolidations generally focuses on the criteria of efficiency and efficacy, not equity. Economic growth, cost savings, and tax levels and service provision are discussed more than the distribution of resources and power. There is a particular dearth of literature on political equity as it pertains to racial minorities. This study attempts to fill that void through the examination of black political participation levels prior to and following the four large- scale city-county consolidations in the last century: Nashville-Davidson County; Jacksonville- Duval County; Indianapolis-Marion County; and Louisville-Jefferson County. A common argument against consolidation is that it dilutes minority voting strength since urban minority populations have historically been concentrated in central cities. It is posited that black voter participation will decrease following consolidation due to a perception of loss of power. Further, sub-hypotheses positing that participation will vary among black voters according to socioeconomic status are explored. Mixed results are found in terms of turnout over time among the cities. v TABLE OF CONTENTS PAGE DEDiCATION .............................................................................................................iii ACKNOWLEDGMENTS ...............................................................................................iv ABSTRACT ................................................................................................................v LIST OF TABLES .......................................................................................................vii LIST OF FIGURES ......................................................................................................ix CHAPTER I. INTRODUCTION/LITERATURE REViEW .................................................... 1 II. RESEARCH QUESTIONS AND METHODOLOGY ...................................... 19 Research Premise and Methodology Overview .................................. Questions and Hypotheses ............................................................. Data and Operationalization ........................................................... III. NASHVILLE-DAVIDSON COUNTY BACKGROUND .................................... 28 IV. NASHVILLE-DAVIDSON COUNTY DATA AND ANALYSIS .......................... 39 V. JACKSONVILLE-DUVAL COUNTY BACKGROUND ...................................57 VI. JACKSONVILLE-DUVAL COUNTY DATA AND ANALYSIS .......................... 69 VII. LOUISVILLE-JEFFERSON COUNTY BACKGROUND .................................86 VIII. LOUISVILLE-JEFFERSON COUNTY DATA AND ANALYSIS ........................ 94 IX. CONCLUSiONS .................................................................................11 0 REFERENCES ........................................................................................................115 APPENDIX A: TECHNIQUES FOR MATCHING GEOGRAPHY ........................................ 122 APPENDIX B: INDIANAPOLIS-MARION COUNTY ......................................................... 124 CURRICULUM ViTAE ...............................................................................................130 VI LIST OF TABLES TABLE PAGE 4.1 Composition of 70% Majority Black Tracts in Nashville-Davidson County, 1950-1960 ........ .42 4.2 Composition of 70% Majority Black Tracts in Nashville-Davidson County, 1970 .............. .43 4.3 1955 Nashville Mayoral Election Turnout, Majority Black Tracts ................................... .43 4.4. 1959 Nashville Mayoral Election Turnout, Majority Black Tracts ................................... .44 4.5. 1962 Nashville Mayoral Election Turnout, Majority Black Tracts ................................... .45 4.6 1966 Nashville Mayoral Election Turnout, Majority Black Tracts ................................... .46 4.7 1971 Nashville Mayoral Election Turnout, Majority Black Tracts ................................... .47 4.8 Comparison of Voter Turnout Over Time, Nashville ................................................... .49 4.9 Comparison of Educational Attainment (median for population 25 and older) and Voter Turnout by Tract, Nashville, 1955 - 1966 ................................................... 53 4.10 Comparison of Household Median Income (as percentage of area median income) and Voter Turnout by Tract, Nashville, 1955-1966 ...................................................... 54 4.11 Comparison of Tenure (homeownership percentage)and Voter Turnout by Tract, Nashville, 1955-1966 ...........................................................................................55 4.12 Black Turnout Changes and Possible Factors ...........................................................55 6.1 Voter Registration and Participation Profile, Jacksonville Mayoral Elections, 1963-1979 ..... 71 6.2. Composition of 70 % Majority Black Tracts in Jacksonville-Duval County ........................ 72 6.3 1963 Jacksonville Mayoral Election Turnout, Majority Black Tracts ................................73 6.4 1967 Jacksonville Mayoral Election Turnout, Majority Black Tracts ................................74 6.5 1971 JacksonVille Mayoral Election Turnout, Majority Black Tracts ................................75 6.6 1975 Jacksonville Mayoral Election Turnout, Majority Black Tracts ................................76
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