Historical Redlining and Contemporary Federal Place-Based Policy: A Case of Compensatory or Compounding Neighborhood Inequality?

Abstract

In the 1930s, the federal Home Owners' Loan Corporation (HOLC) created maps of American cities that were used to restrict investment in minority neighborhoods, leaving a durable mark on redlined neighborhoods. Since the 1990s, place-based policies are one tool the federal government has used to reinvest in disadvantaged neighborhoods. Do these programs target historically redlined neighborhoods—and to what effect? In this article, we combine data on federal place-based initiatives from 1990 to 2015 and historical HOLC maps to answer these questions. Results indicate that formerly redlined areas received substantially more funding than areas graded more favorably, indicating concentrated investment in neighborhoods that had experienced disinvestment. Federal place-based funding was associated with increased property values in formerly redlined areas, but also reductions in the share of Black homeowners, suggesting racial disparities in who benefits from rising property values. We conclude by discussing the potential and the challenges of place-based policy to address urban inequality.