Introduction

The goal of this toolkit is to generate ideas for municipalities and local leaders in the Southern United States to promote class equity in their communities. While progressive policies frequently and increasingly face resistance in Southern state legislatures, local governments often have the authority to implement initiatives that directly address inequities and improve the quality of life for underserved and marginalized populations.

Importance of Equity in Municipal Governance

As set forth in President Biden’s Executive Order on Advancing Racial Equity and Support for Underserved Communities Through the Federal Government, “[a]ffirmatively advancing equity, civil rights, racial justice, and equal opportunity is the responsibility of the whole of our Government.” While this Executive Order focused on the role of the federal government in advancing equity, the statement holds true for our local and municipal governments as well. When municipalities prioritize equity, they can directly address specific systemic barriers and uplift historically marginalized citizens of their communities, making the entire locality more resilient, economically vibrant, and inclusive. From providing fair housing and employment opportunities to developing infrastructure that serves all residents, equity-centered policies create long-term benefits that ripple throughout the community. Local governments have the unique ability to act as change agents, creating policies and practices that advance fairness without waiting for statewide legislation.

Dillon v. Home Rule Overview

Understanding the legal framework within which your municipality operates is critical when pursuing equity initiatives. Two primary doctrines govern local authority in the United States: the Dillon Rule and the Home Rule. Understanding which rule governs your municipality is essential for ensuring that your equity initiatives are both legally sound and effective. Whether under Dillon or Home Rule, local leaders can still drive meaningful change by tailoring their strategies to their specific legal context.

  • Dillon Rule: Under the Dillon Rule, local governments have limited authority and can only exercise powers that are explicitly granted to them by the state legislature. This doctrine limits the scope of local initiatives unless the state has given express permission. Municipalities operating under the Dillon Rule should ensure that their equity initiatives align with state law to avoid overstepping their authority.
  • Home Rule: In contrast, the Home Rule provides local governments with greater autonomy to govern themselves and enact policies unless explicitly prohibited by state law. Municipalities with Home Rule authority have more flexibility to implement progressive and equity-driven initiatives without waiting for state-level approval.

Part I: Assessing Current Equity Landscape

For municipalities committed to advancing racial and class equity, a critical first step is understanding the current landscape of inequities within their communities. This section will guide local leaders through the process of gathering and analyzing data to identify disparities and pinpoint priority areas of need. A thorough assessment provides the foundation upon which effective, equity-centered policies and initiatives can be built.

Data Collection & Analysis

A strong equity plan begins with reliable data. Collecting and analyzing data on various community metrics helps local leaders understand who is being left behind and where the greatest needs exist. Municipalities should focus on a few key areas when assessing their community:



Municipalities need to gather detailed information on the racial, ethnic, gender, and age composition of their community. Key data points should include information such as: population breakdowns by race, ethnicity, gender, and age; where different demographic groups across neighborhoods; and growth trends within these demographic groups.This demographic snapshot helps local governments identify which groups may be facing disparities and where they are concentrated, allowing for targeted equity initiatives.

Socioeconomic conditions are strong indicators of where inequities may be present in a community, such as income distribution and poverty rates by demographic groups, employment rates and types of employment across populations, homeownership rates, housing affordability, and access to quality transportation and other tools for economic mobility. Analyzing this data can assist municipalities with identifying patterns of economic inequity within their communities.

  • Equity means ensuring everyone has access to critical services and opportunities in a way that best meets their needs. By evaluating these access points, municipalities can better understand where barriers exist and which communities are underserved.Key areas to assess include:
    • Availability of public services such as healthcare, education, transportation, and social services by geographic area
    • Access to quality jobs, career development, and public infrastructure
    • Gaps in services for marginalized groups, such as language accessibility or digital divides

Identifying Disparities/Priority Areas of Need

Once data has been collected, municipalities must analyze the information obtained to identify disparities and determine priority areas of need. This process helps target interventions to where they will have the most impact. Below are five critical areas to assess for equity challenges:

Safe, affordable, and accessible housing is a cornerstone of equitable communities. Municipalities should assess:

  • Housing affordability and the availability of affordable housing units
  • Rates of homeownership and housing insecurity among marginalized groups
  • Zoning laws and practices that may contribute to segregation or displacement
  • Energy efficiency and living conditions of existing housing, particularly in low-income areas

Employment opportunities are central to economic equity. Municipalities should analysis information including:

  • Employment rates, income levels, and job quality by demographic group
  • Barriers to employment, including criminal records and lack of access to childcare or transportation
  • Pay equity between different racial, gender, and ethnic groups
  • The presence (or absence) of supplier diversity programs in municipal contracting

Education plays a critical role in shaping future opportunities. Municipalities should examine:

  • Disparities in access to quality schools, extracurricular activities, and educational resources
  • Graduation rates, test scores, and other indicators of educational success across demographic groups
  • Availability of workforce development programs and vocational training
  • Gaps in higher education access for marginalized communities

Health outcomes are often tied to social determinants of health, including income, housing, and education. Local leaders should assess:

  • Access to affordable healthcare, including mental health services
  • Disparities in health outcomes (e.g., maternal health, chronic diseases) across different demographic groups
  • Availability of clinics, hospitals, and healthcare providers in low-income areas
  • Public health resources addressing disparities in health outcomes

Equity in the criminal legal system is essential for fair treatment under the law. Municipalities should assess:

  • Racial and economic disparities in arrests, sentencing, and incarceration rates
  • The presence of diversion programs and support for re-entry after incarceration
  • Use of force and police engagement practices within different communities
  • Opportunities to implement restorative justice and other community-centered alternatives

Part II: The Social Determinants of Health Affecting Equity

Social determinants of health (SDOH) are the non-medical conditions in which people live, learn, work, and play that affect a wide range of health outcomes, quality of life, and overall well-being. These factors often shape inequities in health, access to resources, and economic opportunities in communities. Municipalities that address these interconnected determinants can make great advances in racial and class equity and foster healthier, more resilient communities.

Economic Stability

Economic stability is foundational for individual and community well-being. When people experience financial insecurity, it can lead to negative outcomes in many areas of life, including health, housing, and education. To assess and improve economic stability, municipalities should consider the following:

Are there job opportunities that provide livable wages, benefits, and long-term security for all residents, particularly marginalized communities?

High poverty levels and food insecurity create barriers to a healthy and equitable community. Programs like workforce development, living wage ordinances, and food assistance can help stabilize these areas.

Are underserved communities able to access affordable banking services, credit, and financial literacy programs? Predatory lending practices can exacerbate financial instability and must be addressed.

Economic stability is directly tied to housing costs. Rising rents, housing insecurity, and homelessness disproportionately affect low-income families and need urgent attention.

Education Access and Quality

Education is a key factor in determining long-term health and economic outcomes. Ensuring equitable access to quality education helps dismantle systemic barriers and opens pathways to opportunity. Municipalities should assess and prioritize:

Are there affordable, high-quality early childhood education programs in the community, particularly in underserved areas?

Assess disparities in school resources, graduation rates, teacher quality, and access to advanced coursework. Underfunded schools in marginalized communities often lead to poorer educational outcomes.

Are residents able to access affordable higher education, technical schools, or vocational programs that lead to meaningful employment opportunities?

 Inequitable access to digital tools and internet services can create learning barriers, especially in low-income or rural communities.

Health Care Access and Quality

Health care is critical to addressing the physical and mental health disparities that often exist in marginalized communities. Access to affordable, quality care is essential for advancing equity. Key areas for municipalities to assess include:

Are there enough healthcare providers, clinics, and hospitals in all areas, especially underserved or rural communities?

Are there programs to assist low-income individuals in accessing affordable health insurance and care? Municipalities should consider ways to close the gap in coverage.

How accessible are preventive services like vaccinations, screenings, and health education? Are there disparities in chronic disease rates and preventive care usage across racial and economic groups?

Access to mental health support is often limited in marginalized communities. Municipalities can implement programs to reduce mental health disparities and provide culturally competent care.

Neighborhood and Built Environment

The environment in which people live, including physical layout, access to amenities, and infrastructure, directly impacts health outcomes. Municipalities should focus on the following factors to improve equity through the built environment:

Are homes safe, energy-efficient, and affordable? Poor housing conditions can lead to negative health outcomes, from asthma to exposure to toxins like lead.

Does the community have accessible and affordable transportation options that connect residents to jobs, education, and healthcare? Lack of public transit or infrastructure disproportionately affects low-income families and those without access to private vehicles.

Are there food deserts where residents lack access to fresh, healthy foods? Municipalities can promote community gardens, farmers markets, or incentivize grocery stores to serve underserved areas.

Parks, recreational areas, and clean air/water are important for public health. Are these amenities equally distributed across all neighborhoods, or do marginalized communities suffer from environmental neglect?

Social and Community Context

Social cohesion and community support systems are essential to health and well-being. Positive social relationships and strong community networks can help buffer the negative effects of other social determinants. Municipalities can improve equity by addressing:

Are all residents, particularly those from marginalized groups, able to participate meaningfully in civic life and decision-making processes? Encouraging diverse representation in local governance can build stronger, more inclusive communities.

Do residents feel safe in their neighborhoods? Reducing crime and improving public safety in a way that is equitable and non-discriminatory is key to fostering a healthy community.

Are there adequate social services available to address family support, child care, mental health, substance abuse, and homelessness? Municipalities should assess where there are gaps in social infrastructure and work to fill them.

Are the cultural needs and contributions of diverse communities acknowledged and supported? Celebrating the diversity of the community and ensuring that local policies are culturally competent helps foster social cohesion.

Part III: Policy and Legislative Initiatives

In this section, we provide concrete examples of policy and legislative initiatives that municipalities can implement to advance equity in their communities. Each of these initiatives has the potential to address systemic inequities and create more inclusive, fair environments for all residents. Municipal leaders can tailor these approaches to fit the specific needs and challenges of their localities. While not an exhaustive list, we hope that the examples provided below can spark inspiration on initiatives that may be beneficial to advance equity on a local level in your community.

Ban-The-Box / Fair Hiring Ordinances

Ban-the-box initiatives and fair hiring ordinances are a powerful way to level the playing field for individuals with past convictions by removing the checkbox that asks about criminal history from job applications. These initiatives ensure that candidates are considered for their qualifications first, rather than being immediately disqualified because of a record. Municipalities can lead the way by passing ordinances that prohibit employers from asking about criminal history until after a conditional job offer is made. Additionally, local governments can partner with businesses to create reintegration programs that provide meaningful pathways to employment, helping formerly incarcerated individuals re-enter the workforce with dignity and opportunity

Supplier Diversity Programs

Supplier diversity programs and inclusive procurement practices are tools that ensure minority-owned, women-owned, and other historically disadvantaged businesses have equitable access to contracting opportunities with local governments. By setting clear diversity goals for city contracts and procurement processes, municipalities can intentionally create opportunities for underrepresented businesses to thrive. Local governments can also provide mentorship and capacity-building support to help small, diverse businesses compete successfully, while establishing a supplier diversity office or task force to track progress and hold the process accountable. These efforts not only promote equity but can also strengthen the local economy by fostering a more inclusive business environment.

Living Wage Ordinances

A living wage ordinance is a critical step toward ensuring that workers earn enough to meet their basic needs by setting a minimum wage higher than the state or federal standard. Municipalities can lead by example by implementing living wage requirements for city employees and contractors while extending those standards to businesses that benefit from city subsidies or tax incentives. By collaborating with local businesses and advocates, municipalities can thoughtfully phase in living wage standards over time, creating a fairer economy where workers are valued and families have a chance to thrive.

Workforce Development Initiatives

Workforce development programs are essential for equipping residents with the skills and opportunities they need to secure meaningful, sustainable employment. Municipalities can partner with community colleges and vocational schools to create job training programs that align with high-demand fields and establish apprenticeship programs that offer hands-on experience in growing industries. By focusing these efforts on underserved populations—such as youth, immigrants, and formerly incarcerated individuals—local governments can break down barriers to employment, strengthen the workforce, and create pathways to economic mobility for those who need it most.

Affordable Housing Policies

Ensuring access to safe, affordable housing is a cornerstone of advancing equity and building stronger, more inclusive communities. Municipalities can take bold action by implementing inclusionary zoning policies that require developers to include affordable housing units in new projects, ensuring housing options for families at all income levels. Additionally, offering incentives to developers who build affordable housing or rehabilitate existing units in underserved neighborhoods can expand access where it’s needed most. By establishing housing trust funds, municipalities can provide long-term financial support for affordable housing initiatives, creating lasting solutions to address housing insecurity and promote economic stability for all residents.

Health Initiatives

Health equity initiatives are essential to reducing disparities and ensuring that all residents, regardless of their circumstances, have access to quality care. Municipalities can play a critical role by expanding access to preventive care and mental health services, particularly in underserved communities where these resources are often scarce. Addressing food deserts is another key priority, whether by creating community gardens or incentivizing grocery stores to serve low-income areas, so residents have reliable access to healthy foods. Public health campaigns focused on chronic disease prevention and wellness can also make a significant impact, especially when they are tailored to meet the needs of vulnerable populations, fostering healthier and more resilient communities.

Law Enforcement Initiatives

Equity-focused law enforcement initiatives are critical to addressing racial disparities in policing and fostering safer, more inclusive communities. Municipalities can lead this effort by implementing community policing models that prioritize building trust and collaboration between law enforcement and the communities they serve. Establishing civilian review boards provides necessary oversight, ensuring accountability and transparency in police practices. Additionally, promoting de-escalation techniques and non-lethal interventions through targeted training equips officers with the tools to handle situations more effectively and equitably, ultimately creating a public safety system rooted in fairness and trust.

Grant Opportunities

Providing grant opportunities to community organizations that serve marginalized populations is a powerful way to advance equity at the grassroots level. Municipalities can drive meaningful change by establishing local grant programs that fund initiatives focused on reducing disparities in education, healthcare, housing, and employment. Prioritizing funding for organizations working directly with underserved communities ensures they have the resources needed to make a lasting impact. By creating a streamlined, accessible application process, municipalities can reduce bureaucratic barriers and ensure small organizations and community groups have a fair shot at securing the support they need to serve their communities.

Conclusion

As municipalities across the country face a rapidly shifting political and governance landscape, this toolkit lays the groundwork for advancing equity in meaningful and actionable ways. Moving forward, EPU will continue to develop and publish additional toolkits that deepen this work, including case studies highlighting successful policy and legislative initiatives implemented nationwide, with a particular focus on examples from the South. These real-world successes will provide concrete guidance and inspiration for local governments ready to step up in new and bold ways.

Future resources will also explore critical next steps for implementation, such as effective stakeholder engagement, public communication through awareness campaigns, and transparent reporting of outcomes. In this new wave of governance, it will be more important than ever for local leaders to rise to the moment, embracing their role as innovators and driving progress in ways that meet the challenges of our time with courage, creativity, and purpose.




What Comes Next?

EPU serves as a resource to community leaders, policymakers, and advocates across the South to help them take actionable steps to accelerate positive change. These resources include, but are not limited to:

  • Research and analysis
  • Technical assistance
  • Policy development

We would love to connect with you and discuss the change you want to make. Here are ways you can contact us.

E-mail Us

We can be reached at info@unumfund.org

Visit Us

Visit our EPU Policy page for more information.

Additional Resources

See all our policy toolkits and Big Ideas for Racial Equity.