Chapter 14 – Counties, Cities, Villages & Townships
14.14 Fragmentation in Northeast Ohio
Local government fragmentation refers to the distribution of power across many small local governments within a given area. In Northeast Ohio, this fragmentation is evident, with numerous cities, villages, townships, special districts, and school districts operating independently. This region alone has 485 separate local governments, including 146 cities and villages, 112 townships, 113 special districts, and 114 school districts. The sheer number of these local entities means that decision-making power is dispersed among many different bodies, each responsible for specific services and policies within their jurisdiction.
One of the primary benefits of having so many local governments is that it allows for greater representation and responsiveness to the specific needs of smaller communities. Residents can choose to live in communities that best match their preferences for services and taxation levels, a concept known as “voting with your feet.” This competition among local governments can lead to more efficient and tailored services, as each entity strives to attract and retain residents by meeting their unique needs. Additionally, fragmentation can foster innovation and new ideas, as multiple governments can experiment with different approaches to common problems, potentially leading to better overall solutions.
However, this fragmentation also comes with significant costs. The existence of numerous local governments can lead to redundancies and inefficiencies. For example, having multiple human resources or public works departments within a single county can result in unnecessary duplication of efforts and resources. This can be costly and may lead to inconsistencies in service delivery across neighboring areas. Another example has to do with fire departments. Two fire departments might be a mile apart, but they both buy the same kind of ladder truck or other equipment. Ladder trucks are seldom used but cost up to $1.4 million each.
Fragmentation can exacerbate inequalities between affluent and poorer communities, as wealthier areas can afford better services, leaving disadvantaged regions with fewer resources. This can also contribute to suburban sprawl, as local governments may prioritize developing open spaces for economic gain rather than preserving them, weakening the urban core and spreading resources thinly across a wider area.
Suburban sprawl is the uncontrolled expansion of suburban areas into the surrounding countryside, characterized by low-density residential and commercial development. Suburban sprawl often leads to increased reliance on automobiles, loss of open spaces and farmland, and greater environmental impacts. It typically results in extended infrastructure needs, such as roads and utilities, and can contribute to longer commutes, traffic congestion, and decreased community cohesion.
In addition, a group of researchers in St. Louis identified several specific downsides to local government fragmentation that are also relevant to Northeast Ohio:
- With many cities and towns competing for sales-tax money, they end up offering bigger incentives to developers, which can be wasteful.
- Each city and town has its own rules for business licensing and permitting. This makes it expensive and time-consuming for contractors who work in different areas. It’s a problem because it can discourage businesses from operating in multiple municipalities, limiting their growth and opportunities.
- Some cities depend too much on money from their municipal courts to pay for their budgets. This is unfair and problematic because it can lead to excessive fines and penalties for residents, creating financial burdens and mistrust in the legal system.
- The quality of policing varies a lot among the 55 different police departments in the City of St. Louis, St. Louis County, and the 88 municipalities.
- Because there are so many separate local governments, the region struggles to have a unified vision and speak with one voice when trying to attract businesses.
- Life expectancies can be very different from one zip code to another, showing inequality in living conditions.
- The area spends $213.16 per person to run the government, which is much higher compared to $126.73 per person in Louisville, a similar city (Krouse 2019).
While the fragmented system of local government in Northeast Ohio allows for tailored and responsive services to specific community needs, it also brings challenges of inefficiency, redundancy, and inequality. The debate over whether to maintain this system or move towards a more consolidated approach is ongoing, with strong arguments on both sides. Ultimately, the goal remains to balance effective local governance with the efficient use of resources to serve all residents equitably.
References
Downs, Anthony. 1994. New Visions for Metropolitan America. Washington, DC: Brookings Institution.
Krouse, Peter. 2019. “St. Louis Tried to Merge Its Way to a More Prosperous Future But Couldn’t Pull It Off.” Cleveland Plain Dealer, May 19.
Tiebout, Charles M. 1956. “A Pure Theory of Local Expenditures.” The Journal of Political Economy, 64(5):416-424.
The U.S. Census of Governments
