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NorthSide: History and Demographics

Summary
At its peak, St. Louis was the fourth largest city in the United States. Its central location, availability of transportation options, and proximity to agricultural resources helped the city grow and prosper for more than a century after its incorporation by Missouri. However, in the middle of the twentieth century, a combination of forces caused the city to decline in population, industry, and national prominence. This decline is most apparent in the area immediately north of downtown St. Louis, the NorthSide, where a massive exodus of residents, failed housing projects, and segregation politics, among other factors, has produced an area with the highest unemployment, the lowest education attainment, and the lowest incomes of any other area in the city. This story is about an area of the City of St. Louis that was once one of the most densely populated areas in the city. The areas growth was more rapid and steep than St. Louiss and its decline was more dramatic. It begins with the founding of St. Louis. France, what would eventually become the Gateway City received its founder, Pierre Laclede Liguest, in March of 1864; he named it after the reigning king of France at the time, Louis XV (Shepard, 11). At Uirst, St. Louis grew at a relatively slow pace. The citys population was 925 inhabitants in 1799 and 1,400 in 1810 (Shepard, 42). In between that time, the United States purchased the territory encompassing St. Louis and all of Missouri in the much renowned Louisiana Purchase. The explorers assigned to survey the territory, Meriwether Lewis and William Clarke, would return and each govern

St. Louis
At the time of its settlement, few would expect St. Louis to become the fourth largest city of the United States and the Gateway to trade and expansion in the west. After the peace of Paris, in 1763, made the Mississippi the line between the possession of England and

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Figure 1: The Settlement of St. Louis

the territory of Louisiana, Lewis from 1807 until 1809 and Clarke from 1813 until Missouri entered the federal union in 1821. During that time, St. Louis was governed by a board of Uive Trustees, elected annually by the people, who appointed a register to write out their ordinances and see that they were enforced, (Shepard, 63). John A. Paxton, a St. Louis citizen at the time, published his St. Louis Directory and Register and provided a snapshot of the citys commerce. The directory included: three newspapers, three large inns, thirteen shoemakers, twenty-eight carpenters, Uifty- seven groceries (saloons), and twenty-seven

attorneys bookstores, binderies, gunsmiths, stonecutters, bricklayers, plasterers, bakers, cabinetmakers, wheelwrights, hatters, a brewery, a nail factory, a public market, professional musicians, and Uive billiard halls (Primm, 104). Shortly after the state was admitted into the union, the Missouri legislature adopted St. Louis, designating it as the City of St. Louis and provided for its governance structure (Shepard, 66). Before long, St. Louiss economy would rely on its location, speciUically its proximity to the Mississippi River. Consequently, steamboats were an early driver of the citys success. The number of

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Table 1: St. Louis Facts (1821)

Population Estimated Annual Value of Trade Assessed Value Taxes Collected Number of Housing Units
Source: Early History of St. Louis and Missouri (Shepard, 63-65)

4,800 $600,000 < $1,000,000 < $4,000 600

steamboats that anchored in the citys harbor increased from 290 in 1827 to 1,355 in 1836, which helped St. Louiss primary industry, fur trade, grow during the same time period (Primm, 104-105). If there was any decade that was paramount to St. Louiss success, perhaps it was the 1830s. While still in its infancy, the Missouri legislature and the City of St. Louis enacted policies that would strengthen the economy and create opportunities for its citizens; the state chartered a number of railroads that criss-crossed the state and the city started a public school system. During the middle of the 19th century, industries grew in the city, taking advantage of St. Louiss unique and advantageous location and proximity to agricultural commodities (Troen, 3). Community leaders successfully advocated for the expansion of the railroad industry in St. Louis as well as Missouri, which further sharpened the regions economic prowess. The city led the nation in Ulour-

milling, and its meatpacking, metalworking, brewing, and saddle- and harness-making industries grew rapidly (Primm, 129). As the citys industries expanded, so did its population, increasing to 6,649 in 1830, more than doubling from that amount in 1840 to 16,439, and then nearly growing at a rate of Uive times that amount in 1850 with a count of 77,680 (Shepard, 95) (Primm, 113). The citys population continued to grow at a feverish pace, doubling twice in the next twenty years, increasing to more than 160,000 in 1860 and then to more than 310,000 in 18702. By the end of the nineteenth century, St. Louis had grown so much that it was the fourth largest city. Shortly before the turn of the century, a gentleman by the name of William Reedy published an essay in his magazine, The Mirror, which challenged St. Louisans to work toward hosting a Worlds Fair in 1904 as a tribute to the 100th anniversary of the Louisiana Purchase. Residents of the city met his challenge, introducing a new commitment to civic engagement in St. Louis at the dawn of

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St. Louis and Its Expanding Borders in the Nineteenth Century

As St. Louiss population increased, so did its borders. Gradually expanding in land mass from 1764 to what would be considered today the heart of downtown in 1839, the city subsequently expanded four times after: In 1841, when its southern border stretched almost to Arsenal Street, its western border nudged against Union Station, and its northern border was approximately two and one-half miles from where the Arch stands today; In 1855, when Keokuk Street assumed its southern border, its western border extended past Grand Avenue, and its northern border stopped just short of Bissels Point Water Works; In 1870, when the southern border reached further south to include the Town of Carondelet; and In 1876, when St. Louis City and St. Louis County entered into the Great Divorce, a separation agreement between the two entities that resulted in the current boundaries of the City (Corbett, 13).

the twentieth century (Sandweiss, 237-238). More than 1,300 new structures and the third modern Olympiad attracted visitors to the fair from all over the world (Mendelson, 152).

A City Plan for St. Louis and Harland Bartholomew

Fresh from the success of the 1904 Worlds Fair, which showcased St. Louis with an exhibition called the Louisiana Purchase Exposition, civic engagement, especially by the citys businesses and cultural leaders, was at an all-time high. A group called the St. Louis Civic League authored a plan to move St. Louis forward. Their written guide, A City Plan for St. Louis, was a deliberate strategy to treat the city as a coherent, integrated whole. Just like a living organism, the functions of one component of the city affected all others. As a result, the elements of the city had to be

planned in a comprehensive fashion (Abbott, 17-18). The plan was developed by one general committee and Uive other committees that tackled subjects such as inner and outer parks, civic centers, street improvements, municipal arts, and legislation. In the statement of the Executive Board of the St. Louis Civic League that accompanied the report, the board recognized that competition among cities in the United States was growing and St. Louis would need to invest in the broad array of urban amenities that both its current population and future population would demand (St. Louis Civic League, 9). Yet they also were cognizant of the fact that their proposed plans would not all occur immediately, but would furnish a guide, so that when a public building is erected, the park system extended, or a statue located, it will be done right instead of wrong, and some

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Figure 2: St. Louis in 1896

effort will be made toward the attainment of the practical ideals included in these recommendations (St. Louis Civic League, 9). While the plan contained grand goals and an awe-inspiring vision for the city, it failed to provide a roadmap for its implementation (Heathcott, 87). As a result, eight years after the plan was submitted to the citizens of St. Louis, city leaders recruited Harland Bartholomew to the city to implement it as the City Engineer (Heathcott, 86). Already a rising star in the Uield of civil engineering and city planning, Bartholomew utilized his talents to develop a transportation plan for the city and

secure passage of an $87 million bond issue in 1923 that helped fund street improvements, sewer construction, river channeling, parks and playgrounds, public hospitals, Uirehouses and equipment, rail and auto bridges, public markets, waterworks upgrade, power plant, and the municipal auditorium and downtown plaza and memorial (Heathcott, 91-92). Bartholomew would eventually become one of the most well respected authorities of city planning in the nation. He continued to plan for the city throughout the 1930s and 1940s, but many of his efforts stalled due to the Great Depression and the onset of World War II.

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The 1947 Comprehensive City Plan

Bartholomews role in the city would lead him to draft the next comprehensive plan for St. Louis. Following the practice of other large cities in the nation, the City Engineer pushed the city to adopt a new plan, one with more of an ofUicial capacity than the ones he had drafted in previous decades (Abbott, 109-112). The new plan called for growth in both the St. Louis City as well as St. Louis region It estimated that the citys population would grow to 855,000 in 1950, to 880,000 in 1960, and then to 900,000 by 1970 (City Plan Commission, Table Number II). Comprehensive was an apt description as the document addressed a variety of issues confronting the city including zoning, land use, housing, street systems, air Uields, the central business district, public transportation, parks, and neighborhoods. The authors were conUident that if the plan was followed, the city would enjoy growth and prosperity over the next 25 years.

Table 2: History of St. Louiss Population

Year 1821 1830 1840 1850 1860 1870 1880 1890 1900 1910 1920 1930 1940 1950 1960 1970 1980 1990 2000 2010 Sources: United States Bureau of the Census, 1990 Census of Population and Housing Table 46: 593-595 United State Bureau of the Census, Table 1: The Most Populous Counties and Incorporated Areas in 2010 in Missouri: 2000 and 2010 Population 4,977 6,649 16,469 77,680 160,773 310,864 350,518 451,770 575,238 687,029 772,897 821,960 816,048 856,796 750,026 622,236 452,801 396,685 348,189 319,294

The Decline
In spite of all of these grand plans set forth by the City Planning Commission and Bartholomew, something happened between the 1950 and 1960 censuses; St. Louiss population declined1. Unfortunately, this would not be an isolated incident. The population has declined in every decennial census since. Most recently, St. Louiss 2010 population of 319,294 was just 37% of what it was at its peak, 856,796, in 1950.

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Bartholomew On Movement of City Residents to the Suburbs Harland Bartholomew recognized this movement relatively early in the twentieth century; he noted this westward trend in relocation with great alarm, arguing that the Ulight to the suburbs only extended the worst aspects of cities while bringing higher infrastructure costs and diminished returns from ratable property (Heathcott, 90).

Figure 3: St. Louis City: Density of Population, 1940 and 1970 Projected

Source: Comprehensive City Plan 1947, Plate Number Four

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Scholars give many reasons for this decline. Many city residents Ulocked to St. Louis County or one of the other nearby counties. There they could purchase cheap land and live in the increasingly popular suburbs. Barbara Williams, in a 1973 report titled St. Louis: A City and Its Suburbs, set forth her reasons: Decline in St. Louis is mainly a function of the same trends that have stimulated movement from central cities to suburbs across the United States. The fast-paced decentralization of all American urban areas since World War II has been stimulated mainly by the desire for living amenities and productive facilities that could be provided most easily and cheaply at the periphery of cities. Rising incomes and improved transportation systems have facilitated the move to the suburbs. Certain federal policies- real estate tax incentives, interstate highway development, FHA and VA programs- have accelerated these trends (Williams, v). Williams goes on to cite St. Louiss aged and costly housing and commercial properties as a compounding factor in the citys decline (Williams, vi). Another author cited numerous causes, including post-World War II prosperity; construction of the interstate highway system; race; cheap, easy-to-develop Ulat land in the surrounding area; the dramatic rise in automobile ownership; and the fact that St. Louis cannot annex (take over) its suburbs like other cities such as Phoenix, Arizona (Stanley, 127). Mendelson and Quinn

describe the citys decline in terms of its industries functional obsolescence, speciUically citing the leather and apparel goods, shoe, meat packing, textile, and beer producing industries (Mendelson, 152-153).

The NorthSide
The history of the NorthSide2 is nearly as rich as St. Louis itself, and even more tragic. The area known as Old North St. Louis was included in the City of St. Louis limits in 1841. Around the same time, Germans moved into the adjacent area known today as Carr Square; soon after, Irish, Italian, Polish, and Jewish immigrants congregated in the area as well (Schweyte Architects, ESS 2-3). In the following decades, the NorthSide area grew in population as well as industry as more immigrants poured into the area (Schweyte Architects, ESS 2-2 to 2-4). The settlers were poor and consequently they moved into the least expensive and most dilapidated dwellings in the City (HUD, 2). However, the composition of the community would change in the early twentieth century; as these groups [immigrants] improved their socioeconomic status, they began to move into better quality housing in other parts in St. Louis, leaving their previous housing to the black migrants from the south (HUD, 2). As a result, what was once a bustling economic engine for the city in the 1870s has morphed into what a 1975 report referred to as one of St. Louiss Depletion Areas, or areas of spotty city services and red lining, where large numbers of the unemployed, the elderly and the recipients of welfare are left to wait for

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assistance which does not seem to be forthcoming (Team Four Inc., 15).

Table 3: Population of the NorthSide

Year 1970 1980 1990 2000 2010 Population 56,352 25,377 21,120 14,781 14,821

Source:American Community Survey 2010, 5-year estimates

other black families (Gordon, 11). Federal and local governments made an attempt to at least partially bridge this racial split by introducing a monstrous housing project in the NorthSide area in the 1950s. Pruitt Homes and Igoe Apartments provided housing for more than 2,700 households; the Pruitt dwellings were designated for blacks and the Igoe housing for both blacks and whites. However, the white population was never sizable in relation to the black population. This discouraged further white occupancy and the project eventually became entirely black (HUD, 3). Approximately twenty years after opening its doors, the 32 buildings that comprised the Pruitt-Igoe complex were demolished. The project is nationally regarded as a massive failure that created a stigma associated with North St. Louis and speciUically the NorthSide area (HUD, Summary- B). While St. Louiss population was almost cut in half between 1970 and 20104, the 2010 population of the NorthSide area, as shown in Table 3, was roughly a quarter of what it was in 1970. In 1980, after the City of St. Louis protested the census counts made by the Census Bureau, a census worker commented, If they dont wake up and acknowledge the exodus, theyre going to lose it all. They ought to get out of their ofUices and drive through north St. Louis. A lot of it looks like a ghost town. When we come back in 1990, it may not even be a city. It may be a village (Mendelson, 154).

Yet, these documents were written nearly forty years ago. The population count, the number of abandoned buildings and the economic environment in the area, just to name a few measures, have steadily worsened in that time frame. The area currently suffers from the highest unemployment rate, the highest poverty rate, the lowest percentage of its population with a high school degree, and the lowest average income of any other area in the city3 (City of St. Louis Department of Health, 30-39). The NorthSide has been the victim of segregation politics and failed housing policies. Delmar Boulevard has served as the dividing line for white and black families in St. Louis; white families lived south of the street and black families lived north of the boulevard. Real estate agents, bankers, and other housing industry types played a role in this as they intentionally directed black families to areas in the St. Louis region where there was already a heavy concentration of

The population of the NorthSide is 84% black and 12% white, with the other 4% either a

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combination of two races or of a different race; this is nearly the converse of Missouris racial composition, which is 83% white and almost 13% black, with the remaining 4% some other race or a combination of races. The 2010 median age of men in the area is 27 years, while the median age of women is a little more than 33 years (ACS 2010, 5 year estimates). Ninety-eight percent of the NorthSide residents are American citizens. The median family household size is about 2.5 people and there are more than 2,000 one- person households. Of the approximate 3,000 family households in the area, single mothers head more than two-thirds of them. Nearly half5 of NorthSide households do not own a

car (ACS 2010, 5-year estimates). The average income in the NorthSide in 2010 was $27,176 and the median income, where half of the households make more and half make less than the amount, was $18,025. Yet, these statistics just scratch the surface of the area, its population, and its history. In a series of analyses, Missouri Wonk will explore the many facets of the NorthSide including the areas education, health care, crime, housing, public infrastructure, past redevelopment attempts, parcels and property, jobs, income, and the economy, as well as how these factors relate to St. Louis and Missouri.

Summary
At its peak, St. Louis was the fourth largest city in the United States. Its central location, availability of transportation options, and proximity to agricultural resources helped the city grow and prosper for more than a century after its incorporation by Missouri. However, in the middle of the twentieth century, a combination of forces caused the city to decline in population, industry, and national prominence. This decline is most apparent in the area immediately north of downtown St. Louis, the NorthSide, where a massive exodus of residents, failed housing projects, and segregation politics, among other factors, has produced an area with the highest unemployment, the lowest education attainment, and the lowest incomes of any other area in the city.

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Data, Sources, and Area

Relying on census data from 1970-2010, Missouri Wonk can show how the demographics of the population have changed for the NorthSide area6. The area of focus in this analysis is the geographic region encompassed by census tracts 1115, 1201, 1202, 1203, 1212, 1213, 1214, 1257 and 1266 of the 2000 census and census tracts 1115, 1202, 1212, 1257, 1266, 1271, and 1275 of the 2010 census. The area covered by these tracts is nearly identical, however, between 2000 and 2010, the Bureau of the Census consolidated tracts 1201 and 1203 into a new tract, 1271, and collapsed tracts 1213 and 1214 into a new tract, 1275. The 2000 census tracts rely on information contained in the Neighborhood Change Database, which was developed by: Geolytics, Inc., a private company that specializes in current and historic census data; The Urban Institute, a research organization that stems from a recommendation of a 1960s blue-ribbon commission appointed by President Lyndon Johnson (Urban Institute); and The Rockefeller Foundation, a philanthropic organization which supports work that expands opportunity and strengthens resilience to social, economic, health and environmental challenges, which provided part of the funding for the initiative (Rockefeller Foundation). The Neighborhood Change Database allows for historical analysis of a speciUic area as speciUic as the census tract level. While the U.S. Bureau of the Census changes its census tract boundaries to accommodate changes in population, the database holds census tract boundaries steady over time; this allows for an apples-to-apples comparison of the same region across the 1970, 1980, 1990, and 2000 decennial censuses. At the time of this writing, the 2010 census tracts and boundaries have not been incorporated into the database; however, aside from the consolidation of the tracts mentioned previously, there was only one difference in the total area of the study and none of material distinction.7

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Figure 4: NorthSide Area in Context of St. Louis City

Source: Map produced with Geolytics software, ACS 2006-2010 Interface. Note: The area shown highlighted in red stripes designates the NorthSide Area.

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Figure 5: NorthSide Area 2000 Census Tracts

1202

1115

1201

1203 1266

1212 1213 1257 1214

Source: Map produced with Geolytics software using the Neighborhood Change Database 2000 Note: Numbers denote census tracts as used by the United States Bureau of the Census

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Figure 6: NorthSide Area 2010 Census Tracts

1202

1115

1271 1266

1212

1275

1257

Source: Map produced with Geolytics software, ACS 2006-2010 Interface. Note: Numbers above denote census tract numbers used by United States Bureau of the Census.

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Notes
1According to the Bureau of the Census, the population also dipped slightly between 1930 and

1940, however, at the time the nation was in the midst of a depression and on the brink of a world war. 2Generally, the NorthSide area is the geographic region immediately north of downtown St. Louis. However, a more thorough discussion of the area of analysis is available in the Data, Sources, and Area section of this paper. 3Counting zip code 63106 and the southern portion of zip code 63107 as the NorthSide area. 4Refer to Table 2 earlier in this analysis for comparative information relative to St. Louis. 547% 6Or in some cases, not changed 7The only apparent change is the northeastern border of census tract 1266 includes census blocks 2000 and 2001 (census block 2000 is actually part the Mississippi River) in the 2010 census; the area was not included in the tract in the 2000 census.

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References
Abbott, Mark. A Document that Changed America. St. Louis Plans: The Ideal and the Real St. Louis. Editor: Mark Tranel. Missouri Historical Society Press. p. 37-53. 2007. Abbott, Mark. The 1947 Comprehensive City Plan and Harland Bartholomews St. Louis. St. Louis Plans: The Ideal and the Real St. Louis. Editor: Mark Tranel. Missouri Historical Society Press. p. 109-149. 2007. American Community Survey (ACS) 2010. United States Bureau of the Census. 2006-2010 Estimates. Figures tabulated using Geolytics, Inc. software. City of St. Louis Department of Health. Public Health: Understanding Our Needs. Volume 3. Update 2007. Obtained from http://stlouis-mo.gov/government/ departments/health/documents/public-health-understanding-our-needs-report.cfm on October 23, 2012. City Plan Commission. Comprehensive City Plan 1947. Retrieved from the world wide web on October 29, 2012 at http://stlouis-mo.gov/archive/1947-comprehensive- plan/introduction.shtml. Corbett, Katherine T. and Howard S. Miller. Saint Louis in the Gilded Age. Missouri Historical Society Press: St. Louis, MO. 1993. Gordon, Colin. Mapping Decline: St. Louis and the Fate of the American City. University of Pennsylvania Press: Philadelphia, PA. 2008. Heathcott, Joseph. Harland Bartholomew, City Engineer. St. Louis Plans: The Ideal and the Real St. Louis. Editor: Mark Tranel. Missouri Historical Society Press. 2007. Housing and Urban Development (HUD). Pruitt Homes and Igoe Apartments Public Housing Complex: Final Environmental Impact Study. St. Louis Housing Authority: St. Louis, MO. September 1974. Lippmann, Rachel. Bound by Division- Race in St. Louis. St. Louis Public Radio: April 15, 2011. Retrieved from the world wide web on October 30, 2012 at http:// news.stlpublicradio.org/post/bound-division-race-st-louis.

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Mendelson, Robert E. and Michael A. Quinn. Residential Patterns in a Midwestern City: The St. Louis Experience. The Metropolitan Midwest: Policy Problems and Prospects for Change. Edited by Barry Checkoway and Carl V. Patton. University of Illinois Press: Urbana and Chicago. 1985. Rockefeller Foundation. About the Rockefeller Foundation. 2012. Retrieved from the world wide web at http://www.rockefellerfoundation.org/about-us on October 19, 2012. Primm, James Neal. The Economy of Nineteenth Century St. Louis. St. Louis in the Century of Henry Shaw: A View Beyond the Garden Wall. Editor: Eric Sandweiss. University of Missouri Press: Columbia, Missouri. 2003. St. Louis Civic League. A City Plan for St. Louis. Civic League of St. Louis. 1907. Shepard, Elihu H. The Early History of St. Louis and Missouri from Its First exploration by White Men in 1673 to 1843. Saint Louis: Southwestern Book and Publishing Company. 1870. Stanley, Rollin. e = mc2 The Relative City. The Future of Shrinking Cities- Problems, Patterns and Strategies of Urban Transformation in a Global Context. Edited by Karina Pallagst, et al. Center of Global Metropolitan Studies, Institute of Urban and Regional Development, and the Shrinking Cities International Research Network. May 2009. Team Four Inc. Citywide Implementation Strategies: The Draft Comprehensive Plan. The City of St. Louis, Missouri. March 1975. Troen, Selwyn. The Public and the Schools: Shaping the St. Louis System, 1838- 1920. University of Missouri Press: Columbia, MO. 1975. U.S. Bureau of the Census. 1990 Census of Population and Housing. U.S Department of Commerce: Economics and Statistics Administration. 1993. U.S, Bureau of the Census. Table 1: The Most Populous Counties and Incorporated Places in 2010 in Missouri: 2000 and 2010. Retrieved from the world wide web at http:// 2010.census.gov/news/releases/operations/cb11-cn49.html on November 21, 2012

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Urban Institute. About the Urban Institute. 2012. Retrieved from the world wide web at http://www.urban.org/about/ on October 19, 2012. Williams, Barbara R. St. Louis: A City and Its Suburbs. Prepared for the National Science Foundation. Rand: Santa Monica, CA. August, 1973.

ABOUT MISSOURI WONK

Missouri Wonk is a rm founded by Brian Schmidt that performs policy analysis services for businesses, trade associations non-prots, campaigns, and government entities. From January to May, Missouri Wonk Reports provides weekly updates and analyses on tax and economic development issues confronting Missouri. From June through December, Missouri Wonk Reports dives into the details by providing more in-depth monthly analyses of Missouri state and local tax and economic development policies.
ABOUT BRIAN SCHMIDT

Brian Schmidt served as the Executive Director of the Missouri General Assemblys Joint Committee on Tax Policy from 2005 through 2011. He received a Bachelor of Political Science degree at Truman State University and a Master of Public Affairs- Public Policy degree at the University of MissouriColumbia.

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