his reference was not to legislative or voting districts.
In other states school districts are not bound by political subdivision, one or more townships, towns, cities can incorporate a school district.
They do have to be contiguous.
These school districts have their own taxing authority (usually real estate) and an independently elected school board.
They are not bound to the local government.
This allows independence, in more rural areas the district can encompass more townships or a county
incorporated towns can retain their own school system for historical purposes or choose to join surrounding areas based on their economic requirements.
The county i grew up in had probably over a dozen school districts, running from very small districts that covered a town, to districts that had to have multiple high schools because they grew so large over the years (farmland became suburbia)
the county only provided a forum for districts to share resources, particularly for special needs and tech center.
All other operating decisions were made by the superintendent or school board.