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Full text of "Report no. 2 to the United States District Court, District of Massachusetts on Boston school desegregation"

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3 9999 06315 372 8 








FEBRUARY 1, 1984 





TOl. 1 





Dr. Donald R. Walker, Reading, Chairperson 
Mr. Howard A. Greis, Holden, Vice Chairpersor\ 

Ms. Darcy Fernandes, Wareham 
Mrs. Anne C. Fox, Needham 
Rev. Paul V. Garrity, Maiden 
Ms. Milca R. Gonzalez, Worcester 
Mr. James R. Grande, Hanover 
Mrs. Loretta L. Roach, Boston 
Mr. Joseph C. Savery, Lee 
Ms. Mary Ellen Smith, Boston 
Mrs. Mary C. Wright, Falmouth 
Mrs. Dorothea A. Zanetti, Wilbraham 

Dr. John H. Lawson, Corr\missior\er of Educatior\, Secretary 
Mr. John B. Duff, Chancellor, Board of Regents, Ex Officio 

Report Coordinated by- 
Franklin Banks, Special Assistant to the Commissioner on 
Boston Desegregation 

Produced by the Bureau of Operational Support 
Cecilia DiBella, Director 
Susan Gardner, Publications Coordinator 
Susan M. Ridge, Tvpographist 

The Massachusetts Department of Education insures equal employment/educafonal oPPort-'^-j/^f'"",^"^ ^'=«°" '■^^ardless of race. 
color creed national ongin or sex, in compliance with Title IX, or handicap, m comphance w,th sect.on 504. 

lM-1-84-1 76406 approved by Daniel D. Carter, State Purchasing Agent. Estimated Cost Per Copy $2.32 




To The United States District Court 
District of Massachusetts 


Boston School Desegregation 

February 1, 1984 

GOl'Ti^T"' '' TEMT" 




Monitoring Reports 9 

Assignments H 

Staff 19 
Special Desegregation Measures 27 

Special Education 37 

Bilingual Education ^5 
Vocational and Occupational 

Education 51 

Transportation 6l 

Facilities 65 

Safety and Security 69 

Student Discipline 75 

Institutional Pairings 8l 
Parent and Student Organizations 85 

Dispute Resolution 95 

Modifications 99 

(2nd Monitoring Report) 


This is the Second Monitoring Report on Boston Public School Desegregation, 
filed by the Massachusetts Board and Commissioner of Education under the 
Orders of Disengagement entered by Federal District Court Judge W. Arthur 
Garrity, Jr. on December 23, 1982. The Report covers a six-month period 
of school operations and is based upon data collected by Massachusetts 
Department of Education monitors throughout the fall of 1983. As such, it 
represents the completion of the first one-year cycle of monitoring Boston 
School Department operations under the Orders of Disengagement. 

Our monitoring efforts have benefitted greatly from the comments we 
received on our First Monitoring Report (July 15, 1983), both those 
presented formally by the Court and the Boston School Department 
and those communicated to State Board members and State Department of 
Education staff by other parties and interested citizens. The experience 
gained from our initial monitoring effort has also given us a keener insight 
into the range of issues affecting the desegregation orders, including areas 
such as transportation services and parent organizations that are not 
traditionally subject to state oversight. 

The present Monitoring Report reflects this growth in our ability 
to monitor. It is more comprehensive than Report #1, with greater detail. 
It also delves more systematically into several areas of Boston School 

Department operations, a product of our sharper monitoring focus rather 
than an indication that there has been any loss of ground in the desegregation 
effort. We continue to receive great cooperation from Boston School Department 
officials, especially Superintendent Spillane, and believe this cooperation 
is reflected in the specificity of our analyses. 


As with Report #1, Volume I of the present report is an "executive 
summary" of findings in each of the twelve monitoring areas enumerated in 
the Orders of Disengagement. In addition to describing the objectives, 
procedures, findings and recommendations in each area, we have also high- 
lighted responses to findings contained in Report //I with a ■ to provide 
the reader with a clearer sense of continuity in the State's monitoring and 
the Boston School Department's remedial efforts. This executive summary 
will again be given wide distribution after it is filed with the Court. 

Volume II contains all supporting documentation for the findings in 
each of the twelve areas, including materials provided to State monitors 
by the Boston School Department. Page references to these materials are given 
in the margins of Volume I. Budgetary considerations again require a more 
limited dissemination of Volume II, although copies are available for 
inspection by any member of the public. 

The following chart summarizes the status of the major findings from 
Report //I: 


Report #1 (July 1983) 

Report //2 (February 1984) 

1) Assignment process carried 
out as mandated but 15 of 
124 schools will most likely 
not be in compliance with 
racial enrollments. 

1) 35 schools have significant 

problems with enrollment compliance, 
Twenty have definite potential 
for improvement . 

2) Applications to vocational 
programs indicate a need for 
vigorous recruitment to meet 
enrollment goals by race/ 
ethnicity and sex. 

3) Career education requirements 
have not been complied with 

in many middle and high schools, 

2) Enrollment goals are still 
not being met - recruitment 
efforts remain inadequate. 

3) Results in this area are mixed. 
A city-wide career education plan 
is nearly completed, and many 
middle schools have improved 
offerings. However, many compliance 
issues remain at individual 

4) Support for limited English 
proficient students in 
vocational programs is 

5) Support for limited English 
proficient students in 
special needs programs is 

6) English High requires priority 
attention to improve enroll- 
ment and safety problems. 

4) Support for limited English 
proficient students remains 
inadequate in many vocational 
and occupational education 

5) Improvement has been noted in 
the appropriate placement of 
students in bilingual special 
needs programs serving their 
language category. 

6) Atlhough English High has taken 
steps to improve safety and school 
climate, this school remains 

out of compliance for Black and 
White enrollments and requires 
continued attention. 

7) Additional support for Burke 
and DorchesLsr High holds 
promise for improving desegre- 
gation compliance. 

7) Special Desegregation measures 
are being implemented at both 
schools, although delays in 
facilities improvements have 
occurred at Burke High School. 
Preliminary indications suggest 
improved compliance with Court 
orders at both schools. 


8) Boston Latin School has 

difficulties retaining Black 
and Hispanic students, as 
well as a disproportionate 
suspension rate for Black 

9) Charlestown High School 
employs suspensions far 
more frequently than do 
other Boston schools. 




While staff desegregation 
requirements have been met 
generally, staff reductions 
have limited the progress in 
hiring other minority staff 
apart from bilingual programs. 

Sufficient numbers of 
qualified staff were not 
available for some special 
education and bilingual 
education programs. 

Persistence of crime and 
security problems in a limited 
number of schools creates both 
specific recruitment difficul- 
ties and a general perception 
of unsafe conditions. 

8) This attrition problem has been 
verified at both Boston Latin 
School and Boston Latin Academy. 
Inadequate preparation of Boston 
Public School students and 
erratic support services contribute 
to this problem. Boston Latin 
School continues to suspend Black 
students at 2 1/2 times the 
expected rate. 

9) On-site monitoring suggests 
that Charlestown has begun to 
address this problem, although 
delays in the compilation of 
statistics inhibit confirmation 
until the next Monitoring Report. 

10) The percentage of other 
minority teachers continues 
to slowly increase; the 
concentration of these teachers 
in bilingual programs has been 
reduced. Other minorities 
continue to be underrepresented 
among headmasters and principals. 

11) Significant progress has been 
made to obtain and assign 
appropriately certified special 
education staff. Continued 
difficulties remain in securing 
certified bilingual/special needs 
educators. Significant difficulties 
remain in securing certified 
bilingual instructors in specific 
linguistic categories (Cambodian, 
Haitian, Laotian). 

12) Certain schools continue to 
have problems in assuring the 
safety of students and staff. 
Effective programs are sorely 
needed to address the needs of 
violent and disruptive students, 
and to end their disruption of 
the educational process. 

In addition some of the more significant new findings contained 
in this report are: 


° The level of participation in School Parent Councils (SPCs) is 
growing, as is cooperation between the Boston School Department administra- 
tion and the Citywide Parents Council (CPC) . 

As a result of delays in implementation of the court-ordered screening 
and rating process for administrative positions, 343 of a total of 710 admin- 
istrators currently serve on an "acting" basis. Minorities are over- 
represented among those principals ahd headmasters in acting positions. 

° The mainstreaming of Transitional Bilingual Education students is 
often blocked by the lack of adequate staff and materials, and by over- 
crowding in many regular classrooms. 

° Transitional Bilingual Education programs are growing more 
successful in keeping students in school through high school graduation. 
Significant numbers of these students are advancing to higher education. 

° Alternative education programs developed at the King Middle School and 
English High School promise to serve the needs of disruptive and non-achieving 
students better, and to reduce discipline and safety problems in those schools. 

° The Boston School Committee still has not approved a comprehensive 
secondary school facilities plan. 

° Many schools designated for special desegregation measures by the 
Court remain in noncompliance with assignment goals, due to a lack of central 
office coordination and school-level initiatives. 

° Institutional pairings are being reconsidered and reshaped, in 
order to focus available talents and energies. Particular emphasis has 
been given to providing a more comprehensive range of business pairings. 



The Board and Commissioner have been given an open-ended charge to monitor 
desegregation in the Boston Public Schools, to mediate the resolution of disputes 
concerning outstanding Court orders, and to coordinate discussions regarding 
the modification of desegregation orders. At the same time Section IX(B) of 
the Orders of Disengagement gives any party the right to petition for further 
judicial withdrawal after January 1, 1985. Thus, we have reached a halfway mark 
in this phase of our efforts. In anticipation of requests for further dis- 
engagement next year, we believe it is proper at this time to identify 
desegregation-related issues of greatest concern to the State Board of Education. 
Efforts to address these issues in the next twelve months will provide a basis 
on which to evaluate proposals for further procedural modifications. These 
issues are listed below in no particular order of priority: 

(1) Impediments to program access for limited English proficient 
students must be eliminated throughout the system. Similarly, a higher 
level of support both prior to entrance and after enrollment in the 
examination schools must be provided to minority students. 

(2) The number of administrators serving in an acting capacity must be 
drastically reduced at both the school and district/central office level. The 
Boston School Department, after consultation with the Unions and the CPC, should 
implement a schedule for making permanent appointments to those positions 
currently filled by acting appointees. 

(3) Racial/ethnic guidelines have yet to be met in several schools, 
as well as most citywide vocational education programs. In many instances, 
enrollments should be improved through vigorous recruitment and program 
development efforts. 


(4) The Unified Plan for Vocational and Occupational Education should be 
subject to extensive review. Where appropriate, modifications should be proposed 
in order to strengthen equal opportunity in vocational training for all students. 

(5) While declining enrollment continues to work its way through the grade 
structure to the middle school and high school levels, the Boston School Department 
has yet to seriously address the need for a secondary school facilities plan 
grounded in long-term desegregation considerations. This effort must be undertaken 
immediately, in conjunction with city and state officials. 

(6) Safety and security continue to be major concerns for students, 
parents and school staff. A comprehensive program to improve safety and 
security throughout the system must be implemented. 

These issues, plus others cited in the present report, will continue 
to be the subject of State monitoring efforts. In addition, the Board and 
Commissioner have identified issues to be monitored in the next two six-month 
periods that have not received our attention in the past. Thus it is 
also our intention to address the following areas in future reports: 

1. Assignment procedures, especially the dissemination and return 
of assignment materials. 

2. The operation of Boston's student transfer policies. 

3. Types of programs and numbers of students involved in institutional 

4. The degree to which the Boston School Department responds to findings in 
the monitoring reports through the use of Chapter 636 and other grant funds. 

5. Systemwide organizational efforts surrounding the opening of 
school in September 1984. 



The Board and Commissioner wish to thank the Boston School Committee, 
Superintendent Spillane, and other Boston School Department officials for 
the cooperation and courtesy that has been extended to monitors who have 
required access to data, schools, and specific programs. The expansion of 
our efforts has required a commensurate rise in the level of interaction 
with Boston School Department staff. If anything, this has resulted in an 
even smoother working relationship than during the first phase of monitoring. 

We would be remiss if we did not also acknowledge the crucial efforts 
of two other bodies. Within the Boston School Department, the Department of 
Implementation continues to observe and coordinate all aspects of the desegregation 
effort, identifying problems and correcting them in the process before they rise 
to the level of findings in a monitoring report. The Citywide Parents Council 
has also demonstrated renewed strength in its work at the individual school 
level, where the benefits of desegregation are most directly felt. The public 
attention that inevitably falls upon the reports of court -appointed monitors 
should not obscure the essential work of these complementary and equally 
essential bodies, nor their contributions to the continuing progress of 
desegregation in Boston. 

Donald R. Walker John H. Lawson 

Chairperson, Massachusetts Commissioner, Massachusetts Department 

Board of Education of Education 







Student assigTirents and transfers shall continue to be made according 
to the standards contained In the following orders: Student Desegre- 
gations Plan, May 10, 1975, pages 71-79; Memoranda and Orders ModifVlng 
Desegregation Plan, May 3, 1976, pages 16-19; May 6, 1977, pages 22-27; 
August 12, 1977; March 21, 1978; March 30, 1978; April l6, 1979; and 
March 24, 1982. 


To determine to what extent have the Court-ordered student desegregation 
objectives been met. 


Ihe Director of Equal Educational Opportunity is responsible for monitoring 
student assignments. After discussion with Mr. Coakley, the Novenber 3, 1983 
enrollment printout was selected as the basis for analysis of the enrollment 
Irrpact of assignnents made last Spring. Enrollment of Occupational Resource 
Center programs is as of October 24, 1983. 

1. Conpliance with Desegregation Requirements 

QUESTIC»JS: How many schools are within the permitted 

ranges for Black and White enrollment, and 
how does this coirpare with previous years 
since the Court-ordered desegregation plan 
was inplemented in 1975? Do certain schools 
have persistent circumstances that contribute 
to this outcome? What are the prospects for 
desegregation of schools which are out of 
conpliance in Novenber I983? (Ihe assignment 
of other minorities is discussed below: see 
Questiai #7.) 


Seventeen schools have had persistent problems since 1975 enrolling (11-15) 
enou^ White students to reach the permitted range; ten of them have 
never reached it. Middle schools have the greatest problem, perhaps 
because of the transfer of large nuntoers of White seventh and eighth 
graders to the examinatioi schools. 


This year there are nine schools out of corrplalnce with the (17-26) 

pemiltted ranges for both Black and White students, twenty out 
of ccarpliance only with the Black range, and thirty out of com- 
pliance only with the White range; in a nuirber of instances, 
however, the "non-conpllance" is only apparent, and it would be 
accurate to say that altogether thirty- five schools have real 
desegregatioi problems. Of this nuirber, fifteen were Judged 
unlikely to ccme into conpliance, even with vigorous recruitment 
and other non-mandatory measures. Twenty have definite potential 
for inproving their desegregation compliance. 

2. Extended Day Kindergarten Programs 

QLESTICX^: Establishment of new extended day programs 

was appiKJved last Spring despite ccncem 
that some would not be desegregated; sub- 
sequently assignments to extended day pro- 
grams were approved despite ncn-cOTpliance 
with the permitted ranges in a nunfcer of 
cases, en the basis of coinnltments to recruit 
additional kindergarten students and to 
restrict assignment of applicants from over- 
represented groups until successful recruit- 
ment of unden?epresented students. What 
have been the results of recruitment and assign- 
ments since May I983? Have the ccmnitmsnts 
been kept, and what contribution do these pro- 
grams neke to the desegregation of the schools 
vrtiere they are housed? 


Of forty-two programs, seven have conpliance problems vrtiich will require (29-32) 
effective recrultmsnt and careful attention to assiguiKnt limitations. 
A nuntser of the extended day kindergartens make a substantial ccntrlbu- 
ticn to the desegregatioi of the schools which house them, and selective 
expansion of the program is encouraged. 

3. Magnet Elementary Schools 

QUESTICWS: Concerns were e35)ressed, in the last Report, about 

potential enrollment instability in schtb of the ten 
magiet elemaitaiy schools. Are the actual enroll- 
ments in conpliance, and vrtiat problems need 



Three of the ten schools have conpliance problems because of large (40-^3) 
bilingual progranB (and thus large other minority enrollments) ; 
vrt:iile this is allowed by the Court, there should be a long-term 
enrollment strategy for the Hennigan and the Jackscn Mann schools. 

Taken as a group, the magnet elementary schools are hi^ly equitable (^5) 
in their service of Black, White, and other minority students, and 
they are in no sense "elitist" schools. 

White enrollment has declined more rapidly amoig magiet elementary (46-^7) 
schools than among elementaiy schools in Boston in general, and the 
inplications of this for desegregation and for educatioial opportuni- 
ties should be examined carefully. 

i«. Higi Schools 

QUESTIONS: What is the status of desegregation of 

Boston's hi^ schools, and how much 
evidence is there of efforts to bring 
them in conpliance? 


All district hi^ schools are in conpliance with the permitted ranges (51-57) 

for Black enrollment; Brixton, Jamaica Plain, Burke, and South Boston 

are below the pennitted range for White enrollment. The situatioi 

should be corrected immediately. The Jeremiah E. Burice is making 

progress toward conpliance. Jamaica Plain has failed to reach the 

minimum requirenent for nine straight years, and no corrective efforts 

seem to be under way. 

Of the citywide hi^ schools, English is out of conpliance for both (55-56) 
Black and White enrollnent and is experiencing serious problems with 
security. This school needs priority attention, for desegregation as 
well as educationsLl reasons. 

5. Occupational Resource Center/Vocational Programs 

QUESTICNS: Assigimsnts to citywide vocational programs 

at the Occupational Resource Center and in 
five district hi^ schools were approved last 
Spring on the basis of representations from 
Bostoi that recruitment would be undertaken to 
bring about greater conpliance. Anple unused 
program capacity held out the promise that dis- 
proportionate enrollments by race and sex could 


be corrected. To what extent are these 
prograiTB now in conpllance with enroll- 
ment goals? Which programs have especially 
disproportionate enrollments? 


Of 3^ Occupatioial Resource Center programs for which enrollments were (64-6?) 

reported, eleven were within the permitted range for White enrollment, 

ten for Black enrollment and four for other minority enrollment. Only 

six of the 3^ vnet the goal of enrolling between 35 5? and 655^ female students. 

The disproporticns follow traditional patterns. Ei^t years after the 

vocaticMial education desegregatiai order, progress remains inadequate. 

There are five citywide ma^et vocatioial programs located in district (67) 
hi^ schools. Assignment guidelines for Black students have been met 
in four programs ; guidelines for \ilhites have been met in two programs ; 
guidelines for other minorities have not been wet in any programs. 
Progress in desegregating the traditionally White programs has been 
substantial, but is inconplete. 

Non-COTpllance of Occupational Resource Center and other citywide (69-70) 
vocatioial programs with the permitted racial ranges and with the goal 
of proportional enrollment by sex cannot be attributed primarily to the 
assignment process, since each of these programs can enroll students 
only voluntarily. The basic issue Is the effectiveness of career educa- 
tion and guidance efforts at encouraging applications frc«n all groins 
to all types of programs , on the basis of vrtiich appropriate assignments 
can be made. 

6. Distribution of Other Minority Students 

QUESTTO^S: The last report looked at the distri- 

butioi of other minority students not 
enrolled in bilingual programs, and 
raised potential equity coicems. This 
analysis has been updated. Where do these 
students go to school, and where do they 
seem over or underrepresented? 


If students in bilingual programs are excluded, 575? of the Asian students 
but only 8% of the Hispanic students at the secondary level are in the 
examinatiOTi schools. (73) 


There has been an encouraging increase in the nui±ier of students graduating (74-75) 
from high school bilingual programs and receiving scholarship awards for 
higher education, but here again Hispanic students benefit less than Asian 
students . 

7. White Enrol Irtgnt Trends 

QUESTIONS: White public school enrollment has de- 
clined in Boston, as in other cities 
and indeed statewide. What is the ex- 
tent of this decline in the last five 
years, and are certain schools more 
affected than others? Is there evidence 
that sane schools are less able than 
others to persuade assigned White stu- 
dents to attend, or that this problem 
is more prevalent in some sections of 
the city? To what extent are non-p\±)- 
lic schools in Boston desegregated, and 
what proportion of all White students 
attending either private or p\±ilic 
school in Boston attend desegregated 


The majority (64%) of White p\±)lic school students in Boston attend schools (83-84) 
which are betveen 10% and 40% White, and only 9% attend schools which are 
more than 70% White; this is a sharp contrast with the distribution in 1971 
prior to desegregation when 60% were in schools which were more than 90% 
White and 84% in schools which were more than 70% White. 

White public school enrollment declined by 35% between 1978 and 1983, or 7% 

a year, during a period when White enrollment in Worcester public schools 

was declining by 5.5% a year, and statewide White enrollment by 5% a year. (79-89) 

The Boston decline is not markedly more rapid. 

Certain sections of the city have been experiencing rapid racial change. 

Most striking has been the decrease in White enrollment and increase in (80-83) 

Black enrollment in the Hyde Park/Mattapan area. In Mlston/Brighton and 

the downtown area White enrollment has dropped and Asian enrollment increased 

sharply. In Mission Hill, along Dudley Street, and in the South End Black 

enrollment decreased and Hispanic enrollment increased sharply. In Jamaica 

Plain Hispanic enrollment increased while White enrollnent decreased. 

Twenty-five public schools in Boston lost White enrollment at a substantially 
higher rate than the citywide average; this includes eight magnet schools, (90-92) 
nine schools located in predcminantly White areas, and eight schools located 
in predominantly minority or racially transitional areas. District V (Dor- 
chester) was especially affected. 

Fifteen public schools in Boston actually gained or remained level in White (92-94) 
enrollment over these five years, including several located in predominantly 
minority areas. The Higginson deserves special mention, as does the Winthrop. 


The practice of enrolling White students in public school kindergartens, then 
removing them to non-public schools for first grade affects all parts of the 
city, but especially West Roxbury, Brighton, Hyde Park and Dorchester, vtere (94-96) 
the nimber of White students in first grade is less than half the number in 
kindergarten. The drop is much smaller in South Boston and Jamaica Plain. 

Slightly more than half of the White students attending schools in Boston at- 
tend non-public schools, thirty -seven of which reported 1982 enrollment more 
than 90% White; as a resiiLt, 45% of the White students attending any school (85-89) 
in Boston, public or private, attend schools over 90% White. In other words, 
vilile the Boston Public Schools are substantially desegregated 
this affects only about half of the White students in the city. 

A few non-public schools report enrollments entirely or almost entirely minor- 
ity, while seven non-public schools are thoroughly desegregated by the stand- 
ards applied to public schools. More than three thousand minority students (86-87) 
are educated in non-public schools in Boston. 


In the July 1983 Monitoring Report several assignment issues were raised in the 
findings, follcw-vp to v^ich can be found in other sections of this report: 

Issue Report Section or Disposition 

1. High school cotpliance with Lau 1. Bilingual Education 
Plan minimal enrollment 

2. Over-representation of Black stu- 2. Special Education 
dents and under representation of 

other minority students in sub- 
stantially separate special needs 

3. Ninth grade high school preferences 3. Application process to be mcn- 
and assignments itored in spring 1984 

4. Madison Park and English High 4. Safety and Security Student 


5. Retention rates of Black and 5. Special Desegregation Measures 
Hispanic students at the Exam Schools 


1. A strategy should be developed to inprove desegregation ccnpliance of 

twenty schools which show premise of caning into cortpliance without manda- (23-26) 
tory reassignments ; such a strategy should include program development, ccm- 
munication with pcirents, and measures to create a safe and positive learning 
environment in each school. 

2. Extended Day Kindergarten programs make a contribution to desegregation 

in a number of cases; establishment of additional programs and expansion of (29-33) 


exlstlnf^ ones should be considered, subject to careful review of equity 
cons i derations. In a few cases closer adherence to admission require- 
ments and recruitmsnt of under-represented students are necessary. 

3. The inplicatiais of rapid enrollment decline in magiet schools should (46-48) 
be reviewed. 

4. The reasons for ncn-conpliance with the pennitted range for White enroll- 
ment at Brixton and South Boston hi^ schools should be identified and re- (54-55) 
medial actions taken. A plan should be developed to move Jamaica Plain and 
Ehglish Hi^ Schools toward conpliance, with special attention to security 
improvements . 

5. The ncn-CCTipliance of most citywide vocational programs with the permitted 
racial ranges and with the goals for enrollment of male and female students 
requires coordinated efforts to increase the number of applicants from under- 
represented groips, with special reliance upon career education, guidance, $69-70) 
and coimunicaticn about what each program offers. 





The deseareqation of faculty and administrative staff shall 
be implemented accordinq to the standards contained in the 
orders of Julv 31, 1974; January 28, 1975; the amended Order 
of August 30, 1975; the Order of February 24, 1976, the 
Special Order of July 7, 1977: the Further Order of July 5, 
1978; the Modification of January 27, 1981; the Conditional 
Order of June 2, 1981; and the Bench Order of July 9, 1981. 


The following documents from the School Department were 
analyzed: Report on Faculty Recruiting and Hiring, October 
15, 1983; Memorandum on Category I Administrators of 
November 2, 1983; and a subsequent computer print-out of 
all acting appointments; the "appointments" section of min- 
utes of the Boston School Committee; a computer print-out 
of all teaching assignments and credentials in the School 
Department (as of October, 1983); and miscellaneous other 
documents. Monitors interviewed the Deputy Superintendent 
and the Director and staff of the Office of Personnel and 
Labor Relations, and met with the staff and members of the 
City-wide Parent Council (CPC) . 


1. To determine whether the 20% Black requirement for 
teaching and administrative positions continues to 
be met. 

QUESTION: It was reported to the Court in July, 1983, that 
as of March, 1983, the 20% Black requirement was 
being met for teaching positions and both cate- 
gories of administrative positions. 

Is this requirement still being met? 


In March, 1983, the percentage of Black teachers in Boston 
was 20.46; by October, 1983, that percentage had fallen 
slightly to 20.30. Since the total number of teachers in 
Boston is declining (from 4,096 to 4,085 in this reporting 


period) , and since the turnover is relatively slight 
(137 people left the teaching force; 126 were newly 
hired into it), this decline is not remarkable; Boston 
is working within very narrow limits, and three or 
four people can affect the percentages. But since 
Boston is skating very close to the edge of the 20% 
figure, any decline is cause for concern. 

It should be noted that Boston is still rehiring teachers 
previously laid off and on the recall roster. Once that 
roster is exhausted, the Court's requirements that Boston 
make its best efforts to raise the number of Black teachers 
to 25% comes into effect again. This requirement will be 
monitored during the next reporting period. 

Of the 55 Black teachers who left the teaching force be- 
tween March and October 1983, 25 were promoted to adminis- 
trative positions. As a result, the percentage of minority 
administrators in Category I (headmasters and principals) 
has increased slightly. The percentage of minority head- 
masters and principals in acting positions, however, is still 
almost four times greater than that of non-minority. 







4 (5%) 

87 (95%) 

92 (100%) 

Minority 6 (19%) 

25 (81%) 

31 (100%) 


11 (9%) 

112 (91%) 

123 (100%) 

Source: Boston Public Schools 11/2/83 

Since reports on Category II administrators were not re- 
quired by the Court until January of each year, the analy- 
sis of data on all administrators other than headmasters 
and principals is not included in this report but will be ^ 
included in the July, 1984, Monitoring Report. 


QUESTION: Are acting administrative appointments being 
used to circumvent this requirement? 


It is already clear that the desegregation of the 
administrative staff in both categories cannot be 
considered separately from Boston's use of acting 
rather than permanent appointments. Leaving aside (138) 
entirely the question of intentionality , the use of 
acting appointments is having the effect of barring 
parents (and others) from participating in the selec- 
tion of administrators, and is probably decreasing 
the chances of minority candidates to be hired or 
promoted. There are presently 343 administrators in 
Boston serving in an acting capacity, out of a total 
of 710. Furthermore, since the number of new acting 
appointments had been and continues to be in excess 
of the number of new permanent appointments, the 
"backlog" of acting appointments has increased each 


2. To determine whether the required procedure for 
administrative ratings has been followed in all 

QUESTION: How many ratings have been conducted during 
this monitoring period? 


The number of permanent appointments remains small be- 
cause Boston has been unable or unwilling to use the (122) 
promotional rating process ordered by the Court for all 
permanent administrative appointments. During this re- 
porting period, only seven promotional ratings have been 
scheduled, and only two completed. 


QUESTION: How full and effective has parent participation 
in this procedure been? 


Not only have few promotional ratings been scheduled, 
but there have been problems with parent participa- 
tion, with the definition of those jobs that are ex- 
empt from the process, and with acting appointments 
made after and i ndependently of a promotional rat- 
ing. Parents have reported and documented: (a) in- (123-137) 
convenient scheduling, (b) short notice, and (c) in- 
sufficient preparation for interviewing. In one 
instance, members of the promotional rating team 
were given assigned questions by the Chairman just 
before the interview. In another, a parent received 
a mailgram on a Saturday requesting her presence at 
an interview the following Thursday. In at least 
two other cases, recommendations of rating teams 
have been apparently ignored and acting appoint- 
ments made, leaving team members frustrated over 
wasted time and effort. 

QUESTION: What positions are exempt from the rating 


At the monitor's request, Boston has clarified its 
understanding of the positions exempted by the Court 
from the promotional rating process, and this (121) 

clarification has been found acceptable. fl^l^ 

There have been attempts by the School Department to 

streamline the promotional rating system in order 

to deal with the backlog of acting promotions. Nothing (121) 

has come of these attempts to date although they still 

continue . 



3. To assess the affirmative action efforts of the 
School Department to reach the goal of 2 5% Black 
teachers and administrators. 


It was reported to the Court in July, 1983, that the 
School Department had made no effort to meet this re- 
quirement because it was still filling vacancies from 
the recall list, as specifically allowed by the Court. 
This situation still holds. 


4. To assess the best efforts of the School Department 

to increase the percentage of other minority teachers 
and administrators system-wide. 

QUESTION: It was reported to the Court in July, 1983, 

that there was a slight increase in the over- 
all percentage of other minorities. 

Have these percentages increased in this 
monitoring period? 


In March, 1983, the percentage of other minority teachers 

was 8.25, an increase of one percent from the previous (tto\ 

year. In October, 1983, the percentage increased slightly 

again to 8.54. This percentage represents an increase in 

the actual number of other minority teachers of eleven 

(from 338 to 349) . 

QUESTION: if there has been an increase, how is it spread 

among various programs and categories of positions? 


Other minority teachers are now somewhat less concentrated 

than previously in bilingual programs; the percentages in 

regular, vocational, and special education programs increased i-\-\n\ 

slightly (less than 15%) while the percentage in bilingual pro- ^^^^' 

grams decreased slightly (less than 3%) . The percentage of 

other minority headmasters and principals, however, remains 

very low (2.44) . 


QUESTION: What affirmative action and recruitment activ- 
ities have taken place? 


Affirmative action and recruitment activities will 
be monitored during the next reporting period. 


5. To determine whether the School Department is in com- 
pliance with state certification laws and regulations, 
particularly with reference to minority teachers whose 
certifications were waived by the Court. 

This objective was not previously monitored 


The monitor's analysis of the certification data supplied 
by Boston shows that 95.9% of all Boston teachers are ap- 
propriately certified for the function to which they are 
officially assigned. Of the remaining teachers, 2.9% (or 
122) are or will be covered by waivers granted by the Depart- 
ment, .2% (or 7) are exempted by the Court, and 1.0% (42) 
are currently under certification review by Boston's Personnel 
Office and will be reported on in the next monitoring report. 


1. The decrease in the percent of black teachers, even 
though it remains within the limits set by the Court, 
and even though Boston is still recalling teachers, 
should be reversed as soon as possible by aggressive 
recruiting and the implementation of the recently adop- 
ted affirmative action plan. 

2. The percentage of other minority teachers and adminis- 
trators should be increased through the same means. 

3. The number of "acting" administrative appointments must be 
drastically reduced in a manner consistent with the pro- 
motional rating process 


In order to meet this recommendation, either the pro- 
motional rating process will have to be modified, with the 
approval of the Court; or a major high priority adminis- 
trative effort must be undertaken by the School Depart- 
ment; or both. Any proposed modification to the process 
must guarantee the participation of parents and teachers, 
ensure racially balanced screening committees, and be 
less unwieldy. (See Finding #2 above.) At the very 
least and as evidence of good faith, the School Depart- 
ment should establish immediately a schedule of ratings 
for all positions currently filled on an acting basis. 



Special Desegregation Measures 


Special desegregation measures at specific schools shall be Im- 
plemented according to the orders of May 3, 1976, pages 20 to 
25; May 6, 1977, pages 25 and 43-44; March 21, 1978, page 6; 
and the Bench Order of April 20, I982 regarding the Hispanic Bi- 
lingual Program, Charlestown High School. 


o To determine whether all measures required by the Court con- 
tinue to be carried out. 

o To determine the effectiveness of all continuing special de- 
segregation measures. 

o To determine compliance with all terms of voluntary measures 
with respect to special desegregation which have not been 
formalized as court orders, and with all terms of special 
desegregation measures arrived at pursuant to the process of 
dispute resolution. 


The Director of Equal Educational Opportunity is responsible for 
monitoring special desegregation measures. November 3, 1983 en- 
rollments were used to assess the extent of compliance with en- 
rollment requirements. Twelve of the thirteen special desegre- 
ation schools were monitored on-site. Additional data sources 
included the schools' 1982-83 Annual Reports and Updates on Burke 
and Dorchester High Schools submitted to the Boston School Com- 
mittee . 

1 . Special Desegregation Schools 

QUESTIONS: What has been the effect on enrollment patterns of 
the designation of certain schools for "special 
desegregation measures"? Have these schools been 
assisted in developing distinctive and attractive 
program emphases? In recruiting students actively 
from their assigned geocodes? In increasing 
their white enrollment? To what extent does each 
operate under a conscious strategy to become a 
stably desegregated school? 



o Three of the eight schools - Dorchester High, Joseph Lee, 

and Pauline Agasslz Shaw - are in compliance with the per- (I56-I82) 
mltted ranges for Black and White enrollment, while Burke 
High Is moving toward compliance. New program development 
and staffing at the two high schools, a diversity of pro- 
gram offerings at the Lee, and a solid basic education 
program combined with outreach to parents at the Shaw have 
contributed to these positive results. 

o The other four schools - Ellis, Emerson, Robert Gould Shaw 
Middle, and Thompson Middle - are not making progress to- 
ward compliance. Security and staff turnover problems at (156-I82) 
the Thompson and the Ellis and the lack of a clear mandate 
to make program development and recruitment a priority have 
contributed to this lack of progress. 

o The Burke and Dorchester have received special - though 

sometimes lagging - priority from the central adminlstration(156-l82) 
over the past year. In the other six cases the principals 
reported no special attention or support. There appears to 
be no process of consultation with school-level staff to 
develop desegregation strategies for each school. 

2. The Tobln K-8 School 

QUESTIONS: What has been the impact of the K-8 structure per- 
mitted by the Court since September I982 upon the 
enrollment - and thus the extent of compliance - 
of this school? How does Fall 1983 enrollment com- 
pare with Spring I983 assignments? Is there 
evidence of a negative impact upon the District I 
middle schools? 


o The K-8 structure appears to be moving the Tobln toward com- 
pliance. Grades 6-8 have attracted an enrollment which is (I83-I89) 
within the permitted range, as have the first and second 
grade. It may be that the grade structure (with its pro- 
mise of continuity) and the program elements which have been 
developed for the Tobin are encouraging more White enroll- 
ment. There is no evidence that the Tobin creates compliance 
problems for the other district middle schools. 

o The Tobln attracts far more minority applicants for grades (I87-I89) 
6-8 than can be accommodated, and consideration should be given 
to limiting such applications to the assigned geocodes for the 
school. The placement of Spanish bilingual clusters in Dis- 
trict I should be reviewed. 


3. Burke and Dorchester High Schools 


Enrollment patterns that were seriously out of com- 
pliance caused the Court to consider requiring Bos- 
ton to submit special plans for the improvement of 
both schools. Boston complied voluntarily, sub- 
mitting five-part plans for each school. Are cur- 
riculum revisions and staffing patterns consistent 
with the plans? Have the capital improvements cited 
in the plan been undertaken? Are safety and secu- 
rity concerns being resolved? Are students being 
recruited and retained? Have mid-term social pro- 
motions decreased? Is the 9th grade assigned to 
the Burke consistent with desegregation goals? 


Dorchester High School 

o The Health Careers Magnet is off to a good start, with 

sufficient staff, 39 students and plans for both Job (191-193) 
and college-oriented training. In addition, a ROTC teacher 
has been hired, and the demand for his classes exceeds the 
space available 

o There are plans to phase out two of the three magnet vo- (190-191) 
cational education programs at Dorchester High School. 
These programs are an important part of Dorchester's 
special desegregation plan to attract new and out-of-dis- 
trict students. Special desegregation efforts of Dor- 
chester may be weakened by removal of these programs. 

o Capital improvements began in September 1983. (193) 

o Safety and security appear to have improved slgnifl- (193-194) 
cantly . 

o The recruitment undertaken last year began late and was (19^-195) 
not particularly effective, but with an earlier start 
this year should bring better results. 


Jeremiah E. Burke High School 

o The Computer Program is developing successfully, but the 
Communication Arts program has been reduced to a Theatre 
Arts program of minor significance. Since computers are 
being introduced to all high schools, Burke should con- 
sider developing a new magnet program to replace the Com- 
munication Arts. 




The City and School Department have not yet applied (196-I97) 
for renovation approval from the state, so that fa- 
cility Improvement have not begun; this has under- 
mined special desegregation efforts. 

District V has agreed that there will be no more (198) 
mid-term social promotions. 

Initial assignments for the entering ninth grade pro- 
jected very substantial desegregation progress by 

assigning only 46 Black students. In response to pro- (197-I98) 
tests about the small ninth grade which resulted, ad- 
ditional students were assigned over the summer. The 
actual ninth grade is in compliance with desegregation 
requirements, but the school remains below the per- 
mitted range for White enrollment. 

East Boston High School 


Since District 
court-ordered d 
establishment o 
High School to 
city. In respo 
lished a Busine 
What are the re 
of the program? 

and has Boston 
that the conten 
Have assignment 
ated? Has pare 

VIII is essentially exempt from 
esegregation, the Court required 
f a special magnet at East Boston 
attract students from the entire 
nse, the School Department estab- 
ss Magnet at the high school, 
tentlon and job placement rates 

is the curriculum of the program, 
responded to the recommendation 
t of the program be enhanced? 

and transfer policies been reevalu- 
nt monitoring been effective? 


No data were provided for retention of students in the pro- 
gram, but the rate appears to be approximately 25%. No 
information was provided on job placement rates. Work (205-206) 
site assignments are infrequent and inadequate. No special 
post-secondary training slots for Business Magnet graduates 
have been developed. 

There are no written curricula for the Business Magnet cour- 
ses. Teachers have not received any special inservice 
training in many years; for example, the plan called for (203-205) 
a major in computerized accounting, but there has been no 
inservice for business teachers in computers. None of the 
four "majors" offered to Business Magnet students are 
unique, and some are of questionable value. The program 
suffers generally from a lack of resources and adminis- 
tive neglect. The entire business department is irrationally 


divided into a "regular" program (for East Boston High 
School students only, with a specialization in data 
processing), a "college business" program (for East 
Boston High School students only, which allows preparation 
both for college and a Job), and the Business Magnet (for 
magnet students only, with several specializations). 

o Problems identified earlier regarding the difficulty en- 
countered by out-of-district students, especially minority (207) 
students, when attempting to transfer from the magnet to 
the regular curriculum have been resolved. Henceforth all 
requests for transfer into the regular program from out- 
of-district minority students will be honored, and re- 
quests from White District VIII students will be considered 
on a case-by-case basis. 

o Parent council monitoring had not yet begun, apparently 

because the Citywide Parents Council was unaware of the (208) 
mandate it had inherited from its predecessor to monitor 
the Business Magnet. The Citywide Parents Council has 
assured the Department of Education that monitoring will 
commence immediately. 

5. Support Services at the Examination Schools 

Problems of retention of Black and Hispanic students at the 
examination schools and appropriate support services were a 
part of the Assignment findings in Report I. 

QUESTIONS: What are the causes of the disproportionate at- 
trition of Black and Hispanic students admitted 
to the three examination schools? How effective 
is the preparation offered by Advanced Work (AWC) 
and Academically Talented (ATS) programs? How 
effective are orientation and support services 
provided by the exam schools? Why do Black stu- 
dents have a disproportionate suspension rate at 
Boston Latin Schools? How could the retention 
and success rates for minority students be Improved? 


o Exclusive reliance upon achievement test scores to select 
students for the Advanced Work (grades 4 and 5) and 
Academically Talented (grade 6) programs is inappropriate (215-219 
for identifying academically gifted students. The materials 
used to inform parents about the AWC/ATS program and re- 
cruit students to the program are Inadequate, and are 
available only in English. The content of the programs 
is extremely uneven, depending upon school-level Initiative; 
there is no standard curriculum for the programs; and there 
is no systematic approach to staff selection and training. 


Information about the admission tests for the examination 
schools Is Inadequately publicized and Is available only (218-220) 
In English. More than half of the new seventh graders 
entering the two Latin schools from Boston Public Schools 
were not In the Academically Talented Program, although 
the AWC/ATS graduates had a higher acceptance rate than 
applicants from among (1) other Boston Public School 
students and (2) from among non-public school students. 
Staff of the exam schools report that many students coming 
from public schools are ill-prepared in study and disci- 
pline habits, grammar and basic skills. 

The Hispanic ATS program has no separate curriculum and 

its students are mixed with the other bilingual students (217) 

at their grade level. Neither the AWC/ATS administrator 

nor the bilingual department has provided guidance to this 

program. There is little effort to prepare students to 

function exclusively in English. 

All three examination schools offer summer orientation 
programs, but participation is voluntary and does not in- (220-222) 
elude many of the students who require it most. The 
programs put on by the two Latin schools Include skill 
development and the diagnosis of skill deficiencies , but 
the schools lack effective follow-through mechanisms to 
ensure that students are properly served. The three-day 
orientation for Boston Technical lacks both skill assess- 
ment and development components. None of the exam schools 
had a comprehensive method to identify students who did 
not attend summer orientation and who need remedial or sup- 
port services. 

Support services provided by the exam schools are inadequate 
with respect to early identification of students who are (22^4-223) 
experiencing difficulties; referrals, services, and follow- 
up are not systematic. Many support services at the two 
Latin schools had not begun as of November 21st, and most 
of the available services are provided by student tutors 
outside of regular school hours on a voluntary basis. The 
ratio of students to guidance counselors is extremely high; 
at Latin Academy there is one counselor for 650 seventh 
and eighth graders. 

Summer school policies create additional problems for stu- 
dents who are fallingj only one course can be made up over (226-227 ) 
the summer, and most courses provided are below the level of 
exam school course content. The exam schools require summer 
makeup students to pass a school-based test which may include 
materials not covered in summer school. 


o There are 83 limited-English proficient students at 

Boston Technical High but no English-language support (232-233) 
was being provided as of November 21st, despite re- (261-268) 
quests from the headmaster. The Commissioner called 
Superintendent Spillane's attention to the academic 
and other difficulties experienced by these students, 
under Section 4C of the Disengagement Order. In De- 
cember, one English-as-a-Second Language teacher was 
added to the staff at Tech. 

o There are indications of a "sink or swim" attitude 

which may inhibit referral of Latin School students (236) 
to support services. Six of the teachers interviewed 
mentioned that if all the students admitted as 7th and 
9th graders were retained, there would not be enough 
teachers or classrooms to handle them in the 11th and 
12th grades. 

o There was a disproportionate suspension rate for Black 
students at Boston Latin School in 1982-83, for which 
administrators do not have an explanation. The school (238) 
has a new assistant headmaster with special respon- 
sibility for academic and discipline referrals for 7th 
and 8th graders, with special attention to minority 
students . 

o There is a higher attrition rate among Black and His- (213) 
panic than among White students at the two Latin schools. 
At Boston Latin, Blacks and Hispanlcs constitute 2>4% 
of the school enrollment but 46? of the students who 
leave before graduation; at Latin Academy they con- 
stitute 38? of the enrollment but 47% of those who leave 
before graduation. Analysis of the reasons for this 
record is not complete, but many of the factors cited 
above undoubtedly contribute. 


o In Report I, findings relative to the Humphrey Occupa- 
tional Resource were reported. Issues of over and under- 
representation by race and sex are covered in both Assign- 
ment and Vocational Education sections. 

o The Mario Umana School was not specifically monitored 
for this report. 


1. An explicit desegregation strategy should be developed for 
the six special desegregation schools for which no strategy 
exists, that identifies the necessary program changes, 
leadership, and resources and other support required to 
achieve or maintain compliance. If modification of existing 
assignment requirements would contribute to stable long-term 
compliance with desegregation requirements, Boston should pro- 
pose such changes through the modification process. 


2. School-level recruitment efforts should become a 
priority for staff of special desegregation schools, 
and appropriate resources should be made available 
to support such efforts. Recruitment' should be 
directed particularly to students in transitional 
grades, completing kindergarten, fifth grade, and 
eighth grade, and to their parents. 

3. The location of middle school bilingual clusters 
in District I should be reviewed, and measures 

taken to reduce the number of disappointed minority students 
applying to middle school grades at the Tobin K-8 school. 

1|. Burke High School should consider developing a new magnet 

program to replace the attenuated Theatre Arts program and (199) 
so encourage additional White enrollment and compliance 
with desegregation requirements. 

5. The City and School Department should ensure that the reno- 
vations to Burke High called for by the special desegre- (199) 
gation plan submitted to the Court are undertaken im- 
mediately . 

6. Plans to phase out two magnet vocational education pro- 
grams at Dorchester High School should be evaluated for (198) 
a potentially adverse effect on special desegregation ef- 
forts at that school. 

7. The curriculum content and administrative structure of the 
business Magnet program at East Boston High should be (208) 
strengthened substantially. 

8. Record-keeping should be improved for the Business Magnet 
program: information on work-site experience, post-graduate (208) 
job placements, transfer requests and retention of stu- 
dents in the program is essential to program improvement. 

9. The Advanced Work and Academically Talented programs should (219-220) 
be restructured to provide effective preparation for stu- 
dents who will be admitted to the examination schools. 

This will require a distinctive curriculum, selection of 
staff on the basis of experience and training in this area, 
and effective inservice training. 

10- Selection of students for the Advanced Work and Academically 
Talented programs should not rely exclusively on achievement 
tests, with their limited capacity to predict academic sue- (219-220) 
cess of minority students. Informational materials about 
these programs should be disseminated more effectively, and 
in the principal languages spoken by Boston parents. 



11. All three examination schools should offer mandatory 
summer or spring orientation programs that include 
diagnostic testing to identify and remediate skill (222) 
deficiencies . 

12. All three examination schools should institute a sys- 
tematic procedure for identifying, referring and follow- 
ing up on the progress of students in need of support 
services. Such services should be provided during 
school hours, including academic remediation, training 
in studv habits, and counseling. The ratio of coun- 
selors to students should be improved, clerical and 
attendance staff should be provided to permit counselors to(233) 
concentrate on their primary function of student con- 
tact, and there should be less exclusi-ve .stress on college- 
oriented counseling activities. 

13. There should be clear responsibility for identifying 
and supporting the education of academically talented 
students, including communication with their families, 
coordination of curricula of middle school and high 
school advanced programs, and comprehensive support 
services for minority students in the examination 
schools . 



Special Education 


Desegregation of special education programs shall be implemented 
according to the standards contained in page 5 of the Student De- 
segregation Plan dated May 10, 1975. 


In monitoring objectives One and Two, priorities were established 
as follows: 

1. Reaffirm implementation of space allocations regarding 
resource rooms and substantially separate classrooms. 

2. Target on-site visits to 50% of those schools with 
problems as identified in the July 15, 1983 Monitoring 
Report . 

3. Conduct follow-up monitoring via on-site visits and 
paper documentation to review the status of bilingual/ 
special education staff and their certification. 

To address the priorities pertaining to monitoring objectives 
One and Two, monitors conducted on-site visits to seven schools 
and interviewed seventy-eight classroom teachers. Additionally, 
monitors reviewed position/classroom control forms for every 
school as submitted by the Boston Public Schools, as well as 
a Bilingual Special Education staff roster, a computerized 
printout entitled "Personnel and Labor Relations, Employees 
with Function Code, 1301-1392 by Name", 9/27/83. 

In the course of conducting teacher interviews, the nxombers of 
students in each program and the age span of students by pro- 
gram were verified against enrollment rosters. 

In monitoring objective Three, Division of Special Education 
monitors, in consultation with the Bureau of Equal Educational 
Opportunity, reviewed additional documentation on the policies 
and procedures for assigning special education students city- 
wide and in particular to substantially separate "high inci- 
dence" programs. Monitors concentrated their efforts on 
clarifying the assignment procedures when a placement was 
recommended to a program out of the geocode district. 

Monitoring of objective Four will occur in the Spring of 1984. 


During this round of monitoring, monitors met with the Trans- 
portation Unit Director to review the transportation process 
and procedures, as well as its complaint management system. 

The Department continues to monitor annually 502.4 (i) pro- 
grams (substantially separate programs in a facility other 
than a regular education facility) . These programs are moni- 
tored through documentation review and program site visits, 
including individual student record reviews. 


The majority of problems identified in the July 1983 Board of 
Education Report for those seven schools visited have been 
remediated. It should be noted that in the course of con- 
ducting desegregation monitoring, some issues surfaced that 
are directly related to compliance pursuant to Chapter 766. 
These findings are noted here for information purposes. 
They will be followed up as part of the Board's monitoring 
responsibilities under the Allen v. McDonough state court 
case. In addition, the next round of desegregation moni- 
toring will continue to address all five objectives and 
will follow up on findings cited. 


1. To determine whether there is a resource room and ap- 
proriate staff and materials in each school. 

QUESTION: Does Boston have a resource room in every school? 


Resource rooms were found in all seven elementary, middle and (271, 
secondary schools visited. Documentation provided by Boston 304-307) 
indicates that there exists a resource room in every school. 

On-site visits found that at the DorGhester, Brighton and 
Charlestown High Schools and at the Mackey Middle, six re- (284) 
source room teachers do not have classroom space provided 
which is at least comparable in all physical aspects to 
the average standards of regular education facilities. 


QUESTION: Have problems with assignment of qualified 
staff, especially bilingual, been resolved? 


In reviewing documentation submitted by Boston regarding the (283) 
certification of 64 bilingual/special education staff, it 
was noted that 13 needed updated or new waiver requests for 
1983-84 school year and appeared to be lacking appropriate 
certification. Five identified as certified needed further 
clarification. Based upon a review of certification waiver 
requests, eight waiver requests were submitted for bilingual/ 
special education staff, three will be forthcoming, and one 
is problematic. One individual is no longer in bilingual/ 
special education. Of two denied waivers during 1982-83, 
one is problematic due to out-of-state reciprocity questions, 
and the other is certifiable. Of the five needing clarifi- 
cation, 4 are certified and one is certifiable. The list 
of Bilingual Special Education Specialists indicates that 
one of the four psychologists is not certified; one of the 
three pupil adjustment couselor positions is vacant. The 
four Speech Therapist positions were reduced to three. 
The Vision Resources position is vacant. 

QUESTION: What actions have been taken to address the 
staffing concerns cited in the July 1983 
monitoring report? 


On November 17, 1983, 15 special education certification (273-275) 
waivers were submitted to the Division of Special Education 
for the current school year. It is anticipated that approxi- 
mately an additional 32 will be forthcoming. Actions taken 
pursuant to these waiver requests will be reported in the 
next Monitoring Report. Significant progress has been made 
by Boston to obtain and assign appropriately certified staff. 
Continued difficulties exist relative to securing certified 
bilingual/special educators. All certification problems 
will be forwarded to the Associate Commissioner of Curriculum 
and Instruction in the Department of Education. 

Of the 78 teachers interviewed, four either did not hold the (274) 
appropriate special education certification or needed updated 
or new waiver requests submitted for the bilingual/special 
education services they perform. Eight needed their certi- 
fication status further clarified. One teacher is a long- 
term substitute. Two are temporary substitutes. Of the four 


with inappropriate certification or outstanding waivers, 
one certification waiver will be submitted and three re- 
main outstanding. Of the eight needing clarification, six 
are certified, one waiver will be forthcoming, and one is 
provisionally approved as a vocational instructor of spe- 
cial needs. 


Does Boston have an adequate pool of substi- 
tute teachers to ensure Resource Room service 


In this round of monitoring, the minimal use of short and 
long term substitutes was impressive. A pool of 20 sub- 
stitutes are available on a day to day basis to be de- 
ployed when needed. 



Does Boston have a system for ordering, 
distribution, inventory control, and bud- 
get maintenance for educational supplies 
and materials, and which ensures equali- 
zation of materials distribution? 


Documentation provided by Boston describes the process for 
each school and district ordering supplies and materials. 
A per capita allowance is based upon the number of students 
attending a given school and ranges from $38 per capita at 
the elementary level to $4 2 at the middle and secondary 
levels. Additionally, the Department of Student Support 
Services' Central Office has set aside $20,000 to purchase 
materials and equipment for new classes as a first priority. 
The majority of 78 teachers interviewed indicated that they 
had adequate supplies and were familiar with the process. 
Some problems exist, however, such as: arrival of materials 
on time; inappropriate materials for students because class 
changed; and inadequate number of materials in Spanish and 



Have problems involving the mixing of dif- 
ferent language groups in the same resource 
room, cited in the last report, been resolved? 



On-site visits found that the problem of including students (276) 
with several different languages in the same resource room 
at Charlestown and Dorchester High Schools and the Mackey 
Middle Middle had been corrected. However, at the Condon 
Elementary Bilingual Resource Room there was mixing of 
Spanish and Cape Verdean Special Education Students. 


2. To determine whether there are substantially separate 
classes in at least three schools in each district. 


Documentation provided by Boston indicated that there exist (271] 
substantially separate classes (502.4) in at least three 
schools in each district. 


3. To determine whether out-of -district placements of 
special needs students are programmatically appro- 
priate (in consultation with the Director of Equal 
Educational Opportunity for assignment implications) . 

QUESTIONS: Is Boston continuing to implement the Prima 
Facie Denial Action Plan under 71B, Section 
6 to address over-representation of Black 
students in 502.3 prototypes? 

Where disproportionality has been cited 
through the prima facie denial procedures, 
is Boston appropriately reviewing and plac- 
ing identified special education students 
in accordance with Chapter 766 procedures? 


In response to the citation of over-representation of minority (281) 
students in the 502.3 prototype, Boston submitted on September 
30, 1983, its Corrective Action Plan to address this matter. 
This Plan has been approved by the State Department of Educa- 
tion, and will be monitored. 


QUESTION: Is Boston appropriately placing identified 

Special Education students into substantially 
separate prototypes (502.4) especially L/AB 
programs in accordance with Chapter 766 pro- 


Boston operates three 502.4 (i) programs (substantially se- 
parate classes outside the regular public school) . The Car- 
ter and Tileston School programs have been approved, and the 
McKinley School program is provisionally approved by the De- 
partment of Education. 

Monitors found Boston's response to the previous request for 

a review of student placements in Learning and Adaptive Be- (282-284) 

havior (L/AB) classroom, insufficient. Pursuant to additional 

meetings held with Boton ' s Central Office staff, additional 

clarification was provided regarding assignment procedures 

for special education students in substantially separate 

"high incidence" programs. Additionally, Boston submitted 

procedures for addressing the apparent over-representation 

of minority students in L/AB programs. These procedures 

provide assurances that all L/AB placement recommendations 

since May, 1983 will be reviewed to determine if these 

placements were made for "compelling special educational 

reasons", in accordance with C. 71B, S.6. Additionally, 

these procedures should ensure placement appropriateness 

for students placed in L/AB programs. 


4. To advise the Director of Equal Educational Opportunity 
to the appropriateness of proposed program locations, 
space /program matrices, and student assignments to pro- 
grams during the annual assignment process. 


To be monitored in the Spring 1984 for July 1984 Report. 


5. To determine the appropriateness of transportation 
arrangements for special needs students and the ef- 
fectiveness of Boston's responses to transportation 
complaints. This objective was not monitored before. 



The Transportation Unit has two forms to communicate with ARA 
Associates for addressing special education transportation 
complaints. The Division of Special Education, Department of 
Education has received 2 direct transportation complaints 
since September 1983. Boston's Department of Student Support 
Services has developed an internal complaint management sys- 
tem and is working with Boston's Transportation Unit to de- 
velop a method of coordination for tracking and conducting 
follow-up on transportation complaints. Monitors will con- 
duct a sample case-study follow-up of special education trans- 
portation complaints and the effectiveness of Boston's system. 



On-site visits and teacher interviews indicated that 10 
classes in four schools exceed the Chapter 766 regulatory 
requirements for class size. In addition, there were 12 
classes in 3 schools (Brighton, Dorchester, and Charlestown 
High) that had students with age span ranges exceeding 
the regulatory requirements of 4 8 months. Waivers for 
these age ranges were submitted to the Division of Special 
Education on November 1, 1983. 


Different data sources regarding numbers of teachers assigned, (296-29' 
special education classroom enrollments, and teacher certifi- 
cations often do not match. Data sources included special 
education staff roster, program and staff matrix by school, 
and Boston's Status Report of Problem Schools identified in 


1. Boston should be commended for the efficiency of their 
responses to the monitor's request for documentation. 

2. Boston should be commended for the limited use of long- 
and short-term substitutes and for having a pool of 20 
substitutes available for day to day needs. 

3. Boston should be commended for their improved efforts 
to have appropriately certified staff teaching special 
education students. 



Boston should: 

1. Ensure that a consistent method of distribution and 
inventory control exist at each school, district, 
and Central Office in order to effectively implement 
the system for ordering materials and supplies in 
order that appropriate materials are available when 
needed, particularly at the start of school. 

2. Develop a process whereby representatives from the 
individual schools, the Department of Student Sup- 
port Services and the Department of Implementation, 
meet periodically to review and update space matrices, 
class sizes, students assigned, and teachers assigned^ and 

ensure that complete, current, and accurate infor- 
mation is available to all parties involved in special 
education service delivery. 

3. Provide the monitors with an accurate current list of 
programs by enrollment and teachers assigned. 

4. Continue to recruit appropriately certified bilingual/ 
special education teachers. 

5. Assure that all L/AB classroom placement reviews were 
completed by January 1, 1984, in accordance with Bos- 
ton's commitment to review such placements. 

6. Ensure that special education instruction areas are 
at least equal in size to those for regular educa- 
tion in accordance with Chapter 766 regulation 508.1. 


Bilingual Education 


Desegregation of bilingual education programs shall be im- 
plemented according to the standards contained in the Stu- 
dent Desegregation Plan, May 10, 1975, pages 4-5, 44-45, 
48-79, 70, 73-74; and the Memoranda and Orders of May 6, 
1977, pages 23 and 27; and March 21, 1978, page 5. 


A niamber of activities were conducted by the monitoring 
teams to gather the data to be included in this report. 
The monitoring activities dealing with bilingual voca- 
tional/occupational education were conducted collabora- 
tively between bilingual and occupational/vocational moni- 
tors. All other issues dealing with bilingual education 
were monitored and documented by a team of two bilingual 

The monitoring teams conducted the following activities: 
pre-data collection and analysis of documents, computer 
printouts and correspondence of Boston Public Schools; 
informational meetings held with Boston Public Schools 
personnel; development of instrumentation for data col- 
lection; on-site visits conducted in eighteen schools, 
interviews (conducted with teachers, administrators, 
community field coordinators, and guidance counselors); 
and analysis/synthesis of the documented data in this 


1. To review proposed program locations and space/pro- 
gram matrices during the annual assignment process 
to assure that adequate space and other provisions 
have been made for the programs required, including 
bilingual kindergarten and extended day kindergarten, 
and so to advise the Director of Equal Educational 


To be monitored in the Spring of 1984 for July, 1984 Moni- 
toring Report. 



2. To determine, through regular monitoring activities, 
whether all approved and required bilingual programs, 
including kindergarten and extended day kindergarten, 
are in place and functioning appropriately. 

QUESTION: What is the availability of bilingual staff 
in the targeted languages, including native 
language teachers, aides, and supportive staff 
(counselors, etc.) in bilingual education pro- 
gramming as well as bilingual vocational/occu- 
pational education? 


Statistics provided by Boston indicate that adequate numbers 
of teachers and aides are available in the bilingual classes (346-347) 
although sixteen out of twenty-eight classes monitored are in (369-376) 
non-compliance. Native language counselors are generally a- 
vailable to service LEP students, but in some cases these same 
counselors are asked to counsel students from different lin- 
guistic backgrounds, thereby making communication impossible. 

The occupational/vocational education programs are, as a rule, 
conducted monolingually in English. At the HHORC , seventeen 
bilingual teachers (representing 5 languages) teach in only 
13 of the 37 programs offered. 

Of the twenty-three occupational /vocational education teachers 
surveyed in the nine monitored schools, only one indicated 
that he/she spent any time teaching in a language other than 

QUESTION: Are there curricular materials in the targeted 
native languages in all bilingual education 
programs (including occupational/vocational 
programs) available for teacher use? 


There still exists a lack of sequential curricular materials (348-349) 
developed for the majority of native language instruction in- (363-368) 
eluding the occupational/vocational proarams, and, instruc- (378-379) 
tlonal materials within the classrooms, resource rooms, 
and libraries, especially in math, science, and social 
science are either non-existent or inappropriate. 



QUESTION: Do limited English proficient students have 
access to all program options, (including 
occupational/vocational programs) supportive 
services, and extra-curricular activities in 


LEP students in Boston do not have the same access to educa- 
tional programs as monolingual (English) students due to: (349-35C 
absence of native language instructors and aides in such pro- 
grams as vocational /occupational education, absence of na- 
tive language support services in the examination schools and 
the HHORC, and limited required course offerings in the native 
lanp-uages at the high school level. 

QUESTION: What is the status of the native language clus- 
ter concept as mandated by the Voluntary L^U 


The cluster concept (one-hundred LEPs at the high school level, 
as specified in the Voluntary LAU Plan) is often not realized. (350 
Specific programs out of compliance are presented in the Ap- 383) 
pendix of Volume II, 

QUESTION: Are space assignments allocated by Boston to pro- 
vide for partial and full mainstreaming of bilin- 
gual students? 


Partial and full mainstreaming is still obstructed by: 

1. overcrowding of the regular classes (355-357 


2. the lack of parallel scheduling among the bilingual 

and non-bilingual classes and 

3. absence of native language support services in the 
non-bilingual (mainstream) program. 

QUESTION: Are assessment procedures of LEP students con- 
sistently implemented with all the targeted 



There are still problems relative to assessment procedures. (■^ao\ 
Some students have not been assigned a LAU category, identi- ' 
fied as LEP , or appropriately classified. 

Question: What opportunities exist for bilingual parents 
to participate in the educational process of 
bilingual students in Boston? 


Efforts have been made by Boston, especially through activities 
conducted by Chapter 636 state funded projects, to coordinate parent 
training and involvement- 


3. To advise the Director of EEO on all bilingual education 
aspects of student assignments, including: examination 
school invitations, advanced work class invitations, stu- 
dent assignment handbooks, assignments (including bilin- 
gual, special, vocational) transfers, exceptions to racial 
percentage limits for assignments. 

QUESTION: Are the procedures for the recruitment of limited 
English proficient (LEP) students in bilingual 
education programming (including occupational/ 
vocational programs) implemented systematically 
throughout Boston Public Schools? 


Recruitment activities of LEP students to programs such as voca- i-iA-j^-iAQ) 
tional/occupational education, special education, bilingual edu- ('>f:'>^->ao\ 
cation, etc., are conducted in the various native languages. In- 
formation about admission tests for the examination schools is 
available only in English. Information about the Advanced Work 
Class and Academically Talented Sections is available only 
in English^ (See examination schools report under Special De- 
segregation Measures) 

Other aspects of bilingual student assignments will be monitored 
in the Spring 1984. 



Based on the evaluative data collected and analyzed, we com- 

1. The high degree of commitment and involvement by 
the Bilingual Department staff, bilingual teachers, 
aides, and community field coordinators in provid- 
ing quality bilingual programming to the bilingual 

2. The Charlestown High Chinese bilingual program which 
has developed a program of academic excellence which 
responds to linguistic-cultural needs of LEP students. 

3. The success of the bilingual program in graduating 
large numbers of high school c-i-ndents who in past 
years would have dropped out of school. 



1. Hire more bilingual teachers, aides, and native speaking 
supportive staff members, to insure 

that the LEP students are provided equal educational 
programming in all areas. 

This is especially true of the Cambodian and Laotian 
programs although there are non-compliance issues 
within all language groups except for the Italian. 

3. Acquire and develop curricular materials which meet 
the linguistic cultural needs of all LEP students 
in Boston especially in the areas of math, science, 
and social studies in the Cambodian, Laotian, Viet- 
namese, Haitian, and Cape Verdean languages. 

4. Insure partial and full mainstreaming of LEP students 
by providing: 

a. parallel scheduling of the bilingual and non- 
bilingual classes at the middle and high school 
levels , 

b. supportive services in the native language in 
the mainstream program, 

c. adequate space in the non-bilingual program 
classes, and 

d. parallel curricula between the bilingual and 
non-bilingual education programs. 


Insure that all LEP students are systematically and 
efficiently assessed for identification, placement, 
and transfer in and out of the bilingual education 
programs so as to provide for: 

a. appropriate LAU classification 

b. administration of the CLOZE test (language 
assessment test) in all languages before 
students are placed for instruction 

c. meeting time for language assessment team 
members to allow them to carry out their 

Insure that bilingual parents are actively in- 
volved in bilingual education programming and have 
opportunities to: 

a. request training activities which respond 
to their needs, 

b. request courses in the native language pre- 
sently offered only in English, especially 
at the high school level, 

c. be involved in the annual internal review 
in a manner that insures objective input 
into the program evaluation. 


Vocational and Occupational Education 


In its order of September 25, 1975, the United States 
District Court incorporated the "Unified Plan for Voca- 
tional and Occupational Education in the City of Boston" 
as part of the Court's May 10, 1975 School Desegrega- 
tion Plan. The Unified Plan was filed with the Court on 
September 8, 1975 and amended on June 14, 1976 and 
January 28, 1978. 

The Unified Plan for Vocational and Occupational Education 
includes eight (8) major areas: (1) compliance with rele- 
vant court orders, state laws and regulations; (2) district 
core programs; (3) magnet programs; (4) in-school bilingual; 
(5) out-of-school youth, ages 16-21;* (6) vocational/occupa- 
tional education for special needs students; (7) program 
changes; and (8) program support components. Each com- 
ponent of the Plan contains a set of activities for improv- 
ing vocational/occupational education in the City of Boston. 


The process for monitoring the implementation of this man- 
date by Boston has involved two major aspects: (1) data col- 
lection and analysis and (2) on-site visits to selected 
schools. The data compilation was accomplished through a data 
collection instrument to which Boston responded with informa- 
tion and supportive documentation. On-site visits were con- 
ducted for the purpose of verification, clarification and 
obtaining additional information. Future reports to the court 
will address the quality of vocational education in the City 
of Boston. 

The present report expands the list of major monitoring ob- 
jectives from six to eight, in order to more accurately re- 
flect and coincide with elements of the Unified Plan. The 
ultimate goal is to determine the extent to which the ac- 
tivities of each discrete component of the Unified Plan have 
been accomplished and in the process to assess the quality 
of vocational and occupational education in the City of Boston. 
Each component contains distinct objectives and raises key 

*0n June 14, 1976, the United States District Court granted 
a joint motion filed by the State Board of Education and the 
City of Boston to delete this section from the Unified Plan. 



1 . Compliance with Relevant Court Orders- State Laws 
and Regulations 

To determine if all vocational/occupational educa- 
tion programs (1) conform to racial ratios estab- 
lished by the Court and (2) comply with the ad- 
missions criteria specified by the Unified Plan, in- 
cluding proportional representation by sex. 

QUESTIOISB : How does Boston justify disproportionate enroll- 
ments by race and sex in certain skills-training 
programs? What is being done to remedy this 


Some vocational /occupational programs which were cited in 
the previous report for disproportionate enrollments by sex 
have shown improvement: (For example, at West Roxbury High 
School, female students were underrepresented — less than (391-392) 
35% of program enrollment in the drafting program according 
to the March 1983 Boston Public School Profile. However, 
current class rosters obtained during on-site visits show 
that female students now represent 40% of the enrollment in 
that program.) While some of these programs included in 
the survey sample remain disproportionate by sex, evidence 
suggests that this trend is being reversed. Those programs 
cited for disproportionate enrollments by race continue to 
show disproportionality . To a great extent, this is at- 
tributable to the lack of adherence to court-approved racial 
ratios when school administrators assign students to oc- 
cupational/vocational programs. Magnet programs are an ex- 
ception to this practice and any changes for students in 
these programs are done by the Department of Implementation. 


2 . District Core Programs 

To determine whether middle school career exploratory 
programs, as well as high school exploratory and em- 
ployability programs, are in place as specified by the 
Unified Plan. 

QUESTION Which programs are currently operational? What 

steps has Boston taken to comply with the district 
core program provisions? 



Boston has made significant efforts to increase the 

level of career education in the middle schools through ,__.__q . 
its inclusion in the overall curriculum. Boston is cur- (A-y^) 
rently in the final stage of developing a city-wide car- 
eer education plan, and recently completed new curriculum 
guides for all grade levels which also include some car- 
eer education objectives for middle schools. Of 14 middle 
schools visited, all except the Cheverus and the Dearborn 
offer exploratory programs in at least two of the three 
required clusters. In addition, they also offer computer 
literacy and education, the current focus for business pro- 
grams. The previous report noted that the Grover Cleveland 
Middle School, the largest middle school in Boston, had ap- 
pointed a full-time career education coordinator as re- 
quired by the Unified Plan. This position has been elimi- 
nated this year. 

Four high school exploratory programs reopened while (395,396,) 
three high school Distributive Education employability (424) 
programs have been closed. Brighton and Madison Park are 
the only high schools with core programs (exploratory 
and employability) in full compliance with the requirements 
of the Unified Plan. (The Plan requires that each district 
provide instruction in three exploratory clusters: (1) Food/ 
Home/Services/Health Related, (2) Industry Related, and 
(3) Business/Distribution and Government Related.) All 
high schools, with the exception of East Boston High, have 
students attending skill training programs in all three re- 
quired employability cluster areas in the Humphrey Occupa- 
tional Resource Center. The required employability clusters 
are offered in only one district. 


3. Magnet Programs 

To determine whether all required magnet satellite 
programs are in place as specified by the Unified Plan. 

QUESTIONS: Why are certain court-ordered magnet programs not 
being offered? What is being done to implement 
these programs? 


Enrollments in magnet/satellite programs have decreased from (398,399) 
a total of 649 during the previous year to the current total 
of 551. 

Enrollments at the Humphrey Occupational Resource Center have 
not increased significantly over the previous year (from 2,589 
to 2,796) . 


No magnet program is offered in District Il-Jamaica Plain 
High School as required by the Unified Plan. 


4. I n-Schoo 1 Ri lingual 

To assess the provisions for supportive services, 
including administrative, counseling and instruc- 
tional support services, to limited English pro- 
ficient students enrolled in vocational/occupational 
programs . 

QUESTION: Are appropriate support services being provided 
to limited English proficient students in those 


The development of a Bilingual Vocational Education Policy (aoo-aq^) 
constitutes a positive step toward structuring a compre- 
hensive system for delivering vocational education ser- 
vices to limited English proficient students. This policy 
is not in compliance with the requirements of the Unified 
Plan. On the other hand, the Unified Plan's approach to 
Bilingual Education is not consistent with current State 
legislation. The procedures and provisions of the new 
policy have not been widely disseminated and integrated into 
the vocational/occupational education programs. 

The most salient concern regarding services to 2,919 limited 
English proficient students is the lack of an adequate num- 
ber of bilingual aides. Based on the distribution of 
limited English proficient students in vocational programs 
at the Humphrey Center by native language, the need for 
Cambodian and Cape Verdean aides should be a major priority. 


5 . Out-of- Sch ool Youth - Ages 15-21 

To assess provisions for services to out-of-school youth, 
ages 16 - 21. 

QUESTION; What is the nature and scope of services being pro- 
vided by the responsible agency? Are these services 
being coordinated with the Boston Public Schools? 



In view of the transition from the former Comprehensive 
Employment and Training Act to the newly enacted Job (405) 
Training Partnership Act, provisions for services to 
out-of-school youth are in the developmental stages. 
The agency responsible for providing these services, the 
Neighborhood Development and Employment Agency, has 
recently prepared a Job Training Plan which contains a 
description of services to be provided to out-of-school 
youth, ages 16-21. The implementation of this proposed 
service plan will be monitored and findings reported in 
the next report to the court. 


6 . Vocational/Occupational Education for Special 
Needs Students 

il) to determine if vocational and occupational 
program services for special needs students are 
maintained, (2) to assess vocational and occupa- 
tional instructor training in understanding and 
working with special needs students. 

QUESTIONS: Do the Boston Public Schools continue to pro- 
vide vocational education services for this 
target population? What action has been taken 
to provide vocational and occupational educa- 
tion instructor training in understanding and 
working with special needs students? 


As cited in the July, 1983 monitoring report. Volume II, 
Boston has made significant achievements in instituting 
procedures and provisions for the comprehensive delivery 
of vocational and occupational services to special needs 
students, essentially exceeding the requirements set forth 
in the Unified Plan. 


7. Program Changes and Deletions 

to ascertain what action is being taken by Boston to 
complete all program relocations as specified by the 
Unified Plan. 



QUESTION; If such relocations are not desirable, what 
motions have been filed with the Court to 
modify the Unified Plan? 


The situation has not changed since the previous reporting 
period. Boston has indicated an intention to close the (408) 
Machinist program at East Boston High School and the Up- 
holstery/Cabinetmaking program at Dorchester High School 
rather than relocate them to the Humphrey Center. Such 
action would be contrary to the existing provisions of the 
Unified Plan. 


8 . Program Support Component s_ 

a. Management Modifications 

to determine if a distinctive management structure 
for vocational and occupational education has been 
implemented as specified in the Unified Plan 

QUESTION: What action has been taken to institute and im- 
plement this structure? 


Boston has yet to institute a distinctive management 
structure which defines clear lines of authority over fiscal 
and programmatic operations to insure an effective voca- (409) 
tional and occupational education delivery system as speci- 
fied by the Unified Plan. The Director of Education and 
Employment does not have fiscal authority over all voca- 
tional and occupational education programs under the cur- 
rent management structure. Furthermore, evaluation of 
outreach efforts and annual systemwide program activity and 
accountability reports are not managed systematically. 

b. Public Information 

to examine steps taken by Boston Public Schools 
to institute and implement a systematic, aggres- 
sive and pervasive public information system for 
vocational/occupational education . 


QUESTION: What action has been taken to appoint a full- 
time experienced public information officer to 
implement this system? 


Boston has undertaken a variety of activities to im- 
plement marketing and information strategies, although 
these efforts have not encompassed the scope, impact and 
thrust of the public information system described in the 
Unified Plan. It remains necessary to appoint a full-time, 
experienced public information officer to coordinate an 
aggressive and pervasive campaign. 

c. Industry/Agency/Community Involvement 

to determine if the composition of the Advisory Coun- 
cil for Career, Vocational and Occupational Education 
(ACCVOE) is representative of all target groups speci- 
fied by the Unified Plan. 


QUESTION; What action has been taken to modify the compo- 
sition of the ACCVOE to comply with requirements 
of the Unified Plan? 


Full compliance has been achieved in the composition of 
the Advisory Council for Career Vocational and Occupational 
Education (ACCVOE) . The current ACCVOE includes all target 
groups and representatives specified in the Unified Plan. 
The minutes of the most recent meeting of the ACCVOE, October 
25, 1983, suggest that this council provides meaningful and 
effective input into the improvement of vocational education 
in the City of Boston. 

d. Professional and Inservice Development 

to determine what action has been taken to develop and 
implement equal educational opportunity, bilingual 
vocational education and special needs inservice train- 
ing for all vocational/occupational instructors. 


QUESTION: Has a training plan been developed to address this 


A comprehensive plan to provide inservice training in equal 
educational opportunity, bilingual vocational education and 
special needs to instructors systemwide has not been sub- 
mitted pending contract negotiations between the Boston School 
Committee and the Boston Teachers' Union. 



e. Curriculum Acquisition/Revision 

to review efforts to develop a full-scale Personalized 
Competency-Based Vocational Curriculum for all pro- 
grams at the Humphrey Occupational Resource Center 
and other schools. 

QUESTION: What is the status of curriculum development and 
revision for all vocational and occupational edu- 
cation programs? 


The previous monitoring report indicated that Boston has 
engaged in efforts toward the development of a full-scale (4-1-1 AA^\ 
Personalized Competency-Based Vocational Curriculum for ' 
all programs at the Humphrey Occupational Resource Center 
and selected programs at other schools. This thrust has 
continued. The production of curriculum has been stalled, 
however, due to an on-going union grievance against curricu- 
lum development by teachers during regular working hours. 

f - Comprehensive Job Development and Placement 

to determine whether a comprehensive and respon- 
sive city-wide job development and placement com- 
ponent based upon current manpower demands, system 
capabilities and student capabilities/interest is 
in place. 


The development of a city-wide comprehensive job develop- lAT-i ata) 
ment system, as specified by the Unified Plan, has not been ' 
fully instituted. Based on a previous action plan developed to 
address this concern, a city-wide coordinator was to be selected 
and assigned to coordinate this activity in conjunction with 
the Boston Compact Work Group commencing April 4, 1983. To 
date, this has not been done. 


1. Policies and procedures should be developed to en- (tqo aoo-) 

sure that assignments to vocational/occupational //i9t\ 

programs conform to court-approved racial ratios. K^^J) 


2. Boston should review its core program offerings /tqc tqt^ 

at the middle and high school levels and bring ' 

them into compliance with the specifications of 
the Unified Plan. 

3. Boston should expand its magnet program offer- 
ings to include districts not represented. Con- 
certed efforts must be made to increase enrollments 
in existing cooperative programs. 


4. Immediate action must be taken to provide the necessary 
aides at the Humphrey Center and, where appropriate, 

in other vocational/occupational programs throughout 
the city. 

5. No recommendations 

6. Boston is to be commended for developing and imple- 
menting a number of laudable vocational education pro--.-^_. 
grams for special needs students, including the Spe- 

cial Needs Assessment Program at the Humphrey Center, 
a variety of vocational programs at the Jackson Mann and 
McKinley Schools, and the Occupational Service Develop- 
ment Centers at Charlestown, Dorchester and Hyde Park 
High Schools. 

The one area that should be strengthened is inservice 
training to assist all vocational and occupational edu- 
cation instructors in understanding and working with 
special needs students. 

7. If the designated relocations are not desirable a motion 
must be filed with the Court to modify the existing order, 


8a. If the organizational and management structure as speci- 
fied in the Unified Plan is not programmatically and (407,438) 
financially desirable, a motion must be filed with the 
Court to modify the existing order. 

8b. If Boston has initiated other viable means of imple- 
menting and achieving the goals of this segment of the 
Unified Plan, a motion must be filed with the Court to 
modify the existing order. 

8c. Boston is to be commended for action which has been taken 

to comply with provisions of the Unified Plan to ensure (412,439) 
that the ACCVOE continues to evolve as an active and ef- 
fective council to assist in the development and delivery 
of quality vocational/occupational education. 


8d. Now that contract negotiations are completed, a 

comprehensive training plan should be developed Mil) 
to address these concerns. When staff development 
procedures have been outlined, the plan can be im- 


8e . It is commendable that Boston has engaged in a M14 441 ) 
series of curriculum improvement activities. ' ' 

Boston has submitted to the Division of Occupa- 
tional Education a comprehensive plan for com- 
pleting Personalized Competency-Based Vocational 
Curricula for all vocational/occupational programs. 
These efforts must be expanded and directed toward 
completing the development/revision of curricula 
in other areas. 

8f. A coordinator should be appointed to oversee M1S-41fil 
the comprehensive city-wide job development M4 "1-448^ 




Transportation shall be provided according to the standards 
contained at pages 80-8 3 of the Student Desegregation Plan, 
dated May 10, 1975. 


The Director of Equal Educational Opportunity is responsible 
for monitoring student transportation for desegregation; trans- 
portation of substantially-separate special needs students was 
monitored by the Division of Special Education. Monitoring 
concentrated on the process of arranging transportation and 
on procedures for responding to complaints. Monitors (1) visited 
the Transportation Unit, examined its operations, and interviewed 
the Director and members of his staff; (2) reviewed data including 
sample routing schedules, transportation data by school and 
geocode , and all complaint forms submitted as of October 14' and 
(3) reviewed findings and recommendations with the Senior Offlcerj 
Department of Implementation. 


1. To approve proposed transportation arrangements 

developed pursuant to the approved student assign- 
ment plan each year, assuring that such arrangements 
will adequately support both desegregative and pro- 
gram assignments. 


Transportation arrangements for 1984-85 will be reviewed in the 
Spring 1984. 


2. To determine whether transportation arrangements are in 
place for the opening of the school year in September. 

QUESTION: Have adequate transportation arrange- 
ments been provided for desegregating 
schools and programs? 



Some schools report that transportation has improved 

lander the new contract, but it is still the case that (451) 

frequent changes of route assignments cause problems 

with missed pick-ups and punctuality^ 

The criteria and procedures for deciding which students (451-452) 
should receive a bus assignment and which should use public 
transportation have not been reviewed for a number of years. 


3. To monitor complaints received by the Boston Public 
Schools in relation to transportation, and to assess 
whether appropriate responses have been made. 

QUESTION: What kinds of transportation complaints 

are being reported, and how is Boston 
responding to these problems? 


Procedures for handling complaints have been strengthened, 
but do not yet include either a systematic review of (452-453) 
contractor resolution of problems or a method for identi- 
fying recurrent problems. 

Discipline issues arise frequently on certain routes, and (452) 
may have a negative impact on attendance and on desegrega- 
tion compliance. 


The Transportation Unit is to be commended for improvments in 
transportation services and its own monitoring procedures. 


1. The School Department should review the procedure 

for allocating bus and MBTA transportation from (454) 
the perspectives of fairness and school bus safety 
and discipline. 


2. The Transportation Unit should develop and 
implement a procedure for identifying "trouble 
spots" through use of the complaints system, 
and for identifying and following up on 
inadequate responses from the contractor. 

3. The School Department should review its proce- 
dures for controlling excessive changes of route 

4. The use of monitors - a reimbursable transportation 
expense - should be explored for routes which 
experience persistent discipline and safety issues. 





Construction, renovation and closing of school facilities 
shall occur according to the standards contained in the in- 
terlocutory Order of June 21, 1974; the Plan of May 10, 
1975, pages 6-7; the Memoranda and Orders of May 6, 1977, 
pages 37-40; August 15, 1979; March 21, 1980; April 2, 
1980; and the Order on Joint Defendants' Motion for Adop- 
tion, May 11, 1981. 


The Director of School Building Assistance has conducted 
the reviews, assisted by the Division's Regional Center 
staff, through meetings with Boston staff in the Depart- 
ment of Implementation and the Office of the Deputy Su- 
perintendent for School Operations. 


1. To determine whether all school closing measures 
ordered by the Court have been fully complied 

Compliance reported in July 1983 Monitoring Report. 


2. To review all proposed construction, renovation, 
and other school facility measures for consistency 
with desegregation and other requirements of the 

QUESTION: Have the renovation plans for Burke and Dor- 
chester High Schools progressed as expeditiously 
as possible? 


Priority has been given to renovation of Burke and Dorchester 
High Schools- Approval of the Burke awaits action by the City 
of Boston. Joint long-range secondary school planning has not 


No construction, renovation, or other facility measures are 
being planned with the Commonwealth at this time except for 
renovation at the Jeremiah E. Burke High School. The reno- (472) 
vation project at Dorchester High School was approved by the 
Board of Education at its June 28, 1983, meeting. Approval 
of the Jeremiah Burke proposal awaits filing of certain re- 
quired material by the City of Boston. Board approval of 
this project is anticipated in January 1984. 

Although there have been reports that the City of Boston is 
currently planning a construction project to upgrade Boston 
Latin School, the School Building Assistance Bureau is not 
assisting in such planning. If Boston intends to proceed 
with plans to build another Boston Latin School, this should 
be integrated into an overall secondary facilities plan. 
The Department of Education should be included in such ef- 
forts. Under current procedures, projects beyond Burke and 
Dorchester must await development and approval of a com- 
pleted Secondary School Facilities plan, a component of 
the court-ordered Unified Facilities Plan. 


3. To review the placement or proposed placement of 
any portable unit, or the rental of any space for 
instructional purposes, for consistency with the 
desegregation and other requirements of the Court, 

QUESTIONS: Are there any plans for the rental of any 
space for instructional purposes? Are 
these plans, if any, consistent with re- 
quirements of the Court? 


Monitors have been informed of no plans for the rental of 
space for instructional purposes. 


4. To determine the extent of compliance with out- 
standing orders with respect to development of a 
Unified Plan, including a schedule of further 
school closings, a schedule of construction, 
renovation, replacements, as well as repair and 


refurbishing of all facilities, and a plan for 
secondary school utilization, in accordance with 
the provisions of the Manual for District Planning 
Activities and other requirements of the Court. 


Have discussions occurred among the "joint 
planners" about a long-range secondary 
school facilities plans as a necessary part 
of the United Facilities Plan? What pro- 
gress has been made toward determining 
priorities for the available resources and 
for possible closings? 


Joint long-range Secondary School Facilities Planning has not 
yet commenced. 



It is recommended that the final long-range plan not be sub- 
mitted without assurances that it is approvable by the De- 
partment of Education. It is further recommended that any 
potential upgrading of Boston Latin School include the par- 
ticipation of the Department of Education and be incorpo- 
rated as part of the final long-range plan. 




Safety and Security 


School Safety and Security shall be provided according to the 
standards contained in the following order: 

Further Order Concerning Security, September 5, 1975 (this order 
replaces Order or Motion for Relief Concerning Security, December 4, 


On-site monitoring was conducted at nine schools: English High, 
Madison Park High, Hyde Park High, Brighton High, Charlestown 
High, South Boston High, West Roxbury High, Boston Prep and 
Thompson Middle. Monitors interviewed school administrators and 
other school staff, and some parents and students. The Deputy 
Superintendent for School Operations and the Chief of Safety 
Services and their staff were consulted on several occasions. 
Monitors also talked with the head of the local school bus drivers 

The following reports were reviewed and analyzed: School Incident 
Reports for May, June, September, October, 198 3; Safety Depart- 
ment report on staff deployment; a CPC report (March 1983) on 
school bus safety; and a report on alternative schools. Monitors 
also talked with the staff of the Safe Schools Commission. 


1. To review monthly reports on school incidents with 
special attention to those perceived as racial in 

QUESTION: Of those schools initially identified as 

having either (1) sporadic but serious 
racial violence (Charlestown, Hyde Park) 
or (2) a high incidence of violence within 
the school (English, Hyde Park, Brighton, 
Thompson) what steps is Boston taking to 
identify causes for these problems and 
provide solutions? 


Most schools cited in the July Report for higher occurrence (475) 
of safety-related or racial incidents appear to have taken 
some steps to improve safety and security. In most cases, 
however, it is too early to determine positive outcomes with 
certainty. _fiQ_ 

English High and Charlestown appear to have done the (475-476) 
most: both have placed greater emphasis on clustering 
and counseling of incoming ninth graders; both have in- 
creased counseling and other support services in general 
through additions to the permanent staff. University pairings 
and the involvement of outside service agencies. Both schools 
have assigned or deployed additional staff to deal specifically 
with discipline and safety-related issues. In addition, English 
High now houses a new alternative program serving 110 students, 
the Fenway School, and is actively involved in planning for 
additional alternative programs. Charlestown has developed an 
improved system of keeping track of students with discipline 
problems. Both of these schools have had considerable support 
from Boston central office in making these changes. 

The other schools have made less dramatic changes: 

Madison Park has been involved in ongoing efforts to improve 
security through its School Improvement project, an in-house 
alternative program, and numerous ties with outside social /psy- 
chological support agencies. 

Brighton High has emphasized the need for greater sensitivity and 
consistency in dealing with discipline and security problems. 
It has assigned teachers to regularly monitor certain critical 
areas in the building in which security problems have repeatedly 

Hyde Park High has deployed its new Housemasters to handle 
discipline problems. It also offers many internship and work- 
study incentives, but has taken little direct action to reduce 
violent incidents involving students who are habitual offenders. 

The Thompson Middle School has attempted to work more directly 
with the neighborhood in reducing external security problems, 
but has taken few significant steps to resolve internal prob- 
lems involving safety, security and discipline. 

Headmasters at English, Madison Park and, to an extent, Charles- 
town, saw their schools as having some extra-ordinary safety 
and security problems. Some Headmasters interviewed claimed 
other schools, not monitored, had safety situations which are 
the same or worse than theirs, but were not reported on in the 
same way. 

Examination of most recent statistics confirm English High's (495-506) 

continuing safety and security problems (97 incidents - more 

than three times the number reported for any other school for 

September-October) , despite its increased efforts to improve 

safety. All of the other schools cited appear to remain at 

the same level or lower level of incidents cited in the July 

Report. (The Thompson Middle School has no reported crimes 


against persons or safety-related incidents for September- 
October) . 

QUESTION: What steps is Boston taking to investigate 

the extent of safety problems on school 
buses and to remediate such problems? 


Boston has done little in-depth investigation of safety (481-483) 
problems on school buses, nor have they developed a 
specific plan for addressing safety problems on par- 
ticularly troublesome runs, except on a case-by-case 
basis. There are no present plans to install monitors. 

QUESTION: In those schools with high numbers of 

violent incidents, what steps are being 
taken to develop effective alternative 
programs for those disruptive students 
not benefiting from the regular school 


English High and the King Middle School have this year 

initiated alternative education programs within their (484-488) 

schools. Madison Park, South Boston High, the Cleve- (512-518) 

land Middle School (LOG school) have continued their 

alternative programs developed in the past. Boston 

Prep is an alternative education school drawing some 

disruptive and other non-achieving students citywide; 

it is in its second year of operation. In addition, 

both the Tileston and the McKinley are special needs 

schools, to which students with maladaptive behaviors 

are often referred. All of these programs include 

some 'marginal' students who are sometimes disruptive 

and are not achieving in the regular school program, 

but none are equipped to appropriately serve "hard-core", 

habitually offending students who are cited by school 

officials as the major cause of most of the crime and 

disruption in schools. 

The Office of School Operations is awarding competitive 
planning grants (to $750.) for the development of new 
alternative programs. 


QUESTION: Have problems of inconsistency in 

incident reporting between schools 
been resolved? 


Boston appears to be making some efforts through its 
Safety Department to make sure that the types of inci- 
dents specified in The Safety Procedural Manual are (489-491) 
accurately and completely reported. Safety staff at 
particular schools are sometimes asked to report inci- 
dents directly to the Safety Department Office to insure 
that the separate reports submitted by the Headmaster are 
complete and accurate. If there are discrepancies, the 
Deputy Superintendent contacts the Headmaster directly. 
Also, safety staff are occasionally switched to other 
schools to avoid compromising complete and accurate re- 

Both Deputy Superintendent Peterkin and Chief of Safetv 
Services Chistolini admit some continuing problems with 
complete and accurate reporting which require vigilant 

There are still problems within some schools in getting 
students and staff to follow through on their incident- 
reporting responsibilities. Some teachers cite a lack 
of response on the part of school administrators for 
those incidents that are reported. On the other hand, 
both building and central office administrators cite 
increased instances of "alleged" but unsubstantiated 
assaults being used to support 'safety' transfer requests 
out of certain schools, English High in particular. 


Most of the important issues relative to safety and security 
covered in the July Report remain, with these exceptions: 

- the possession and use of weapons is seen as a (478-479) 
growing concern by the Safety Department and the 

Deputy Superintendent. 2 6% of all crimes against 
persons and safety-related incidents reported for 
September-October involved weapons. 

- In September-October, reported incidents at South (477-495) 
Boston High were up slightly (16 for September- 
October compared to 9 for January-April. Four 

have been racial.) 



2. To confirm the adequacy of arrangements for dealing 
with race-related incidents, including, for example, 
the existence of an emergency reporting and action 
plan for school and law enforcement personnel. 


Compliance stated in July report, no change. 


3. To confirm that the student discipline code and its 
implementation deal adequately with racial slurs and 
other actions tending to create race-related incidents 


Findings relative to this are contained in Student Discipline 


4. To review quarterly reports on deployment of law 
enforcement personnel in South Boston Schools. 


There have been no significant changes in deployment (409-411) 
patterns of Boston School Police. 


5. To confirm that plans exist to close any school in 
the event that safety cannot be assured (as the 
Court specifically ordered in 1974 for South Boston 
High) . 


Compliance stated in July Report 



To review the adequacy of provision for biracial 
monitors in troubled schools. 


See July Report and Parent Organizations' Report 


Boston should be commended on its recent efforts to develop 
more effective alternative education options for disruptive 
and non-achieving students. Both the Fenway School and Boston 
Prep have impressed the monitors as holding promise for helping 
many of these students. 

Boston needs to : 

1. Put more serious effort into investigating and resolving 
safety problems on some school bus runs; 

2. Continue its efforts to expand alternative programs; 

3. Work more closely with the Courts and other outside 
agencies through the CHINS (Children In Need of Services) 
program and other collaborative efforts to provide more 
effective programs and strategies for 'hard-core' 
multiple offenders in schools; 

4. Continue to scrutinize its incident -reporting procedures 
and implementation to insure accuracy, consistency and 
completeness in reports; 

5. Strengthen its policy on the possession and use of 
weapons, including stronger penalties, and more student, 
parent, and school-based efforts to eliminate them from 


Student Discipline 


Student discipline shall be enforced according to the standards 
contained in the Order Approving Addition to Code of Discipline, 
January 9, 1975. 


Schools that were identified in the July I983 Monitoring Report 
as having high and/or disproportionate (by race) suspension rates, as well 
as schools that had low and proportionate suspension 
rates, were monitored on-site. Factors in each school were 
examined to determine causes of suspensions as well as to Iden- 
tify existing successful alternatives. Those schools with high 
and/or disproportionate suspension rates were also monitored to 
find out what, if anything, they had done to respond to being 
cited in the previous report. Finally, statistical analysis 
on suspension statistics for the entire school year I982-I983 
was completed to validate previous statistical analysis and to 
identify any other schools with high and/or disproportionate sus- 
pension rates that were not previously cited. 



Brighton High School 
Charlestown High School 
Boston Latin School 
English High School 

Hyde Park High School 
Madison Park High School 
Edwards Middle School 


South Boston High School 
West Roxbury High School 


1. To review, on a semi-annual basis, a report of suspensions 
and expulsions at each school, with the nature of the of- 
fense, the grade, race, and sex of the students affected, 
and the length of time for each suspension, 

QUESTIONS Which Boston Public schools have: 

significant disproportionate suspensions by race? 

high suspension rates as compared to other Boston schools? 

low suspension rates as compared to other Boston schools? 



Statistical Analysis 

Statistical data on suspensions for September-November I983 
is not available for review by monitors until February 1984. 
However, statistical analysis for the entire school year 
I982-I983 revealed that all schools cited in the previous 
report, except for Hyde Park High, maintained the suspension (519-52O) 
rates previously cited: At the high school level, Charles- 
town High continued to suspend students at almost three times 
the rate of any other high school, with English High having the 
second highest suspension rate. Boston Latin School continued 
to suspend Black students at two and one-half times the ex- 
pected rate, while Brighton High and East Boston High, Char- 
lestown High and the Umana School suspended Black students at 
a significantly higher rate than expected. Suspensions for 
White students at Jamaica Plain, Burke, Madison Park, Copley 
Square and the Umana High Schools continued to be significantly 
lower than expected. The only statistic that significantly 
changed was that of the high rate of suspensions for White 
students at Hyde Park High, which dropped to the expected rate. 

At the middle school level, the Edwards continued to have a 
suspension rate two and one-half times that of any other mid- 
dle school, while the Roosevelt, Michelangelo, and the Gavin 
have suspension rates high enough to merit on-site monitoring. 
The Roosevelt, Michelangelo, Gavin and Thompson Middle schools 
also had significantly higher rates of suspension than expec- 
ted for Black Students. 

At the elementary level, the McKay School continued to have the 
highest suspension rate, while the Eliot School ended the school 
year with a suspension rate high enough to require on-site 


2. To monitor on site if necessary, schools in which there are 
apparent patterns of inequitable application of the Code of 

QUESTION: What school factors appear to contribute to nigh 

rates of suspension (e.g., school climate, staff 
attitudes, methods of discipline, multiple sus- 
pensions for a small number of students)? 



Factors that Contribute to Discipline Problems 

Although discipline Is administered more equitably than in the 
past, and although new programs and staff exist that address 
discipline, significant discipline problems still remain in (520-523) 
many of those schools visited. These discipline problems were 
found to be greater at schools identified as having high and/or 
racially disproportionate suspension rates. Discipline prob- 
lems were cited as existing in many forms, among them: class 
cutting, tardiness, disruptive behavior, vandalism, graffiti , 
robbery, assault, and possession of weapons. On-site monitoring 
linked several factors to these discipline problems. 

In some schools, especially at Boston Latin School, Hyde Park 
High and West Roxbury High, there are a noticeably small number 
of Black or Hispanic administrators. Also, staff in many schools 
visited, especially Black staff, said that certain White staff 
take a confrontlve approach with Black students, especially Black 
males, which can result in the escalation of a minor problem into 
a major one. 

In addition, those students who begin middle or high school lacking 
basic skills, and experiencing academic frustrations, are most 
likely to experience discipline problems. Teachers cited over- 
crowded classes and a lack of appropriate textbooks and supplies 
as Impeding their efforts to address the needs of these students. 
At the same time, staff stated that a certain percentage of teachers 
lack a sensitivity to students, a non-confrontatlve approach to 
behavior management, and a creative approach to curriculum. 

At all schools visited, 20 to 35 percent of each 9th grade class 
were repeating that grade. Few programmatic changes exist in 
any school to provide support services or added Incentives to 
these repeating students. Some administrators at the middle school 
level admitted to giving social promotions to some of these stu- 
dents, many of whom were both overage and discipline problems, 
because their schools lack the support services and remedial help 
to meet these students' needs. 

For students with academic and/or behavioral needs, there are 
few support services outside of the classroom. Guidance coun- 
selors have caseloads that are at a minimum of 300 students, 
and most guidance efforts are geared towards the college-bound 
student. In most schools, other support services have been cut 
back, which also restricts the availability of alternatives to 


Most Importantly, staff in every school visited stated that 
among those students with academic and/or behavioral needs, 
there is a percentage (estimated between five to ten percent 
of the student population in each school) that the schools 
cannot adequately serve. This group is described as those 
students who are habitual non-attenders and habitual offen- 
ders. Their behavior not only produced continual discipline 
problems, but also disrupted the education of other students. 
Staff felt that this group of multiple offenders was respon- 
sible for most of the discipline problems within each school, 
and that the schools did not have the resources to deal with 
these students. 

QUESTION: Is the Code of Discipline being consistently 

enforced, especially regarding suspension rates 
and alternatives to suspension, in these schools? 


Inconsistency in Administering Discipline 

In addition to these findings, there are still widespread incon- 
sistencies throughout the middle and high schools. in the adminis- 
tration of the Code of Discipline. Many schools, like Charles- (523-525) 
town High and Edwards Middle, suspend students without first 
exploring all alternatives to suspension. In addition, many 
schools, like Charlestown High, Madison Park High and Edwards 
Middle, include suspendable offenses in their school-based 
rules — a clear violation of the Code of Discipline. Madison 
Park High and Charlestown High also include in their school- 
based rules 'class cutting'as a suspendable offense, contrary 
to the spirit of the Code of Discipline. Other schools, like 
South Boston High and West Roxbury High, use the flexibility 
provided within the Code to explore alternatives to suspension. 
Finally, many staff felt that certain schools did not consis- 
tently and accurately report all suspensions, although it was 
difficult to substantiate these claims. 

One cause for these problems may be that the Code of Discipline 
is cumbersome and lengthy, and therefore difficult to interpret. 
It is also apparent that the spirit of the Code and the conse- 
quences for specific offenses need to be more clearly defined 
and consistently applied. 

QUESTION: Of those schools Identified as having either 

(1) high suspension rates or 2) significant 
disproportion suspensions by race, what 
steps is Boston taking to identify causes for 
these problems and identify solutions? 



Schools with High and Disproportionate (By Race) Suspension Rates 

Eight schools were visited that had either high and/or dispro- 
portionate suspension rates (Charlestown High, English High, 
Boston Latin School, Brighton High, Hyde Park High, Madison 
Park High, Edwards Middle, and Thompson Middle). All schools 
have made some programmatic changes to address these suspension 
rates. However, each school needs to continue to address dis- 
cipline problems. Specifically, Charlestown High and Edwards 
Middle need to create additional alternatives to suspension, 
rather than use suspension as the primary means of resolving 
discipline problems. English High needs to continue to create 
alternative educational programs to compensate for some of the (525-531) 
structural problems of the building. Hyde Park needs to create 
educational programs that address those students with academic 
and/or behavioral needs. And the entire administration at Bos- 
ton Latin School needs to address the school's suspension of 
Black students at two and one-half times the expected rate. 

Schools with Low and Proportionate (By Race) Suspension Rates 

South Boston High and West Roxbury High were the two schools 
visited that had suspension rates that were low and propor- 
tionate by race. These rates were found to reflect, for the 
most part, the positive learning environment at each school. 
Factors that contributed to these low rates were (1) high 
visibility of the administration, (2) emphasizing conflict 
resolution and behavior change in administering discipline, 
(3) having alternatives to suspension, (4) high levels of 
teacher participation in the school, (5) parental contact, 
and (6) staff stability. 


Most schools, because of standardized discipline procedures, 
are administering due process more fairly than in the past. 
All schools should be commended for reviewing school-based 
rules . 

Additional staff and the creation of new positions appear to 
have helped resolve some discipline problems. All schools now 
have an Assistant Headmaster in charge of discipline. Most 
schools have more security guards who are generally better 
trained than in the past. Department heads are now strictly 
managers and this should permit an effective teacher evaluation 


process and greater teacher accountability. The School Develop- 
ment Officer and the Boston Compact have also provided jobs and 
experiential learning programs that better engage the attention 
of students who might otherwise be discipline problems. Finally, 
the Alternative Schools Director is to be commended for the de- 
velopment of alternative education programs for students whose 
needs are not being met in regular high school programs. 


Although there is more uniformity in administering discipline, 
and although all schools visited have instituted some program- 
matic changes, there continues to be inconsistency in the ad- 
ministering of discipline throughout the system. There is also 
a percentage of each school population that, because of academic 
and behavioral problems, are also discipline problems. Little 
is being done to serve this group of students, which also re- 
sults in the rest of the school population being disrupted. 

Therefore, the following recommendations are made. 

1. Efforts should be made to increase the representation of 
Black and Hispanic administrators in schools v;here they 
are lacking. 

2. In-service training for all schools on non-confrontative ap- 
proaches to behavior management needs to be given. 

3. Additional support services in all schools to address the 
needs of students with academic and behavior problems need 
to be created. 

4. Alternative programs for students who are not benefiting 
from district or magnet schools should continue to be created 

5. Alternatives to suspension need to be developed and estab- 
lished as routine practices in every school. 

6. The Code of Discipline should be revised so that it is 
shorter and more easily understood; all schools should con- 
sistently apply discipline as defined within the Code. 

7. Each school should develop a program of remediation to ad- 
dress students repeating grades. 

8. More alternative programs should be created at English High 


Institutional Pairings 


Institutional Pairings shall continue according to the 
standards contained in pages 50 through 58 of the Student 
Desegregation Plan of May 10, 1975. 


Monitoring has consisted of meetings with university and 
college coordinators, representatives of the cultural in- 
stitutions, and staff of the Tri-Lateral Council. In 
addition, all of the Chapter 636 funding proposals, which 
embody the college, university, and cultural institution 
contracts, have been reviewed by Department staff. Sum- 
maries of these proposals are included in Volume II. 


1. To determine whether the institutional pairings 
identified in orders of continuing validity are 

Status ; All of the institutional pairings, as re- 
aligned by mutual consent, were found to 
be operational in the July, 1983 report. 

QUESTION: Are the Boston Public Schools continuing to 

make a positive effort to reach mutually agree- 
able contractual arrangements with the uni- 
versities, colleges, businesses, and cultural 


At the time of this report, almost all of the universities 

and colleges are drafting new letters of agreement with 

the Boston Public Schools. These letters will describe in .^.^_^.^. 

detail a new conceptualization of the role of the colleges 

and universities. These new agreements will be monitored 

and reported on in the first six months of 1984. 


As reported in July, the contracting process is working in 
general better than it was two years ago. There have been, 
however, significant delays in completing contracts with 
MIT, Northeastern, and Boston University, delays which 
have required the universities to use their own cash re- 
serves to support projects for two to four months. Further, 
almost all pairings have suffered from lengthy delays 
in the processing and approval of budget revisions. In 
both contract and revision delays, Boston City Hall plays 
as great a role as the Boston Public Schools. 

The Boston Compact has apparently breathed new life into 

the business partnerships, and the evidence gathered (539-540) 

indicates that the Boston Public Schools are not only 

making their best efforts to negotiate agreements, but 

reaching out to request additional assistance from 

Boston-area businesses. Reports of the Tri-Lateral 

Council are included in Volume II. (547-550) 

There is no equivalent to the Boston Compact or the new 
college and university agreements in the cultural area. 
Representatives of the cultural institutions, in general, 
report "business as usual": programs are continuing^ not 
growing, and the institutions are dealing with some de- 
lays in contracts, the payment of bills and the assign- 
ment of staff. In spite of these problems, there are 
Chapter 6 36 supported cultural programs in approximately 
100 schools, and the Cultural Education Collaborative re- 
ports receiving requests from about 30 cultural in- 
stitutions who are not now involved, but would like to 
be, in working with Boston schools if sufficient funds 
were available. 


2. To determine whether the institutional pairings re- 
quire realignments. 

QUESTION: Are the realignments now occurring consistent 
with the Court's intention in encouraging the 


The alignment of the college and university pairings re- 
mains as reported in July. Tentative or preliminary 



discussions have taken place with Roxbury Community 
College, Salem State College, and others. Negotiations 
are continuing with Wellesley College. 

During this reporting period, there have been no 
evaluations of the college and university, busi- 
ness, or cultural institution pairings. Many pro- 
grams, in fact, did not get underway until late 
October or early November. 


The formation of the Boston Compact Office, under a director 
who reports to the Superintendent, and who has responsibility 
for overseeing all of the college and university pairings, 
all school-business partnerships (whether court recommended 
or not) and all cultural institution pairings, is clearly 
a step in the right direction, and may solve many of the per- 
sistent problems listed above. 


In spite of the fact that the new Boston Compact Office has 
responsibility for the cultural pairings, they remain col- 
lectively the step-child among institutional relationships. 
The School Department should work with the cultural insti- 
tutions to develop, on the basis of nine years of experience, 
a new understanding and new agreements, much as it has with 
businesses and now is with institutions of higher education. 



Parent and Student Organizations 


Court-ordered parent and student organizations shall 
operate according to the standards contained in the 
memoranda and Orders of October 4, 1974; August 24 and 
November 8, 1976; September 1, 1977; September 15, 1978; 
May 5, 1980; July 20, 1982; and August 25, 1982; and the 
Desegregation Plan of May 10, 1975, pages 86-100; and the 
Amalgamation Plan. 


Parent Organizations 

1. Information regarding the CPC and SPC was gathered 
through attendance at council meetings; review of 
the council minutes; discussion with the Executive 
Director and staff of the Council; Boston officials; 
and attendance at particular council elections. 

Student Organizations 

1. Information was received on the elections of student 
representatives to student councils as well as school 
parent councils. Plans, including a timetable, were 
developed with the Student Affairs office concerning 
the development of Communication Boards in all high 
schools to replace through modification the inopera- 
tive Racial-Ethnic Student Councils. Statistics on 
the composition of all official student organizations 
at the middle and high school levels were analyzed 
to ensure proper representation of all racial and 
ethnic groups. 



1. To determine whether parent councils are monitoring 

matters which are apt to facilitate or hinder the de- 
segregation process in particular schools, districts 
and/or citywide. For instance, are they monitoring the 
implementation of court orders for special desegrega- 
tion measures at some schools, repair and construction 
of facilities, vocational and occupational education pro- 
grams, and support of participation by college, business, 
and cultural pairings? 

QUESTIONS: What steps are being taken by the Citywide Parent 


Council (CPC) to monitor the desegregation 
process in areas not monitored by the CPC last 
year? How has Boston responded to these efforts? 
Are the tensions noted in the July report being 


Last year the parent councils monitored the desegre- 
gation process in particular schools as well as through- -cQ->_ro4\ 
out the city (see the July report) , including the imple- 
mentation of special desegregation measures at Dor- 
chester High, Burke High, and the Tobin Elementary 
School. However, due to staffing limitations, the CPC 
was not able to monitor the desegregation process in 
all of the required areas. 

This year the CPC has a complete staff in place, and (591-593) 
its monitoring unit has developed and is implementing (594-599) 
a comprehensive monitoring plan for 1983-84. The 
Desegregation Monitoring Committee of the CPC will 
expand its activities to include areas which were not 
monitored last year, and has established a number of 
subcommittees to work in specific areas. In some 
cases subcommittees will work in conjunction with com- 
munity agencies (to be identified). For instance, 
a subcommittee might have the assistance of the Mass. 
Advocacy Center in monitoring Special Education in 
selected schools. 

The Deputy Super int^^ndent of School Operations has s^" 
pressed the School Department's desire to overcome the 
difficulties encountered last year in working out 
monitoring and other agreements with the CPC. The 
School Department plans to reach "a new understanding 
with the CPC about the new milieu the BPS is entering," 
which includes a commitment to work with parents as 
responsible decision-makers in the school system. The 
office of the Deputy Superintendent of School Opera- 
tions has circulated a number of memoranda to facili- 
tate the monitoring efforts of the CPC: among them 
is the Deputy Superintendent's memorandum to principals 
and headmasters on September 1, 1983 which outlines 
the required relationship between the school adminis- 
trators and the parent councils. The CPC reports 
that the Deputy Superintendent's memorandum con- 
cerning council elections on September 1, 1983 


contributed significantly to the success of this year's 
SPC elections. 

Progress is being made in alleviating the tension re- 
ported last July between the parent councils and the 
school administrators. The problems occur most often 
when the CPC is working within the areas of collective 
bargaining, the evaluation of administrators, the re- 
view of budgets, and the rating and screening for ad- 
ministrative positions. 


2. To determine whether parents are responsible for 
planning and investigating matters which are apt 
to facilitate or hinder the promotion of racial 
harmony at their school. Also, whether they have 
access to school records and are able to send out 
pamphlets and newsletters and visit schools. And 
to determine if parent councils are proposing modi- 
fication of student activity programs and receiving 
reasonable operating expenses from the individual 

QUESTION: What is the status of parent councils' efforts 
to monitor issues involving racial harmony at 
schools cited in the last report? To what degree 
are the parent councils assuming the responsibility 
for planning and investigating matters involving 
desegregation issues in the various schools? 
What is the status of funding for school parent 
council mailings? Is Boston providing access to 
school records? 


Last year issues indirectly involving racial harmony at 
Charlestown High, Jamaica Plain High, Umana Technical, and 
the Gavin Middle School were identified and monitored by the (§gfz^§^) 
parent councils. In each of these schools the parent coun- 
cil's involvement has generated a number of meetings with 
parents, administrators, and sometimes students and teachers 
to define the problems and recommend solutions. 

Schools have agreed to provide the funds for the purchase 
of stamps and stationery. Also, the CPC has gotten favor- 
able responses from the Deputy Superintendent of School 
Operations to its request for timely school incident reports. 
The Deputy Superintendent of School Operations has issued 
an order to all principals and headmasters reasserting the 
right of SPCs to receive these reports. 



3. To determine whether the BPS is providing monthly 
and semi-annual reports by principals and com- 
munity district superintendents to parent coun- 
cils and other reasonable educational statistics 
and data analyses to the CPC. 

QUESTIONS: What is the final format and schedule for the 
provision of data reports to the CPC by 
Boston for 1983-1984? What progress is being 
made over last year in the CPC receiving other 
supplementary reports and data from Boston? 


The required monthly and semi-annual reports are being 
received by the CPC. The Boston School System ^^^ made (585) 
considerable progress in providing all requested and ap- (603-605) 
propriate information to the CPC. 


4. To determine whether parents have participated in 

the evaluation of community district superintendents 
and principals, and in the screening and rating of 
administrative positions. 

QUESTIONS: What changes did the CPC ' s subcommittee make in 
the instruments used for evaluating administra- 
tors? What is the status of the CPC ' s objec- 
tion to the postponement of screenings for per- 
manent community district superintendent positions? 


There has been little change in the status of parents' 
efforts to participate in the evaluation of school (585-586) 
administrators. The CPC has yet to draft changes in 
the instruments used for evaluating administrators. 
Last year the CPC reported the inadequacy of existing 
instruments for the evaluation of principals and 
district superintendents. Presently, the CPC is 
reorganizing all of its subcommittees, and the work of 
the subcommittee originally assigned to draft new eval- 
uation instruments has been delayed. 

The School Department has continued to postpone the screening and 
rating for permanent community superintendent posi- (607-617) 
tions and central office administrative positions. 
The CPC continues to object to these postponements. 


Also, the CPC has objected to the appointment of 
individuals to administrative positions by the 
School Committee without going through the screen- 
ing and rating process. 

BPS administrators report that often the CPC is not 
prepared to follow-up on its commitments, such as 
providing parents to serve on committees when the 
school department is ready to go ahead with major 
administrative tasks which require parent participa- 
tion. This is cited as a problem which often delays 
the work of the school department. The CPC, on the 
other hand, reports that often the CPC staff is not 
notified by Boston of the formation of committees 
which require parent participation until the last 
moment. The CPC documents this assertion with a 
number of letters from Boston, which were received 
only a few days prior to the beginning of the rating 


5. To determine whether parents are participating in 
collective bargaining, the budget review process, 
major policy planning initiatives, and training of 
school department staff as provided by the Novem- 
ber 8, 1982 Agreement. 

QUESTIONS: Has the School Department all the necessary data re- 
quested by the CPC for informed decision-mak- 
ing in the collective bargaining process? What 
has been the outcome of the CPC ' s involvement 
in the collective bargaining process? 


A subcommittee of the CPC continues its involvement in 

the collective bargaining process, and the BPS has (586) 

provided all requested data as well as technical assis- (619-623) 

tance in understanding the issues involved. In addition, 

the CPC has taken a position regarding the teachers' 

contract that stresses the rights and protection of 



6. To determine whether: (a) all elections to parent 
councils have been conducted, (b) councils are 


properly organized and meeting, and (c) council 
staff are racially balanced. 

QUESTIONS: What is the level of parent participation in 
the CPC-SPC structure? Were elections con- 
ducted in the various schools? Are the SPCs 


There was a 24% increase (from 2199 to 2722) in the 
number of parents who attended the parent councils' (586-587) 
elections this year over last year, and there was a 
22% increase (from 795 to 972) in the number of (624-627) 
parents elected to the councils. However, eight (8) 
schools have not conducted elections, and in twenty- 
seven (27) schools all of the parents in attendance 
were elected to the council. Elections in a number 
of schools have been rescheduled to take place during 
the day, so that parents will feel safe to enter some 
neighborhoods . 



1. To determine whether all activities provided under 
the Amalgamation Plan have taken place. 

QUESTION: Has Boston created a structure to provide stu- 
dent representation to parent councils? 


All high schools that have operating school parent coun- (630) 
oils have elected student representatives to these coun- (639) 

QUESTION: What steps has Boston taken to help all middle 
and high schools create Communication Boards 
to replace the Racial-Ethnic Student Councils? 



It was recommended in the last Monitoring Report 
replace the inoperative Racial-Ethnic Student Coun- 
cils in all middle and high schools with'Fairness Com- (630-631) 
mittees'^ now referred to as Communication Boards. 

These boards would address not only school issues 6 4) 

and grievances of a racial nature, but all school 
issues and grievances. These boards would consist 
of elected student representativs, as well as inter- 
ested faculty, and would meet regularly with the 
headmaster of the school to discuss recommendations 
of the board. However, in order to implement this 
proposal, Boston must file a modification to the 
Amalgamation Plan. 

Considerable progress has been made towards the imple- 
mentation of Communication Boards in all high schools. 
The Student Affairs office is coordinating a pilot pro- 
gram, including training of Communication Board repre- 
sentatives and advisors, in ten of the seventeen high 
schools. These high schools are scheduled to have 
operating Communication Boards by March 1984, with the 
remaining high schools to receive training and then 
implement their Boards by October 1984. Similar plans 
need to be developed for all middle schools as well. 

QUESTIONS: What steps has Boston taken to develop and im- 
plement uniform student council election 
standards? What was the level of student 
participation in the elections this fall? Where 
the level was low, what has been done to correct 


The Office for Student Affairs reported that all schools (629) 
have elected student councils; however, some schools did 
not submit student council data to central administra- 
tion. There was no data available on the level of stu- 
dent participation in the individual elections. Elec- 
tions were in accord with guidelines established by the 
Student Affairs office. 


2. To review the composition of the Boston Student Ad- 
visory Council, as well as the student councils in 
all middle and high schools. 


QUESTION: Of those school identified as having dispro- 
portionate representation on student councils, 
what steps has the school taken to identify 
causes and provide solutions? 


Finally, all student organizations, including the 

Boston Student Advisory Council, that submitted data (631) 

on student composition were found to have proper repre- (634-638) 

sentation of racial and ethnic groups. Those schools 

that did not submit data will be reviewed for the coming 


Student Organizations 

The Student Affairs staff should be commended for their 
commitment and efforts to develop meaningful student 
organizations. All middle and high schools should be 
commended for having functioning student councils. 
Those schools that are participating in the pilot imple- 
mentation of Communication Boards should be commended 
as well. 


Parent Organizations 

The monitors recommend that the CPC and local SPC ' s 
(with the support of BPS central administration) become 
more actively and directly involved in Chapter 636 proposal 
development and program implementation. It is an appro- 
priate means by which parents can assume the responsibility 
for planning and promoting matters which are apt to facili- 
tate racial harmony in schools. Although there are now 
provisions for parent participation in the 636 proposal 
development process, the participation by parents so far 
has not impacted upon the use of 636 funds (Chapter 636 
guidelines call for parent participation in the develop- 
ment of proposals and the implementation of programs.) In 
addition, A Staff Report on Chapter 636 to the Board of 
Education which was submitted by the Bureau of School Pro- 
grams calls for the development of a plan to ensure more 


meaningful participation of parents in the planning of 
Chapter 6 36 programs; the Final Evaluation and Docu- 
mentation Report of Chapter £35 rrojects 1QG 2 G3 , 

prepared by the School Department's Department of Budget Coordina- 
tion, Office of External Grants^ calls for a "more ag- 
gressive pursuit" of parental involvement in the 
Chapter 636 proposal development; and the CPC has 
reported that the lack of parent participation in 
the Chapter 636 program development and implementation 
continues to be a problem. 

Student Organizations 

In order for the Communication Board to replace the 
moribund Racial-Ethnic Student Councils as a part of 
the Amalgamation Plan, a request for modification must 
be made in the manner described in the Orders of Disen- 
gagement (December, 1982) . 







The dispute resolution process (section V of the December 
22, 1982 Orders of Disengagement) was invoked on five oc- 
casions during the present monitoring period. In four 
instances, the complaints were initiated by Plaintiffs, 
with the remaining complaint initiated by Plaintif f-In- 
tervenors. Four of the disputes were apparently resolved 
at the level of complaining party/defendant negotiations 
(Section V (c) of the Orders) . The fifth dispute, in- 
volving the permanent appointment of a Senior Officer for 
Equal Educational Opportunity, was raised by Plaintiffs 
on July 11, 1983, and settled by Plaintiffs and the Bos- 
ton Public Schools on August 30, 1983. Plaintiffs had 
requested State Board mediation on August 17, but the dis- 
pute was resolved before the mediation session took place. 







The procedure for modification of outstanding desegregation 
orders (section VI of the Orders of Disengagement) was not 
invoked during the present monitoring period. 



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