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BOSTON PUBLIC LIBRARY
COMMONWEALTH OF MASSACHUSETTS
BOARD OF EDUCATION
REPORT NO. 2
TO THE UNITED STATES DISTRICT COURT,
DISTRICT OF MASSACHUSETTS
BOSTON SCHOOL DESEGREGATION
FEBRUARY 1, 1984
MASSACHUSETTS BOARD OF EDUCATION
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
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.
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COMMONWEALTH OP MASSACHUSETTS
BOARD OF EDUCATION
REPORT NO. 2
To The United States District Court
District of Massachusetts
Boston School Desegregation
February 1, 1984
GOl'Ti^T"' '' TEMT"
Monitoring Reports 9
Special Desegregation Measures 27
Special Education 37
Bilingual Education ^5
Vocational and Occupational
Safety and Security 69
Student Discipline 75
Institutional Pairings 8l
Parent and Student Organizations 85
Dispute Resolution 95
(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.
SECOND MONITORING REPORT
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 #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
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
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
7) Additional support for Burke
and DorchesLsr High holds
promise for improving desegre-
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
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
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,
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 DESEGREGATION AGENDA FOR 1984
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
(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
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
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
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.
OTHER REPORT I FIM)INGS
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)
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
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
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.
PRINCIPALS AND HEADMASTERS
Minority 6 (19%)
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
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
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-
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
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-
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
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
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)
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-
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
High School to
city. In respo
lished a Busine
What are the re
of the program?
and has Boston
that the conten
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
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-
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
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
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.
OTHER REPORT I FINDINGS
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-
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)
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)
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
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
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
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
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-
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
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.
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-
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-
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-
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-
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
a. parallel scheduling of the bilingual and non-
bilingual classes at the middle and high school
b. supportive services in the native language in
the mainstream program,
c. adequate space in the non-bilingual program
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
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
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
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
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
Enrollments in magnet/satellite programs have decreased from (398,399)
a total of 649 during the previous year to the current total
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
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
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
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
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-
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
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.
RECOMMENDAT I ON S / COMMEND AT I ON S
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
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
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-
Transportation arrangements for 1984-85 will be reviewed in the
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-
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
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
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
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
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
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
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-
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
QUESTION: Have problems of inconsistency in
incident reporting between schools
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
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 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.
SCHOOLS CITED FOR HIGH AND/OR DISPROPORTIONATE SUSPENSION RATES
Brighton High School
Charlestown High School
Boston Latin School
English High School
Hyde Park High School
Madison Park High School
Edwards Middle School
SCHOOLS WITH LOW AND PROPORTIONATE (BY RACE) SUSPENSION RATES
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 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
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
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
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 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
2. To determine whether the institutional pairings re-
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
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.
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
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
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
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-
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
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
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
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
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
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
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.
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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