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Full text of "Report no. 5 to the United States District Court, District of Massachusetts on Boston school desegregation"




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3 9999 06315 378 & 

COMMONWEALTH OF MASSACHUSETTS r^<t 



BOARD OF EDUCATION L.E^sTON public library 

l^Kjr^rLiJ Kjv t^vjyj^ry. 1 1 ^i ^ GOVERNMtNT DOCUMENTS DEPARTMENT 

RECFI>/CD 

AUG 8 1985 



REPORT NO. 5 



TO THE UNITED STATES DISTRICT COURT, 
DISTRICT OF MASSACHUSETTS 

ON 
BOSTON SCHOOL DESEGREGATION 

VOLUME 1 
JULY 15, 1985 



GOV DOC? J 

If 

.b67I'13B8 



MASSACHUSETTS BOARD OF EDUCATION 

Ms. Mary Ellen Smith, Boston, Chairperson 

Mrs. Mary C. Wright, Falmouth, Vice Chairperson 

Mr. Christopher H. Collins, Millis 
Mr. Robert A. Farmer, Brookline 
Mrs. Anne C. Fox, Needham 
Rev. Paul V. Garrity, Maiden 
Ms. Milca R. Gonzalez, Worcester 
Mr. James R. Grande, Hanover 
Mr. Howard A. Greis, Holden 
Mrs. Loretta L. Roach, Boston 
Mr. Joseph C. Savery, Lee 
Mrs. Dorothea A. Zanetti, Wilbraham 



Dr. John H. Lawson, Commissioner of Education, Secretan^ 
Mr. John B. Duff, Chancellor, Board of Regents, Ex Officio 



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



Joel Lidz, Editing, Proofreading 



Produced by the Bureau of Operational Support 

Cecilia DiBella, Director 

Susan Gardner, Publications/ Communications Coordinator 

Susan M. Ridge, T],ipographist 



The Massachusetts Department of Education insures equal employment/educational opportunities/ affirmative action regardless of race, color, creed, national 
origin or sex, in compliance with Title IX, or handicap, in compliance with section 504. 

PUBLICATION OF THIS DOCUMENT APPROVED BY DANIEL D CARTER, STATE PURCHASING AGENT. 

Est. Cost Per Copy $-97 



750-6-85-804091 



COMMONWEALTH OF MASSACHUSETTS 
BOARD OF EDUCATION 



REPORT NO. 5 

TO THE UNITED STATES DISTRICT COURT 

DISTRICT OF MASSACHUSETTS 

ON 

BOSTON SCHOOL DESEGREGATION 

VOLUME I 




BOSTOISI 
PUBLIC 
UBRARY 







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TABLE OF CONTENTS 

Page No. 
OVERVIEW 1 

I. MONITORING REPORTS 

Student Assignments and 

Special Desegregation Measures 7 

Vocational and Occupational Education 19 

School Facilities 25 

Staff 29 

Transportation 

( including school bus safety) 31 

Parent and Student Organizations 33 

II . DISPUTE RESOLUTIONS 37 

III. MODIFICATIONS 39 



OVERVIEW 



This is the Fifth Monitoring Report on Boston Public School 
Desegregation filed by the Massachusetts Board of Education and 
Conunissioner of Education under the Orders of Disengagement 
entered by Federal District Court Judge W. Arthur Garrity, Jr. on 
December 23, 1982. The report covers Boston Public School 
operations from December 1984 through May 1985, and is based upon 
data collected by Massachusetts Department of Education monitors 
during this period. 

A number of factors in addition to the usual time 
constraints presented impediments to our data collection effort 
during this monitoring period. Ongoing negotiations among the 
parties concerning critical unresolved issues, and the 
anticipation of certain Court orders, left the findings and 
conclusions in several monitoring areas subject to last minute 
revision. In addition, John R. Coakley, who in his role as 
Boston's Senior Officer for Implementation has both directed the 
processing of student assignments and served as primary liaison 
to the Department of Education, was hospitalized during the month 
of April. Given these circumstances, an extra measure of 
appreciation must be expressed for the assistance provided by 
Superintendent Robert Spillane and members of the Boston School 
Department, and in particular to Catherine Ellison and her staff 
at the Department of Implementation. 

The format of the present report is similar to that used in 
Report No. 4, except that the sections on Student Assignments and 
Special Desegregation Measures have been combined. In addition, 
the number of monitoring areas has been reduced to seven, the 
Board and Commissioner of Education having been relieved of 
monitoring responsibilities (with exceptions, noted below) in the 
areas of Bilingual Education, School Safety and Security, and 
Student Discipline by the Court's Further Partial Termination of 
Jurisdiction, dated May 17, 1985. Our report is once again 
presented in two volumes, with an executive summary of findings 
in the seven monitoring areas contained in Volume I, and a more 
detailed analysis of the findings plus all supporting 
documentation in Volume II. As in the past, the parenthetical 
page references in Volume I direct the reader to the supporting 
materials in Volume II. While Volume II is intended for more 



- 1 - 



limited distribution than Volume I, a copy of Volume II will 
again be made available for every school in Boston. 

The emphasis on the compliance status of outstanding orders 
has been retained, given our even greater assurance that the 
Boston Public Schools are about to enter a new phase in their 
desegregation effort. The Court's commitment to realize further 
disengagement at the end of the 1984-85 school year makes this 
focus on unrealized portions of the desegregation remedy 
imperative; it also suggests that the time has arrived to 
consider a revision in the method by which compliance is 
monitored in the future. The State Board is committed to 
continuing its oversight in appropriate remedial areas, but 
favors a more streamlined approach that places greater 
responsibilities on local officials, particularly in those areas 
not generally subject to state monitoring (e.g., staffing, parent 
organizations). For that reason, our summary of monitoring 
findings in each of the seven areas also contains suggestions for 
a future monitoring process. 



STUDENT ASSIGNMENTS: (Note that this section now includes 
assignment of bilingual students by Court order.) Assignments 
for 1985-86 have been processed, reviewed and distributed. The 
Court approved the consolidation of Districts III and IV on May 
30. While a complete analysis of desegregation gains must await 
data on September enrollments, analysis of student applications 
indicates potential desegregation improvement at Burke and 
English High Schools, but a continuing decline in requests for 
the Humphrey Center and Madison Park High School. Among proposed 
and adopted assignment modifications, the Recruitment Incentive 
Plan and the new assignment process used in Districts III and IV 
show the greatest promise of enhancing desegregation, provided 
that each is implemented with the necessary support at the school 
and central office level. 

Data provided on bilingual assignments suggests that one- 
third of middle school bilingual students have been enrolled for 
six or more years without mainstreaming. The Department of 
Education is confirming this data with on-site visits to selected 
Boston schools. 

Monitoring of all student assignments, in terms of both the 
process and the results, should continue under the auspices of 
the State Board, under its general charge to monitor racial 
imbalance and desegregation in Massachusetts public schools. The 
State Board also plans to produce a follow-up study during the 
fall of 1985 on the transition of bilingual students into regular 
education programs in Boston and other Massachusetts school 
districts . 



- 2 - 



SPECIAL DESEGREGATION MEASURES: Further progress has been 
observed at Burke High School and the East Boston Business 
Magnet. The issue of support services at the examination schools 
remains unresolved, and has been the subject of negotiations 
among the parties. 

The State Board recommends that future monitoring of special 
desegregation be combined with general student assignment 
monitoring. 



VOCATIONAL/OCCUPATIONAL EDUCATION: (Note that this section 
retains the provision of vocational/occupational education 
services to bilingual students by Court order.) Once again 
problems have been identified in several areas, including middle 
school exploratory clusters, bilingual services and management 
support. A State Board proposal for modification of the Unified 
Plan for Vocational and Occupational Education has been the 
subject of negotiations with School Defendants, Plaintiff- 
Intervenors and Plaintiffs, and the State Board hopes to forward 
its proposal to the Court at the time the present monitoring 
report is filed. 

Continued monitoring of vocational/occupational education in 
Boston should be conducted by the State Board in line with its 
statewide authority for occupational education. Assignments to 
vocational programs should continue to be monitored under general 
student assignment monitoring. 



FACILITIES: A Unified Facilities Plan was filed with the 
Court by the School Department, the City of Boston and the State 
Board. This filing was rejected by the Court, although leave was 
given to proceed with the major renovation and repair projects 
scheduled for the first year of the Plan. The Court also 
announced its intention to file further orders on facilities but 
had not done so as of June 10. Further recommendations on 
monitoring under this area await receipt of the new order. 



STAFF: A discrepancy has been noted in the progress made in 
obtaining the goal of 25% black teachers and administrators, with 
no appreciable progress in the former category and steady 
progress in the latter. More commitment to minority teacher 
recruitment and maintenance is required, as well as a review of 
the impact of the recall policy provided for under the current 
collective bargaining agreement. 

- 3 - 



Monitoring of staff desegregation can continue through 
periodic reports by the Boston Schools, similar to the reports 
currently filed under Court orders. These findings should be 
provided to the State Board and other parties of record. 



TRANSPORTATION: (Note that this section now includes 
transportation safety by Court order.) Boston has yet to respond 
to issues raised in Reports #3 and 4 regarding management of the 
transportation system. The School Bus Safety plan implemented 
last fall, on the other hand, appears to have been successful in 
reducing the number of incidents occurring on school buses. 

The areas of transportation and transportation safety may be 
monitored in the future through a combination of internal reports 
generated by the Department of Implementation and additional 
reports prepared by the Citywide Parents Council. Both types of 
reports should be provided to the State Board and other parties 
of record. 



PARENT AND STUDENT ORGANIZATIONS: The strengthening of 
parent and student organizations, either through increased 
efforts to comply with existing orders or proposals for 
modification, is still required; although the CPC has been able 
to address some of its organizational problems. Further 
strengthening of the CPC requires the creation of a narrower and 
more specific set of monitoring tasks for the organization, plus 
a clear recognition by the School Committee and School Department 
that the CPC is the parent organization responsible for all 
desegregation-related efforts, together with other mandates of 
state law where parental input is required. Both School Parent 
Councils and Racial/Ethnic Student Councils must be either 
constituted in accordance with present Court orders, or 
alternative student organization structures must be proposed 
through the modification process. 



The State Board is confident that the monitoring steps 
proposed above can be achieved by the appropriate parties after 
final orders have been entered by the Court, and that progress 
toward completing the desegregation remedy can continue. For its 
part, the State Board is prepared to pursue those issues that 
fall under its authority without the direct mandate of the 
District Court. For example, the transition of students from 
bilingual to regular education programs, identified as a concern 
in the Student Assignment section of the present report, is not 
viewed by the State Board as an issue requiring the ongoing 
oversight of the Court. This issue will be addressed through 



- 4 - 



follow-up studies in Boston and other Massachusetts communities, 
and the State Board will report its findings in the fall of 1985, 
under its authority to enforce state law. With continued 
attention to the responsibilities of state and local officials, 
the disengagement of the Court will not impede further progress 
toward the realization of a unified school system in Boston. 



Mary Ellen Smith John H. Lawson 

Chairperson, Massachusetts Commissioner, Massachusetts 
Board of Education Department of Education 



- 5 - 



- 6 - 



STUDENT ASSIGNMENTS AND SPECIAL 
DESEGREGATION MEASURES 



I. ASSIGNMENTS 
ORDERS 



Student Desegregation Plan, May 10, 1975 



FINDINGS Compliance with respect to Assignment 
Process 



The assignment process took place in 
accordance with Court-approved procedures, 
and the various steps (including 
examination school invitations and 
assignments to schools) were reviewed and 
approved. Report No. 3 (Volume II, pages 
0-103) contains a description and 
documentation of this process as it was 
carried out in 1984. 

Review of proposed assignments suggests 
that there may be some improvement in the 
number of schools in compliance with the 
racial/ethnic guidelines (taking into 



account assignments to 
programs). Because of the 
"shrinkage" of white numbers 
assignments and the actual 
(see Report No. 3, Volume I, 
Report No 2, Volume 
attempt will be made 



bilingual 

history of 

between the 

enrollments 

pages 38-39; 

II, pages 94-98), no 

to determine overall 



compliance with Court-established 
racial/ethnic guidelines until Fall 
enrollments are available. High school 
enrollments have been the subject of 
particular attention, however, and the 
projections for Fall 1985 will be 
discussed: 



- 7 - 



Projected High School Enrollments 

English and Madison Park High Schools have 
come into compliance, though at the lower 
limit, in projected white enrollment (each 
is projected to be 20% white, with a 
permitted range of 20%-30%). To some 
extent this reflects bilingual program 
assignments; the white projected 
enrollment of the two schools would be 24% 
and 23% white, respectively, without 
bilingual enrollment. 

Report No. 4 noted improvement in 
compliance with desegregation requirements 
at English, but some deterioration at 
Madison Park (Volume I, page 9). 
Comparison of the first-choice assignment 
requests made by students entering the 
ninth grade in 1983 and 1985 shows that 
requests for English are up in all three 
racial/ethnic categories, while requests 
for Madison Park are down in all three 
categories. This suggests that English 
High School is "turning around" 
educationally, and that the merger of the 
Occupational Resource Center with Madison 
Park will be confronting formidable 
barriers in converting two relatively 
unpopular facilities into a single school. 

Burke High School — a special desegregation 
school--is projected to come into 
compliance with the permitted 
racial/ethnic ranges, after several years 
of impressive effort to create a safe and 
educationally-sound program, and 
Dorchester High is projected to remain in 
compliance after achieving it in 
.1983-84. Several district high schools — 
Jamaica Plain, South Boston, Brighton — 
which were having compliance problems in 
1983-84 are projected to be in compliance 
in 1985-86. Dorchester and South Boston 
are projected to be high in Other Minority 
enrollment, but justifiably so as a result 
of large bilingual programs. 



- 8 - 



II. 



SPECIAL DESEGREGATION MEASURES 



ORDERS 



May 3, 1976; May 
April 20, 1982 



6, 1977; March 21, 1978; 



FINDINGS Partial Compliance (Improving) 

The four elementary and two middle schools 
for which special desegregation measures 
have been ordered by the Court are all 
included among the Recr-uitment Incentive 
Plan schools, and will be discussed below; 
no new monitoring of these schools, or of 
the Tobin K-8 school, took place in this 
period. 

Report No. 4 found that full compliance 
had been achieved with the voluntary 
special desegregation plan for Dorchester 
High, and no further monitoring took place 
in this period. Requirements for improved 
enrollment and staffing of the Spanish 
bilingual program at Charlestown High had 
been met, and continue to be met. Two 
special desegregation schools require 
further discussion here: 



Burke High School 

Facility improvements have largely been 
completed. Efforts to develop distinctive 
and high-quality educational programs in 
order to attract students and thus to meet 
racial/ethnic guidelines have continued, 
though uncertainty over the School Com- 
mittee's proposal to make the Burke a 
city-wide magnet school have reportedly 
led to an interruption of support from the 
central administration. (P. 19) 



East Boston Business Magnet 

The last monitoring report found that the 
administration of East Boston High School 
had undertaken promising steps to redress 
the non-compliance issues identified in 
earlier reports. These concerned lack of 
support services for students, and general 
neglect of the business magnet, which had 



- 9 - 



resulted in an undistinguished program. 
However, the report also found that the 
school administration's efforts were not 
receiving support from Boston's central 
administration. 

The picture is brighter this spring. 
Federal vocational education funds have 
been allocated to the business magnet for 
the first time and there is a promise of 
federal funds from Boston's block grant. 
(PP. 20-26) 



III. MODIFICATIONS TO THE STUDENT ASSIGNMENT PLAN 
ORDERS February 20, 1985 



FINDINGS It must be noted, of each of the measures 
discussed below, that they were requested 
by the School Committee and permitted by 
the Court; to the extent that they have 
not been implemented, and Boston continues 
to abide by previous orders of the Court, 
there is no "non-compliance" cited. 



(1) 



(2) 



(3) 



Administrative 



Consolidation 



of 



Districts 

Has not yet taken place. 

Permission for Kindergarten Students 
to Anticipate Grade 1 Assignment 

The impact of this new assignment 
provision was negligible. 

Guarantee of District High School, 
on Request 

All first-choice requests for the 
district high school were honored. 
In most instances fewer students of 
each racial/ethnic group requested 
their district high school than were 
actually assigned to it. 

The impact of this new assignment 

provision was slight. 



- 10 - 



(4) Madison Park Linked to Humphrey 
Occupational Resource Center 

While this will not be implemented 
until 1986-87, Boston is taking 
steps to assure that students will 
have the necessary information to 
make sound decisions about whether 
to apply for a ninth grade 
assignment to Madison Park/ORC next 
Spring. All eighth grade students 
in the system will participate in a 
one-week exploratory program (see 
page 19) at the Humprey Center in 
1985-86. 

(5) Recruitment Incentive Plan (RIP) 

Initial preparations to implement 
this "affirmative action to 
desegregate" are discussed below. 
In brief, notice to community 
district superintendents and 
affected principals of the 
opportunity to recruit students went 
out so late that few efforts took 
place, except in one district, and 
specific guidelines on how the RIP 
will be implemented were not 
available as of late May. This 
failure to move vigorously to 
implement a program which the School 
Committee urged the Court to accept 
in December, 1984 may be attributed 
to (a) the habit of administrators 
in Boston, at all levels, of leaving 
"affirmative action to desegregate" 
entirely in the hands of the 
Department of Implementation, and 
(b) the preoccupation of the DI with 
testing the assignment modification 
proposed for districts 3 and 4. 
(PP. 27-42) 

(6) Mather and Elihu Greenwood 
Recruitment 

No efforts were made to implement 
the new provisions for the 
Greenwood, which will be affected by 
the district 3 and 4 modifica- 
tions. Notices were sent to all 



- 11 - 



parents eligible for new Mather 
School assignments; 52 Black, 20 
White and 12 Other Minority students 
requested the Mather and were 
assigned from outside of its 
attendance area. 



(7 ) Expansion of the Hernandez Model 

Although the move to the Holland 
School and the expansion of this 
model to the Mackey Middle School 
will not be implemented until 
1986-87, preliminary discussions 
have begun and will continue over 
the next months. 



IV. DISTRICT 3 AND 4 ASSIGNMENT MODIFICATIONS 
ORDER February 20, 1985 



FINDINGS The implementation of the process of 
expanded options in Districts 3 and 4 is 
discussed below. In brief, the 
application process offered parents a 
number of "guaranteed" options, each of 
which would contribute to desegregation, 
and the assignment process gave priority 
to honoring these guarantees in such a way 
that as many choices were honored as 
possible, consistent with desegregation. 

This process was discussed on a number of 
occasions among the parties, creating a 
possible precedent for future negotiations 
about modifications in student assignments 
which would be equitable and positive in 
their desegregation impact. (PP. 43-56) 



V. BILINGUAL ASSIGNMENTS 

ORDER May 10, 1975 

FINDINGS Non-Compliance 

The academic history, Lau (language 
proficiency) category, and "step" (degree 



- 12 - 



of mainstreaming) of 7,800 students in 
bilingual programs were reviewed. This 
review raised major questions about the 
large number of students who remain for 
six or more years in a program intended to 
teach English-language skills so as to be 
transitional after three years. It 
appears that hundreds of Hispanic students 
are remaining in the program without 
achieving mastery of English-language 
skills, and that many Italian (and, to a 
lesser extent, Greek) students are 
remaining in the program after acquiring 
such skills. The resultant equity and 
desegregation problems will be monitored 
in depth over the next months. 
(PP. 57-78) 



VI. ciTYWiDE vcx:ational program assignments 

ORDER September 8, 1975 



FINDINGS Non-Compliance 



Proposed 1985-86 assignments were not 
available for review during this moni- 
toring period. The 1984-85 enrollments 
and retention rates and assignments for 
1985-86 are reviewed below. 

There is a worsening problem with 
enrollments at the Humphrey Center, due to 
the high attrition rate of all racial/ 
ethnic groups. Programs vary in their 



attrition. Desegregation 
remains poor and is not 
The Headmaster is making 
efforts to improve program 
school climate, but only a 
greatly heightened commitment on Boston's 
part will lead to the intended enrollment 
levels and desegregation compliance. 
(PP. 87-136) 



rates of 
compliance 
improving . 
significant 
quality and 



VII. 



SUPPORT SERVICES FOR MINORITY STUDENTS IN EXAMINATION 
SCHOOLS 

ORDER May 10, 1975; May 3, 1976; March 21, 1978 



- 13 - 



FINDINGS Progress in providing the support services 
recommended in previous reports is 
reviewed below. 

Monitors concentrated on four major 
efforts in following the progress of the 
examination schools to improve recruitment 
and support services for Black and 
Hispanic students: 

1. Monitors re-interviewed 64 of the 
135 students interviewed for Report 
No. 3 to determine the extent of 
improvements in counseling and other 
supports over a year. Analysis of 
results indicates that while all 
three schools continue to make 
progress in improving support 
services, more improvements are 
needed. In particular the avail- 
ability of tutors for all students 
who need them was cited as a 
continuing problem. 

2. Monitors surveyed 88 faculty members 
at all three examination schools for 
their views on causes and remedies 
for high Black and Hispanic 
attrition. In the opinion of most 
faculty members, poor academic 
preparation, poor student attitudes 
and motivation and a lack of 
effective home and community 
supports were the major reasons for 
high attrition; at Boston Technical 
High poor attendance and tardiness 
was also listed as an important 
cause. In addition, faculty also 
cited inappropriate admission 
standards. Among Black and a few 
White staff, insensitivity shown by 
some staff toward the problems of 
Black and Hispanic students was also 
cited as a cause for attrition. 
Major recommendations for improve- 
ments in reducing the attrition rate 
fell into these categories: 

(a) improvements in counseling, 
school organization and 



- 14 - 



curriculum (33.9% of total 
responses) 

(b) increased outreach to parents 
(18.4% of total responses) 

(c) staff training, changes, 
redeployment (17.5% of total 
responses) 

(d) improve academic preparation 
(15.9% of total responses) 

It should also be noted that twenty- 
one respondents provided either no 
recommendations for improving 
retention or chose not to respond at 
all. Although most faculty members 
were able to cite between one and 
five specific support services 
offered at their school (76%), many 
were not aware of other vital 
support efforts available at their 
school. This raises the question of 
how referrals to various support 
options can be made if faculty are 
not fully apprised of those options. 

3. The Director of the AWC/ATS program 
continues to report progress in 
improving the quality of that 
preparatory program, as well as 
progress toward modifying the 
identification and selection 
criteria. The quality of the 
program, however, is still far from 
where it should be. 

4. The results of individual written 
questionnaires concerning problems 
in support services and related 
issues administered to the Head- 
masters of all three examination 
schools indicate steady progress in 
making improvements. While the 
central office has provided some 
additional financial assistance 
(mostly "soft"), most efforts remain 
school-based. Efforts to retain 
needed minority staff at Boston 
Latin Academy, and efforts to 
reorganize counseling services at 



- 15 



Boston Latin School have each been 
frustrated by provisions of the 
union contract. (PP. 137-197) 



CONCLUSIONS 



Desegregation will be enhanced 
substantially if the Recruitment 
Incentive Plan is implemented 
appropriately in each of the 
designated schools, with policy 
direction and resources from the 
central and district offices. 



2. The new approach to student 
assignments tested in districts 3 
and 4 shows substantial promise to 
increase parent choices and enhance 
desegregation, if reinforced with 
recruitment efforts. 



Preliminary review of bilingual 
assignments suggests that one-third 
of the students in middle and high 
school programs (nearly half of the 
Spanish-speaking students) have been 
enrolled for six or more years 
without mainstreaming. Next steps 
will include: verifying the data 
on-site, determining whether 
students are being helped to acquire 
English-language skills, determining 
whether appropriate language and 
other support is provided to 
students after mainstreaming, and 
reviewing the process for assignment 
into and out of bilingual programs. 



Continuing review of citywide 
vocational enrollments reveals a 
worsening situation as a result of 
high attrition and low application 
rates for many programs. Neither 
desegregation compliance nor 
efficient utilization of the 
educational capacity has been 



- 16 - 



achieved. Planning for merger of 
the Humphrey Center and Madison Park 
High School (itself plagued by 
declining applications) must be a 
high priority, to assure that the 
result is improved education and 
attractiveness to students, as well 
as desegregation. 

Continuing monitoring of support 
services at the examination schools 
reveals progress but also the need 
to carry through on efforts to 
identify and provide support to 
those students most in need, as well 
as to prepare academically-gifted 
Boston public school students 
adequately in the lower grades. 

Progress — and the need to make 
more — was also observed at Burke 
High and the East Boston Business 
Magnet. 



- 17 - 



- 18 - 



VOCATIONAL AND OCCUPATIONAL EDUCATION 



I. ORDER Unified Plan for Vocational and Occupational 

Education, September 8, 1975, and amended 
June 14, 1976 and January 28, 1978. 

FINDINGS 

A. RACIAL RATIOS AND ADMISSIONS CRITERIA 

Partial Compliance 

(See Student Assignments and Special 

Desegregation Measures Report) (PP. 13; 

80-130) 



B. CORE PROGRAMS Partial Compliance 



Middle School Exploratory Clusters 

The type of program offerings and length of 
program duration still vary across 
districts. There have been some reductions 
in staff of exploratory programs. The Tobin 
School remains out of compliance in the 
Industry Related and Food-Home-Health 
Services Related Clusters. Only the 
Cleveland and Umana schools have full time 
computer technology instructors. A one-week 
exploratory program for all 8th graders is 
scheduled for September 1985. (PP. 200-201) 



Middle School Career Guidance 

The dissemination of the Barnstable 
Instructional Career Exploratory Program 
(BICEP) career education model expanded this 
year to include most middle schools. A 
transitional package facilitating 8th 



- 19 - 



graders' choice of high schools was made 
available to middle school guidance 
counselors. The role of guidance counselors 
is being reassessed to expedite the 
implementation of the Career Development 
Model and Policy. (P. 201) 

High School Exploratory 

All high schools, except English High, offer 
at least 2 exploratory Industry Related 
Programs. There are teacher shortages in 
some of these programs. Each high school, 
except Hyde Park High offers the required 3 
courses in Food-Home-Health Services. All 
high schools comply with required offerings 
in Business-Distribution-Government. HHORC 
enrollment is 24% exploratory. (PP. 201- 
202) 



High School Employability Clusters 

Major non-compliance still exists in the 
Food-Home-Health Services Cluster and 
Distributive Marketing Cluster. Full 
compliance exists in the Business Office 
Education Cluster. (P. 202) 



C. MAGNET PROGRAMS Partial Compliance 

Most of the requirements for magnet programs 
have been met. Among satellite programs, 
only West Roxbury and Dorchester High 
Schools have not had significant enrollment 
reductions. An enrollment decrease has also 
occurred at the HHORC, where retention is 
also a growing problem. 

The HHORC headmaster has begun to address 
these enrollment problems by expanding 9th 
grade exploratory options. (PP. 202-204) 

D. IN-SCHOOL BILINGUAL Non-Compliance (Improvement Shown) 

Boston is out of compliance with the Unified 
Plan requirement of native language 
programs. Inconsistency in service delivery 
exists as the result of the absence of an 
approved bilingual vocational education 
policy. There is a shortage of bilingual 



- 20 - 



aides and counselors. There are no 
bilingual counselors at HHORC, although 
there are aides and limited English 
Proficiency (LEP) support programs. 
(PP. 204-206) 



E. OUT OF SCHOOL YOUTH Compliance . See Report No. 4, 

Vol. II, pp. 190-191. 



F. SPECIAL NEEDS STUDENTS Compliance . See Report No. 4, 

Vol. II, p. 191. PP. 207-208) 



PROGRAM CHANGES Partial Compliance 

The HHORC Cabinet-Making Program will be 
consolidated with the same program at 
Dorchester High. The East Boston High 
Machine Program will close at the end of the 
school year 1985-86, as will the Fashion 
Design Program at the HHORC this year. 
(P. 208) 

If the required program transfers of 
Dorchester High's woodworking and 
architectural design programs are no longer 
desirable, a motion must be filed with the 
Court to modify the existing order. 



H. PROGRAM SUPPORT COMPONENTS: 

MANAGEMENT MODIFICATION Non-Compliance 

Boston has not instituted a distinctive 
management structure for an effective 
vocational/occupational education. Progress 
has been made in: 

(1) developing administrative procedures to 
provide the Director with firm fiscal and 
supervisory control; 

(2) evaluating the effectiveness of all 
vocational/occupational programs ; 

(3) developing an annual accountability 
report for school year 1983-84. (P. 209) 



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PUBLIC INFORMATION Partial Compliance 



While there are many public information 
materials about the HHORC, Vocational 
Education as a whole has not been adequately 
marketed. Many public information 
activities remain uncoordinated. 
(PP. 209, 211) 



PROFESSIONAL AND IN-SERVICE DEVELOPMENT 
Partial Compliance 

Vocational/occupational staff at HHORC and 
satellite programs are in need of in-service 
training in instruction strategies for 
special needs students, linguistic 
strategies for LEP students, and sex 
equity. The logistics of scheduling 
citywide training for vocational teachers 
remains a problem. (PP. 211-212) 



INDUSTRY/AGENCY COMMUNITY INVOLVEMENT 
Partial Compliance 

Membership involvement with ACCVOE has 

slipped badly. There is also a lack of 

administrative support and of sense of 
purpose. (P. 212) 

CURRICULUM ACQUISITION/REVISION Non-Compliance 

The development of Competency-Based 
Vocational Education (CBVE) curricula at the 
HHORC is still not completed, and their 
effective implementation for classroom 
instruction is not in place. A plan for the 
citywide dissemination of complete CBVE 
curricula should be developed and 
implemented. (PP. 213-217) 



COMPREHENSIVE JOB DEVELOPMENT Partial Compliance 

There has been no change since the last 
report. There is still no systemwide 
approach for job placement. Minimal 
coordination exists between the staff of the 
Private Industry Council Collaborative and 
the Boston Public Schools. (PP. 214-216) 



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CONCLUSIONS/RECOMMENDATIONS 



In each of the following areas Boston needs 
to take action: 

Core Programs 

1. Middle School Exploratory 

establish citywide standards for 
Industrial Arts curricula and program 
implementation 

2. Middle School Career Guidance 

develop an action plan for implement- 
ing the Career Development Model and 
Policy. 

3. High School Exploratory 

offer exploratory programs at English 
High 

evaluate effectiveness of existing 
exploratory programs 

4. High School Employability 

identify and extol exemplary programs 
which have retained students and 
provided job placements 

modify vocational program requirements 
at magnet high schools to increase 
citywide consistency 

Magnet Programs 

follow through on the establishment of 
a magnet computer program at Burke 
High 

develop a plan for retaining students 
in all vocational programs 

In-School Bilingual 

propose modifications to existing 
orders to provide bilingual support 
services 



- 23 - 



- have the School Committee approve the 
Bilingual Vocational Education Policy 
Paper 

- implement the vocational education 
section of the LAU agreement 

Vocational/Occupational Education for 

Special Needs Students 

- include all vocational instructors 
citywide in inservice training on 
special needs 

Program Changes and Deletions 

- propose modifications to existing 
orders if programs are no longer 
desireable 

Program Support 

- submit annual program evaluation 
reports to the Massachusetts 
Department of Education 

- centralize public information 
functions and provide adequate funding 
support 

- assure that all vocational staff 
receive the same inservice training 

- re-evaluate the operations of the 
Industrial/Agency Community Councils 

- complete, evaluate, and distribute 
Competency-Based Vocational Education 
curricula 

review and centralize all job 
placement activities including those 
now being done through the Private 
Industry Council (PIC) 



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SCHOOL FACILITIES 



ORDER 



Interlocutory Order of June 21, 1974 
(prohibits construction of or changes to 
school facilities without Court approval). 



FINDINGS Compliance . See Report No. 4, 
p. 205. (P. 236) 



Vol. II 



II 



ORDER 



III 



FINDINGS 



ORDER 



FINDINGS 



IV. 



ORDER 



FINDINGS 



Student Desegregation Plan, May 10, 1975, 
pp. 6-7 (limits size of student bodies in 
particular facilities and specifies which 
schools are to be closed). 



Compliance . See Report No, 
p. 205. (P. 236) 



4, Vol. II, 



Memorandum and Orders Modifying 
Desegregation Plan, May 6, 1977, pp. 

Compliance 



37-40 



The Unified Facilities Plan was developed 
in accordance with Court Orders and filed 
on March 25, 1985. (P. 237) 

On May 9, 1985, the Court gave permission 
for the projects identified on p. Ill B-2 
of the Unified Facilities Plan for FY 1986 
to be undertaken and authorized the parties 
to take all necessary steps to accomplish 
them. 

Further Memorandum and Order as to Unified 
Facilities Plan, August 15, 1979. 

Compliance 

A ten year facilities plan has been filed. 
(P. 238) 



- 25 - 



V. 



VI 



ORDER Orders Relating to Unified Facilities 
Planning, March 21, 1980. 

FINDINGS Compliance . See Report No. 4, Vol. II, 
p. 207. (P. 238) 

ORDER Supplemental Orders Relating to Unified 
Facilities Planning, April 2, 1980. 
(Requires closing of Mead School.) 

FINDINGS Compliance . See Report No. 4, Vol. II, 
p. 208. (P. 239) 



VII. 



VIII 



ORDER Order on Joint Defendants' Motion for 

Adoption, May 11, 1981. (Requires closing 
of 27 schools. ) 

FINDINGS Compliance . See Report No. 4, Vol. II, 
p. 208. (P. 239) 

ORDER Memorandum and Supplementary Disengagement 
Orders, September 17, 1984. 



FINDINGS Compliance 

On March 25, 1985, a Facilities Plan was 
filed. (P. 239) 



IX, 



ORDER Order to File Unified Facilities Plan, 
November 2, 1984 

FINDINGS A Unified Facilities Plan was filed on 

March 25, 1985, in accordance with these 
orders. (P. 240) 



ORDER Memorandum and Orders regarding the 

Unified Facilities Plan and Excess Seats - 
January 4, 1985. 

FINDINGS The Joint Planners filed their calculations 
of excess seats and were in substantial 
agreement. (P. 240) 



XI 



ORDER 



Approval to proceed with first year 
projects in the Unified Facilities Plan - 
May 9, 1985. 



26 - 



FINDINGS The city of Boston is processing appli- 
cations for certain first-year projects. 
Many of these will be considered for 
approval at the Board of Education's 
June 25, 1985 meeting. (P. 240) 



CONCLUSIONS/RECOMMENDATIONS 

The Board of Education now awaits the 
written findings of the Court with respect 
to the Unified Facilities Plan filed on 
March 25, 1985. (P. 240) 



- 27 - 



- 28 - 



STAFF 



I. 



ORDER 



FINDINGS 



The desegregation of faculty and admini- 
strative staff shall be implemented 
according to the standards contained in the 
orders of July 31, 1974, et al. 

The percentage of Black teachers increased 
only 0.62%, and of other minority teachers 
0.21%. The number of Black teachers 
increased from 870 to 922 (up 52), of other 
minority teachers from 351 to 386 (up 35), 
and of White teachers from 2951 to 3111 (up 
160). The mandatory level of 20% for Black 
teachers has been maintained, but little 
progress has been made towards the goal of 
25%. (PP. 393C-394; 397; 404) 



Changes 
follows 



in administrators have been as 



Black 
Black 
Other 
4.92% 
Other 
to 7. 



principals: from 23.58% to 23.77% 
administrators: from 23.80% to 24.21% 
minority principals: from 4.88% to 

minority administrators: from 7.02% 
01% (PP. 393C-395; 397; 405-407) 



Implementation of the new Court-approved 
(and simplified) promotional rating system 
for acting appointments has resulted in 
the rating of 130 department heads, 
pending appointments. In addition, since 
September 1984, 62 ratings for new 
vacancies have been scheduled, though only 
1 appointment has been made. 
(PP. 408-411; 413-417) 



CONCLUSIONS/RECOMMENDATIONS 



The lack of 
percentages of 
teachers is 



significant increase in 
Black and other minority 
a cause for concern. 



- 29 - 



Apparently, Boston's teacher recruitment 
efforts have been neither extensive, 
aggressive, well-funded nor effective. 

Boston should advertise all teacher 
vacancies widely in newspapers, and make 
strong efforts to retain current Black and 
other minority teachers. 

Boston is to be commended for its 
increased use of the promotional rating 
system. 



- 30 - 



TRANSPORTATION 



I. 



ORDER May 10, 1975, pp. 80-83 

FINDINGS Partial Compliance 

Monitors have not had a response from 
Boston relative to concerns raised in 
previous reports about a lack of strong 
management controls over transportation 
standards and procedures. In particular, 
Boston has not described how it will 
resolve problems related to lack of ade- 
quate follow-up on complaints filed with 
the transportation department. Continuing 
stories in the pess regarding incompe- 
tence, criminal records and malfeasance 
among some school bus drivers, and other 
safety concerns further emphasize the need 
for stronger management controls and a 
system of contractor and school bus driver 
accountability. (P. 421c) 



CONCLUSIONS/RECOMMENDATIONS 



Boston should develop and implement 
standards and procedures to ensure con- 
sistent, high quality transportation 
service. (P. 422) 



II. 



SCHOOL BUS SAFETY 



Monitors have continued to follow the 
progress of the school bus safety plan 
implemented in September. Evaluations 
conducted by the Department of Safety 
Services and the Citywide Parents Council 
this spring provide strong evidence that 
the new program is a success, with Boston 
reporting a 70% drop in reported incidents 
on school buses since September (90% drop 
on those buses with attendants). The 



- 31 - 



addition of school bus attendants has been 
the key to the success of the plan. The 
only major complaint coming from the 
respondents to the Safety Department eval- 
uation is a desire to see school bus 
attendants on all school buses rather than 
the few who are currently assigned accord- 
ing to a formula. (P. 422) 



- 32 - 



PARENT AND STUDENT ORGANIZATIONS 



PARENT ORGANIZATIONS 



I. 



ORDER 



FINDINGS 



Memorandum and Orders Establishing Racial 
Parent Councils, October 4, 1974, and sub- 
sequent modifying orders. 

Partial Compliance 

Further modifications in the structure and 
purposes of the councils are necessary to 
insure parent participation, to redefine 
the council's desegregation monitoring 
responsibilities and to guarantee parent 
participation in decision-making and 
planning. (P. 458) 



II. 



ORDER 



Order of May 10, 1975 mandating the 
establishment of a Citywide Coordinating 
Council. 



FINDINGS 



Compliance , 
p. 468. (P. 



See Report 
459) 



No. 4, Vol. II 



III 



ORDER 



Supplemental Order of November 8, 1976, 
concerning the role of the School Com- 
mittee in citizen participation groups. 



FINDINGS 



Compliance , 
p. 469. (P, 



See Report 
459) 



No. 4, Vol. II 



IV. 



ORDER 



Memorandum and Further Orders of 
September 1, 1977 concerning organ- 
izational relations among the Citywide 
Parents Advisory Council, the Community 
District Parent Advisory Councils and the 
Racial Ethnic Parent Councils (P. 459) 



- 33 - 



V. 



FINDINGS 



ORDER 



FINDINGS 



Compliance . See Report No. 4, Vol. II, 
p. 469. 



Memorandum 



and 



Further 



Orders 



of 



September 15, 1978 clarifying the respon- 
sibilities of the various citizen 
participation groups as well as certain 
procedural matters. 



Compliance , 
p. 470. (P. 



See Report 
459) 



No. 4, Vol. II, 



VI. 



ORDER 



FINDINGS 



Order of May 8, 1980 establishing 
procedural guidelines for monitoring 
school desegregation. 

Partial Compliance 

Procedural guidelines need to be reviewed 
and modified. (PP. 459-460) 



VII, 



ORDER 



VIII, 



Memorandum and Semi-Final Orders 
reorganizing the parent participation 
councils to increase their effectiveness. 



FINDINGS Partial Compliance 

During the past six months there has been 
improvement in (1) levels of parent 
participation in SPC's, (2) tensions 
between the CPC and the school department, 
and (3) the organizational problems with 
the CPC. (PP. 460-461) 



ORDER Memorandum and Further Orders completing 
the restructuring of the parent councils. 

FINDINGS Partial Compliance 

CPC ' s monitoring responsibilities need to 
be reviewed and modified. The issue of 
parent participation in the screening of 
applicants for administrative positions 
has been resolved. (PP. 461-462) 



CONCLUSIONS/RECOMMENDATIONS 



Strong efforts are still needed to 
develop duly constituted, effective 



- 34 - 



SPCs as mandated by Court Order. Low 
parent turn-out, and absenteeism among 
elected officers impede the functions 
of some SPCs. CPC candidates should 
have at least a year's involvement 
with the SPC before they can serve as 
CPC members. 

2. The parent councils should be retained 
as organizations independent of the 
school department, and Boston should 
make it clear that the CPC-SPC is the 
only legitimate parent organization 
responsible for parent involvement in 
the implementation of court orders, 
legislation, and/or collective 
bargaining. CPC should work with 
other parent groups for the benefit of 
all students. 

3. The Court should narrow the CPC's 
monitoring responsibilities to include 
only the areas of transportation, 
screening and rating of staff, 
collective bargaining, maintenance of 
buildings, and student recruitment 
efforts in special desegregation 
schools and/or schools named in 
special court orders. 

4. Boston and the CPC should agree to a 
procedure for determining furture 
funding levels for the CPC. 

5. All CPC reports and other findings 
should be available to all parties in 
the Boston desegregation case as well 
as all parents in the system. CPC 
should publish an annual report on all 
of its activities. (PP. 464-465) 

Recent reports of internal discord within 
the CPC suggests the need for continuing 
strong efforts to stabilize the CPC so 
that internal disputes do not impede the 
important functions of the organization as 
a whole. 



- 35 - 



STUDENT ORGANIZATIONS 



I. 



ORDER 



FINDINGS 



Memorandum and Order of 
establishing racial 
councils in every middle 

Non-Compliance 



October 
ethnic 
and high 



4, 1974 
student 
school . 



Only the Thompson Middle School had a 
functioning RESC. The councils received 
little, if any, school department aid. 
The suggestion to replace RESC ' s with 
Communications Boards has been without 
support. (PP. 467-468) 



II 



ORDER 



FINDINGS 



Amalgamation Plan, which established the 
system's student government organizations, 
and made the Racial Ethnic Student 
Councils subcommittees of racially repre- 
sentative student council. 

Partial Compliance 

Thirteen schools did not submit timely 
election data to the Student Affairs 
Office this school year. No data has been 
submitted on the election of RESC ' s or 
student representatives to SPC's. 
(PP. 468-469) 



CONCLUSIONS/RECOMMENDATIONS 



Boston must develop a policy with respect 
to RESC ' s or Communication Boards 
including a procedure, timeline and 
funding for their implementation. Middle 
and high schools must submit yearly 
election data on student councils by 
November 1 of each school year. Finally, 
student participation on high school 
School Site Councils should be encouraged 
and insured. (PP. 469-470) 



- 36 - 



DISPUTE RESOLUTIONS 



Only one dispute reached the level of request for State 
Board mediation described at section V{D)(1) of the Orders of 
Disengagement. This dispute concerned permanent appointments for 
certain members of the Department of Implementation, and was 
resolved informally between the Boston Teachers Union and the 
School Department prior to the actual commencement of the 
mediation process. 

Complaints raised by Plaintif f-intervenors, which had 
previously been the subject of Dispute Resolution at the School 
Department level, continued to be addressed by the concerned 
parties without a request for State Board mediation. At a 
hearing held on May 13, 1985, counsel for El Comite informed the 
Court that School Defendants had promised a response on these 
outstanding issues within the week. 



- 37 - 



- 38 - 



MODIFICATIONS 



Extensive negotiations among the parties were conducted 
during this monitoring period, relating to a variety of Court 
Orders. The State Board, through its counsel and the Associate 
Commissioner for Occupational Education, initiated a series of 
discussions regarding revision of the Unified plan for Vocational 
and Occupational Education. As of June 1, these discussions were 
still being conducted, though the State Board hoped to be able to 
present its recommendations to the Court in June. The State 
Board also authorized counsel to begin a series of negotiations 
regarding various modifications of student assignment orders. 
The first four meetings in this series of negotiations were held 
on May 8, May 13, May 23, and May 31, and covered School 
Defendants' proposed consolidation of Districts III and IV, and 
Plaintiffs' request for modification of orders relating to the 
Examination Schools. 

In addition to the above negotiations, which have been 
conducted in accordance with Section VI of the Orders of 
Disengagement, School Defendants, City Defendants and the State 
Board held lengthy negotiations prior to the joint filing of the 
Unified Facilities Plan. 



- 39 -