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From Open Enrollment to Controlled Choice: How Choice-Based Assignment Replaced the Neighborhood School in Cambridge, Massachusetts

Published online by Cambridge University Press:  07 August 2019

Abstract

In 1981, Cambridge, Massachusetts, became the first school district in America to replace its neighborhood schools with a “controlled choice” assignment plan, which considered parental preference and racial balance. This article considers the history preceding this decision to explore how and why some Americans became enamored with choice-based assignment at the expense of the neighborhood school in the late twentieth century. It argues that Cambridge's problematic experience with open enrollment in the 1960s and 1970s created a vocal, consumer-oriented, and politically active class of parents who became accustomed to choice and, by the early 1980s, dependent on its benefits. Moreover, controlled choice proved especially attractive in this university community because Cambridge had a constituency of well-educated, middle-income parents who possessed the social capital to identify the best educational opportunities for their children, but lacked the economic capital to use real estate to gain access to their preferred schools.

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Articles
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Copyright © History of Education Society 2019 

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References

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42 “Cambridge Acts on Imbalance,” Boston Globe, April 22, 1965, 2; and “Tobin Recommends Plan for Relieving Racial Imbalance,” Cambridge Chronicle, Oct. 21, 1965, 1. Figure 3 shows the population demographics of the entire catchment area, not just demographics of the children who attend a particular elementary school. The population demographics of a catchment area could be different than the population demographics of a school as children attending private schools would not be included in a public school's demographics.

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53 The city did not begin to record the racial breakdown of its elementary school population until the mid-1960s, when the Racial Imbalance Act mandated this data collection. As of 1965, five schools - Putnam, Thorndike, Haggerty, Harrington, and Fitzgerald - were classified as “Racially Isolated.” They had a “non-white” population of less than 5 percent. Houghton, the only school classified as “Racially Imbalanced,” had a non-white population of 55.1 percent. Such numbers suggest that as of 1965, Cambridge's “non-white” elementary school population was unevenly distributed throughout the city, regardless of whether its individual schools violated the RIA. “Tobin Recommends Plan for Relieving Racial Imbalance,” Cambridge Chronicle, Oct. 21, 1965, 1–2.

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86 “Board Hears Transfer Request”; and Richard Paul, “Tobin Racial Imbalance Denied by School Dept.,” Cambridge Chronicle, Sept. 16, 1976, 1–2. As of 1976, 15.5 percent of students at the Peabody School were classified as “non-white” in contrast to 41.9 percent of students at the Tobin School. Richard Paul, “No Imbalance Here, Says School Census,” Cambridge Chronicle, Nov. 4, 1976, 1–2.

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93 According to Gerald Kohn, Project “SPAN” stood for “System-wide Planning for a New High School” but became the name for the planning process tasked with supervising elementary school desegregation. Gerald Kohn, interview by author, Amherst, MA, 2011.

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97 Kohn, interview. King “Open” referred to a “school-within-a-school” magnet school located within the larger Martin Luther King School. It opened in 1976, was parent-run, and accepted students from throughout the city, not only from the King catchment area. “King School Opens Its Doors,” April 15, 1976, Cambridge Chronicle, 4.

98 Elaine Spatz-Rabinowitz and Morris Rabinowitz, “An Open Letter to the School Committee,” May 27, 1980, SPAN Testimony folder, Koocher Papers.

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100 Stephen Hantman to Alice Wolf, April 4, 1980, Wolf Papers.

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102 Cunha, “No Deliberate Speed,” 63.

103 “Racial Balance Advisory Committee's Recommendation on Short and Long Range Issues,” Racial Balancer folder, Wolf Papers.

104 “Families Respond to School Desegregation Plans,” Cambridge Chronicle, March 27, 1980, 4.

105 Heather M. Leslie, “Choosing Schools: Parents, Students and Administrators Balance Race, Class and Education,” Harvard Crimson, April 14, 1993, https://www.thecrimson.com/article/1993/4/14/choosing-schools-pmore-than-a-decade.

106 Eve Odiorne Sullivan, “Maintain Neighborhood School,” Cambridge Chronicle, May 27, 1976, 4.

107 Pamela Varley, “Deseg Plan Fair?,” Cambridge Chronicle, Feb. 19, 1981, 1.

108 Michael Alves, interview by Joseph Taff, Milton, MA, Aug. 24, 2011.

109 Michael Alves, interview by Elysia Chandler, Milton, MA, Aug. 26, 2013.

110 Chandler, interview

111 Chandler, interview.

112 Kohn, interview.

113 On controlled choice plans outside Cambridge, see, for example, Erica Frankenberg, “Assessing Segregation”; Olivia Herrington, “Choosing Classrooms: Controlled Choice Policies in NYC Public Schools,” Harvard Political Review, Dec. 1, 2015, http://harvardpolitics.com/united-states/choosing-classrooms-controlled-choice-make-new-york-citys-education-system-equal/; Erica Frankenberg and Lisa Chavez, “Integration Defended: Berkeley Unified's Strategy to Maintain School Diversity” (Berkeley: UCLA Law School, Civil Rights Project, 2009), http://issuelab.org/permalink/resource/9870; and Kahlenberg, Richard, All Together Now: Creating Middle-Class Schools through Public School Choice (Washington, DC: Brookings Institution, 2003)Google Scholar.

114 William C. Lannon, Francis H. Duchay, Alice Wolf, and Charles V. Willie, “Striving for Equality: Controlled Choice and School Desegregation in Cambridge, Massachusetts,” panel discussion, History of Education Society 50th Annual Meeting, Cambridge, MA, Nov. 5, 2010. Audio recording of session in possession of author. For more of Willie's thinking on the development of controlled choice, including the limitations of the neighborhood school model and the importance of choice and competition, see also Alves, Michael J. and Willie, Charles V., “Controlled Choice Assignments: A New and More Effective Approach to School Desegregation,” Urban Review 19, no. 2 (1987), 7576CrossRefGoogle Scholar; Willie, Charles V., “The Evolution of Community Education: Content and Mission,” Harvard Educational Review, vol. 70, no. 2 (Summer 2000), 199200CrossRefGoogle Scholar; and Willie, Charles V., “Controlled Choice Avoids the Pitfalls of Choice Plans: Response to John Chubb and Terry Moe,” Educational Leadership 48, no. 4 (Dec.- Jan. 1990–1991), 6264Google Scholar.

115 Alves, Michael, “Cambridge Desegregation Succeeding,” A Chronicle: Equal Education in Massachusetts 4, no. 4 (Jan. 1983), 216Google Scholar; Cambridge School Department, “Cambridge School Desegregation Plan,” May 1, 1980, box 1, Koocher Papers; and Cambridge School Department, “The Cambridge Controlled Choice School Desegregation Plan: A Decade of Success” (1990), Cambridge (MA) Public Schools.

116 Alves and Willie, “Controlled Choice Assignments,” 67–70.

117 Willie and Alves note that, “it is the ‘forced choice’ dimension of policy that gives controlled choice its existential power. Just as parents must think about why they should enroll their children in certain schools, each school must face the question of how to become more attractive to students on a desegregative basis.” Alves and Willie, “Controlled Choice Assignments,” 79.

118 Friedman, Milton, “The Role of Government in Education,” in Economics and the Public Interest, ed. Solo, R. A. (New Brunswick, NJ: Rutgers University Press, 1955)Google Scholar.

119 On how neighborhood school assignment plans can exacerbate segregation, see, for example, Garcia, David G., Strategies of Segregation: Race, Residence, and the Struggle for Educational Equality (Oakland: University of California Press, 2018)CrossRefGoogle Scholar; Goyette, Kimberly A. and Lareau, Annette, Choosing Homes, Choosing Schools (New York: Russell Sage Foundation, 2014)Google Scholar; and Rothstein, Richard, The Color of Law: A Forgotten History of How Our Government Segregated America (New York: Liveright Publishing, 2017)Google Scholar.

120 Diego Ribadeneira, “Cambridge Desegregation Plan Praised,” Boston Sunday Globe, April 5, 1987, 42.

121 Peterkin, Robert S. and Jones, Dorothy S., “Schools of Choice in Cambridge, Massachusetts,” in Public Schools by Choice: Expanding Opportunities for Parents, Students, and Teachers, ed. Nathan, Joe (St. Paul, MN: Institute for Teaching and Learning, 1989), 136–37Google Scholar.

122 Peterkin and Jones, “Schools of Choice in Cambridge, Massachusetts,” 138.

123 Gia Kim, “Cambridge Schools Fail to Achieve Racial Balance,” Harvard Crimson, Feb. 18, 1992, https://www.thecrimson.com/article/1992/2/18/cambridge-schools-fail-to-achieve-racial/.

124 “Educational Choice Success,” Oct. 11, 1988, White House Workshop on Choice folder, box 4, John Klenk Files, 1988–1989, White House Staff and Office Inventories, 1981–1989, Ronald Reagan Presidential Library, Simi Valley, CA.

125 “The Perfect Storm: Nine Reforms to Revolutionize American Education,” U.S. News & World Report, Jan. 11, 1993, 59.

126 Scott S. Greenberger, “Cambridge Eyes Income, Not Race, for Desegregation,” Boston Sunday Globe, Dec. 16, 2001, 1.

127 Richard, Alan, “Cambridge Becomes Latest District to Integrate by Income,” Education Week 21, no. 16 (Jan. 9, 2002), 11Google Scholar. For a thorough evaluation of Cambridge's decision to implement socioeconomic integration, along with the implications of this policy, see Kahlenberg, All Together Now.

128 Tracy Jan, “An Imbalance Grows in Cambridge Schools,” Boston Globe, July 23, 2007, 1.

129 Sugrue, Sweet Land of Liberty, xxiii.

130 On Boston's busing crisis see, for example, Lukas, J. Anthony, Common Ground: A Turbulent Decade in the Lives of Three American Families (New York: Vintage Books, 1986)Google Scholar; Delmont, Matthew and Theoharis, Jeanne, eds., “Rethinking the Boston ‘Busing Crisis’ Special Section,” Journal of Urban History 43, no. 2 (March 2017), 191293CrossRefGoogle Scholar; and Formisano, Ronald P., Boston Against Busing: Race, Class, and Ethnicity in the 1960s and 1970 (Chapel Hill: University of North Carolina Press, 1991)CrossRefGoogle Scholar. On “busing” in the American imagination, see Delmont, Matthew F., Why Busing Failed: Race, Media, and the National Resistance to School Desegregation (Oakland: University of California Press, 2016)Google Scholar.

131 Gary Orfield, “Forward,” in Jennifer B. Ayscue and Slyssa Greenberg with John Kucsera and Genevieve Siegel-Hawley, “Losing Ground: School Segregation in Massachusetts,” (Los Angeles: The Civil Rights Project/Proyecto Derechos Civiles, May 2013), vi-vii, https://www.civilrightsproject.ucla.edu/research/k-12-education/integration-and-diversity/losing-ground-school-segregation-in-massachusetts.

132 On contemporary urban experiments with choice and re-segregation see, for example, Dana Goldstein, “San Francisco, A Hard Lesson on Integration,” New York Times, April 25, 2019, 1; Michelle Chen, “New York's Separate and Unequal Schools,” The Nation, Feb. 20, 2018, https://www.thenation.com/article/new-yorks-separate-and-unequal-schools/; and The Century Foundation, “The Benefits of Socioeconomically and Racially Integrated Schools and Classrooms,” April 29, 2019, https://tcf.org/content/facts/the-benefits-of-socioeconomically-and-racially-integrated-schools-and-classrooms/.