426 F.2d 1364 | 5th Cir. | 1970
Lead Opinion
This is an appeal from an order of the District Court entered pursuant to the remand from Singleton v. Jackson Municipal Separate School District (Singleton III),
Our concern is whether the system approved by the District Court is unitary. We believe that, although faculty,
I.
The Proposals for Unitary System
At the commencement of the 1969-70 school year, Jackson had 10,527 Negro and 10,432 white elementary school students attending 38 elementary schools.
A. The Basics of the HEW Plan
The plan suggested by HEW to remedy this is essentially a zone plan. It was constructed on the assumption that other alternatives were foreclosed by state statutory limitations on state-granted financial assistance to local school districts to provide intracity transportation.
B. The Results at the Elementary Level
The HEW plan was a zoning plan within the framework of the former 1-6 grade structure. The zoning was designed to maximize desegregation and was supplemented by pairing of two schools and a cross-zone assignment of two schools. It was projected that the plan would produce 5 all-white schools and 6 all-black schools with 15 predominantly
This was basically the plan adopted by the District Court.
C. Results at the Secondary Level
The direct challenge here is not, however, to the elementary system, but is to the school board’s modifications of the HEW plan — or more appropriately plans A, B, and C — at the secondary level. (See note 6, supra). The HEW plans were based on principles of pairing and zoning. All three plans resulted in breakdown of the grade structure — 6-3-3 —under which the district had previously been operating. Plan B, for which plaintiffs-appellants expressed a preference, proposes geographic zoning with junior high schools continuing to serve one or more of grades 7 through 9. Under Plan B, of the eleven junior high schools, one would serve grades 7-9, six would serve grades 7-8, and four would serve grade 9 only. Plan B calls for the same type of organization at the high school level — six high schools are to serve grades 10-12, two are to serve grades 11-12, and one grade 10 only.
The modifications proposed by the Board and adopted by the District Court were not really modifications at all. They were instead a completely different plan based on geographic zoning. The zoning was, however, based on the assumption of retaining the District’s 6-3-3 grade structure.
After approximately six weeks operation under this plan there were 7537 white students and 8156 Negro students in the District’s secondary schools. There were no all-Negro or all-white secondary schools. (See Appendix B). There are, however, at least four schools where the student body is overwhelmingly Negro.
II.
Deficiencies in the Present Plan It is not contended that the school board’s zoning plan was gerrymandered to produce little desegregation. But it is contended that the school board plan is not the best available alternative. Andrews v. City of Monroe, 5 Cir., 1970, 425 F.2d 1017. And it is contended that the board has not carried “its * * * heavy burden * * * to explain its preference for an apparently less effective method.” Green v. County School Board of New Kent County, 1968, 391 U.S. 430, 439, 88 S.Ct. 1689, 1695, 20 L.Ed.2d 716, 724. It is also claimed that
We are of the clear view that the plaintiffs'-appellants’ complaints are valid. Jackson Separate School District is not a unitary system. The deficiencies do not lie in the simple existence of some schools that are all or virtually all Negro or white. They lie instead in the fact that a substantial number of Negro students will receive their entire public school education in a segregated school environment,
This Court realizes that the time for adoption and effectuation of a plan in this school district was short and that the physical and logistical problems involved were great. And it recognizes that significant progress has been achieved both as to the student body and the other Green factors as a result of the plan put into effect pursuant to the District Court’s order. Although under the stringent mandate of Alexander v. Holmes County Board of Education, 1969, 396 U.S. 19, 90 S.Ct. 29, 24 L.Ed. 2d 19; Carter v. West Feliciana Parish School Board, 1970, 396 U.S. 290, 90 S. Ct. 608, 24 L.Ed.2d 477, this was to be a final plan, two things warrant comment. First, the Judge approached it in terms or immediacy with some expectation of correcting deficiencies
Furthermore, we are not now confronted with the problems and dislocations that a midyear change in the traditional grade structure — 6-3-3 — would involve. (See III (2), infra). Although the changes under the HEW plans for the secondary schools may require future adjustment, they are not educationally, administratively, or economically unreasonable. And it appears that under these
III.
Steps to be Taken to Correct Deficiencies In order to achieve a unitary system it is necessary that steps be taken immediately :
1. A majority to minoritv transfer rule
2. Second, the district is to adopt one of the presently available HEW plans for the secondary level for use in the 1970-71 school year. These are the only currently available plans that give any promise of presently ending the dual system.
3. The District Court shall without delay initiate proceedings to eliminate the dual system which still remains in the elementary level. The District Court shall call for new proposals from the parties, HEW, and the Bi-Racial committee.
4. Following the pattern of Ellis, suvra, and United States v. Hinds County School Bd„ 5 Cir., 1970, 423 F.2d 1264, a Bi-Racial committee is to be constituted by the District Court from names submitted by the parties to this suit. The number of members is to be left to the District Court, but there shall be no more than 40 nor less than 10 members. The membership is to be divided equally between whites and Negroes. The chairmanship is to alternate annually between a white chairman and a Negro chairman. This committee is to recommend to the school board ways to attain and maintain a unitary system.
5. Finally, the District Court is to retain jurisdiction of this case and the school board and the Bi-Racial committee are to make bi-annual reports — on December 1 and April 1 — to it on the maintenance of a unitary school system.
Reversed and remanded.
Appendix A
Projected Enrollment under HEW Plan for Elementary Schools
School White Negro Building Capacity
Sykes 544 0 576
Lee 370 0 416
Marshall 600 0 576
Baker 310 24 512
Wilkins 600 16 416
Key 513 68 576
Lester 320 152 480
Clausell 47 165 224
Isable
Reynolds 0 1009 1088
George 100 106 192
Martin 76 220 384
Lake 600 0 576
Whitfield 282 166 416
Barr 123 90 192
Poindexter 47 102 192
Robertson 6 575 544
Davis 46 182 224
Jones 70 1171 1248
Galloway 185 262 448
Brown 0 575 832
Power 383 216 544
Raines 780 72 736
French 354 83 576
Johnson 71 1023 1088
Duling 194 227 448
Casey 420 0 576
Bradley 33 293 384
Smith 0 917 928
Walton 0 527 1120
Dawson 65 387 608
Morrison 0 338 616
Watkins 773 291 608
Boyd 395 127 576
Green 380 149 576
McWillie 624 74 620
Spann 539 39 540
McLeod 500 66 608
Appendix B
JACKSON PUBLIC SCHOOLS
Jackson, Mississippi
Student Enrollment as of March 26,1970
SCHOOL
Elementary Negro Other Total
Baker 4 321 325
Barr 41 83 124
Boyd 168 420 588
Bradley 339 14 353
Brown 658 0 658
Casey 0 451 451
Clausell 201 5 206
Davis 309 55 364
Dawson 421 10 431
Duling 126 115 241
French 138 313 451
Galloway 388 170 558
George 67 ill 178
Green 123 480 603
Isable 760 0 760
Johnson 857 54 911
Jones 1248 10 1258
Key 0 487 487
Lake 0 609 609
Lee 0 365 365
Lester 99 236 335
Marshal 0 569 569
Martin 207 20 227
McLeod 50 669 719
McWillie 64 502 566
Morrison 481 0 481
Poindexter 91 85 176
Power 37 368 405
Raines 131 502 633
Reynolds 999 0 999
Robertson 317 0 317
Smith 1024 0 1024
Span n 47 491 538
Sykes 0 457 457
Walton 852 0 852
Watkins 132 517 649
Whitfield 163 238 401
Wilkins 16 490 506
TOTAL 10558 9217 19775
Secondary Negro Other Total
Bailey 514 408 922
Blackburn 593 34 627
Chastain 523 660 1183
Enochs 562 101 663
Hardy 424 758 1182
Peeples 218 864 1082
Powell 796 673 1469
Rowan 609 31 640
Whitten 346 579 925
Brinkley 1076 2 1078
Callaway 86 1027 1113
Central 192 564 756
Hill 376 50 426
Lanier 713 7 720
Murrah' 180 864 1044
Provine 278 637 915
Wingfield 51 897 948
TOTAL 7537 8156 15693
TOTAL ELEMENTARY 19775
TOTAL SECONDARY 15693
GRAND TOTAL 35468
Projected Secondary Enrollment Under HEW Plan A
Junior High •
School Grades Building White Negro Capacity
Whitten 7-8 370 165 868
Peeples 7-8 801 282 1286
Isable-Hill 9 501 ' 190 Hill 200 Isabell 500
Blackburn 7-8-9 268 756 1458
Hardy 7-8 572 697 1278
Enochs 9 248 293 830
Bailey 7-8 692
Rowan 9 285 281 996
Chastain 7-8 823 482 1234
Powell 9 509 379 1574
Callaway 7-8 456
Senior High
Hill 10 532 167 894
Wingfield 11-12 924 289 894
Provine 10-12 873 533 1180
Murrah 11-12 772 531 1180
Brinkley 10 875 762 1154
Callaway 11-12 851 759 448
Appendix D
Projected Secondary Enrollment
Under HEW Plan C
School Grades White Building Negro Capacity
Peeples-Whitten 7-8 1382 438 2154
Enochs 7-8 128 408 830
Hardy 7-8 549 587 1286
Bailey-Rowan 7-8 1243 983 2306
Chastain 7-8 884 546 1434
Hill-Isable 9-10 1022 401 1374
Blackburn 9-10 691 869 1458
Brinkley 9-10 645 531 1154
Powell ■ 9-10 1085 708 1574
Wingfield 11-12 825 338 894
Provine 11-12 507 581 1180
Murrah 11-12 707 502 1180
Callaway 11-12 779 584 998
Appendix E
RACIAL COMPOSITION OF STUDENT BODIES JACKSON MUNICIPAL SEPARATE SCHOOL DISTRICT
SCHOOLS JUNIOR HIGH: Under HEW Plan B WHITE NEGRO
Whitten 370 165
Peeples 801 282
Isable-Hill 501 190
Blackburn 268 756
Hardy 572 6^7
Enochs 248 293
Bailey 942 682
Rowan 285 281
Chastain 823 482
Powell 509 379
Callaway 206 350
Lanier 0 0
SENIOR HIGH:
Brinkley 627 629
Callaway 853 441
Murrah 707 625
Provine 741 521
Hill 456 169
Wingfield 730 276
MAGNET HIGH SCHOOLS:
Central 823 532
Lanier 734 339
. This is one of a long series of eases involving tlie Jackson Municipal School District’s operation of a dual school system. Evers v. Jackson Municipal Separate School Dist., 5 Cir., 1964, 328 F.2d 408; Singleton v. Jackson Municipal Separate School Dist., 5 Cir., 1965, 348 F.2d 729 (Singleton I); Singleton v. Jackson Municipal Separate School Dist.. 5 Cir., 1966, 355 F.2d 865 (Singleton II).
. United States v. Jefferson County Board of Education, 5 Cir., 1966, 372 F.2d 836.
. AVe note that the District Court’s order providing for the reassignment of faculty and staff obligated the school district to meet the Singleton Hi faculty-staff assignment ratio, which by its terms prescribed ratios for the 1969-70 school year, only for the 1969-70 school year. But it is plain that resegregation can occur as much from faculty assignments as from student assignments. And it is plain that any future substantial deviations from the Singleton III ratios will require a showing that there is a unitary system and that such deviations will not tend to reestablish a dual systern. We emphasize this without any prejudgment of the merits because plaintiffs-appellants have suggested in the comments requested by the Court (see notes 3, 4, 5, and 6, infra) that there is a significant possibility that the school district will abandon these ratios for the 1970-71 school year.
. Under the stringent requirements of Alexander v. Holmes County Board of Education, 396 U.S. 19, 90 S.Ct. 29, 24 L.Ed.2d 19, which this court has carried out in United States v. Hinds County School Board, 5 Cir., 1969, 423 F.2d 1264, this court has judicially determined that the ordinary procedures for appellate review in school segregation cases have to be suitably adapted to assure that each system whose case is before us “begin immediately to operate as unitary school systems.” Upon consideration of the record the court has proceeded to dispose of this case as an extraordinary matter. Rule 2, FRAP. The Court has, however, solicited supplemental briefs and data and has all necessary material for consideration on the merits. (See notes 4, 5, and 6 infra)
. At the Court's request counsel for plaintiffs-appellants and the school board supplied the Court with copies of the state statutes that restrict financial assistance to local districts for intracity bussing. Miss.Stat.Ann. § 6336-01 et seq. They were asked to comment on the constitutionality of the statutes and counsel agreed that the statutes of the state did not suffer from any constitutional defects since the school district has the power to provide transportation to pupils not eligible for state-aided bussing (Miss. StatAnn. § 6336-01).
. Counsel were also asked to comment on the extent to which these barriers were a limitation on the development of a unitary school district. The following is part- of the statement of Dr. H. Larry Winecoff, director of the team that prepared tile IIEW plan. The statement was submitted pursuant to the Court's request:
“We did not consider that there were any natural or manmade barriers in Jackson to our Junior-Senior High School program. However, at the elementary level the following such barriers exist, and were considered:
1) Highway 80 located in South Jackson. This four lane highway prevented us from assigning black children in grades 1-5 to Key and Lester and it prevented the assignment of white cliildren to Isable. We considered 6th graders old enough to negotiate this barrier.
2) There is an airport-industrial complex-golf course, located in the mid-western section of the Town. This area limited our alternatives to some extent.
3) There is a railroad freight yard in the inner-city which limited our alternatives to some extent.”
. Plaintiffs-appellants’ original complaint was that tire dual system had not been eliminated at the secondary level. Their complaints regarding the elementary level were concerned only with situations where there was a very close relationship between the elementary and secondary-level as in the Isable-Hill complex, which under the HEW plan would serve both as an elementary and 9-10 grade school. As we did in Singleton III, however, we look at the whole system. And plaintiffs-appellants have, after letter inquiry from this Court (see notes 4 and 5, supra), challenged the modifications of the elementary plan approved by the District Court. But we do not limit ourselves to these modifications. Instead, we concern ourselves with the overall workings of the system — all aspects of the elementary and secondary levels.
. The projected enrollment for each elementary school under this HEW plan is set out in Appendix A.
. The board’s proposed modifications at the elementary level focused on 8 schools. The board requested that the number of Negroes assigned to 4 predominantly white schools be reduced, that one school that was projected to be predominantly Negro be made predominantly white and that the enrollment of 3 all Negro schools be increased. The schools affected were Key, Lester, Watkins, Green, Duling, Isabelle, Walton and Morrison. See Appendix A. The District Court allowed the proposed modifications where it found that the capacity of the school would be exceeded under the HEW plan and where portable classrooms would have to be relocated.
. At the Court’s request the school board supplied the Court with the latest enrollment data available as of March 26, 1970. This information is set out in Appendix B.
. Blackburn Junior High has 593 Negroes and 34 whites, Rowan Junior High has 609 Negroes and 31 whites, Brinkley High School has 1076 Negroes and 2 whites, Lanier High School has 713 Negroes and 7 whites. See Appendix B.
. Although there is no formal feeder system up the ladder from grade 1 through 12 in the District, a comparison of attendance zone lines for elementary and secondary schools indicates that out of a total Negro student body of 10,558, about 3500 Negro elementary students attending all Negro elementary schools will attend virtually all Negro secondary schools.
. It is apparent from reading the District Court’s opinion that the practical problems faced by the school district took on great importance. It seems clear that this was the basic reason the Trial Judge adopted the school board’s secondary plan. It minimized the disruption resulting from a change in the grade structure and the need to relocate portable classrooms.
He said:
“The Board modification [as to junior high schools] would retain the current 3-grade structure; obviating the necessity of formulating new curricula for a different structure, as proposed by HEW, and would tend to lessen the additional bus transportation the HEW plans call for, all of which the Court finds are practical considerations in view of the immediacy of conversion.
* * * Changes as proposed by the HEW plans would require an extension of time, not now available, in reorganizing physical facilities, re-registering pupils, re-assigning members of the faculty, rearranging the present 3-grade curricula, constructing additional classrooms or relocating temporary or portable classrooms, and transferring supplies and equipment, including the reinstallation of biology laboratory equipment.”
. Counsel have indicated it was intended that a majority to minority transfer provision be included in the District Court’s order and that its omission was inadvertent.
. As illustrated by the following chart the HEW plans will result in no major changes in the number of students transported by the system.
Plan Students Transported
Freedom of Choice
(Prior to Remand 2379
HEW A 3567
HEW B 2234
HEW C (same as plan B) (figures for the present plan are unavailable)
In fact, HEW Plan B would reduce the transportation burden below that under the freedom of choice plan. Moreover, nearly all problems of building capacity can be solved by the shifting of presently available portable buildings. And there are no major problems of either economics or administration presented by the plan.
. In connection with both the mandatory revision at the elementary level and the likelihood of some modifications being proposed for the secondary level, it bears emphasizing that Ellis does not stand for' the universal proposition that equidistant or capacity zoning establishes unitary schools in all cases. This is the clear holding of our recent case of Andrews v. City of Monroe, 5 Cir., 1970, 425 F.2d 1017 which quotes the following from Ellis:
“ ‘Under the facts of this case, it happens that the school board’s choice of a neighborhood assignment system is adequate to convert the Orange County school system from a dual to a unitary system. This decision does not preclude the employment of differing assignment methods in other school districts to bring about unitary systems. There are many variables in the student assignment approach necessary to bring about unitary school systems. The answer in each case turns, in the final analysis, as here, on all of the facts including those which are peculiar to the particular system.’ ”
Andrews, supra, 425 F.2d at 1019, quoting Ellis, supra, 423 F.2d at 208.
. Pursuant to letter request by the Court, see notes 4, 5 and 6, supra, counsel inform us that the present school j'ear ends on June 4, 1970, and that classes begin for the 1970-71 school year on September 8, 1970.
. On this record in this posture, we do not prejudge whether, to what extent, or under what circumstances such conditions may exist and satisfy the requirements of a unitary system.
. The reports should include the following information:
I.
(a) The number of students by race enrolled in the school district;
(b) The number of students by race enrolled in each school of the district;
(c) The number of students by race enrolled in each classroom in each of the schools in the district.
II.
(a) The number of full time teachers by race in the district;
(b) The number of full time teachers by race in each school in the district;
(c) The number of part time teachers by race in the district;
(d) The number of part time teachers by race in each school in the district.
III.
Describe the requests and the results which have accrued, by race, under the majority to the minority transfer provision which was a part of this court’s order of November 7, 1969.
IV.
State the number of inter-district transfers granted since this court’s order of November 7, 1969, the race of the students who were granted such transfers, and the school district to which the transfers were allowed.
V.
State whether the transportations system, if any, in the district is desegregated to the extent that Negro and white students are transported daily on the same buses.
VI.
State whether all facilities such as gymnasiums, auditoriums, and cafeterias are being operated on a desegregated basis.
VII.
Give brief description of any present or proposed construction or expansion of facilities.
VIII.
(a) State whether the school board has sold or abandoned any- school facility, equipment, or supplies having a total value of more than $500.00 since this court’s order of November 7, 1969.
IX.
(a) Give a brief description of the work of the bi-racial committee since the last report.
(b) Copies of all recommendations made by the - Bi-Racial committee.
See United States v. Hinds County School Board, 5 Cir., 1969, 417 F.2d 852.
Not considered an all black school under the HEW plan because it was to be part of an integrated elementary-secondary complex.
(W)942, (N)682, option from Calloway overflow 8th to Rfowan.
(W)206, (N)350, option.
Rehearing
ON PETITION FOR REHEARING AND PETITION FOR REHEARING EN BANC
The Petition for Rehearing is denied and the Court having been polled at the request of one of the members of the Court and a majority of the Circuit Judges who are in regular active service not having voted in favor of it, (Rule 35 Federal Rules of Appellate Procedure; Local Fifth Circuit Rule 12) the Petition for Rehearing En Banc is also denied.