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Governing Greater Boston Meeting the Needs of the Region’S People GREATER BOSTON

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Governing Greater Boston Meeting the Needs of the Region’S People GREATER BOSTON Governing Greater Boston Meeting the Needs of the Region’s People GREATER BOSTON Ipswich Rockport Topsfield Hamilton Essex Middleton Gloucester Wenham North Reading Danvers Beverly Manchester-by-the-Sea Wilmington Reading Lynnfield Littleton Carlisle Peabody Wakefield Salem Bedford Burlington BoxboroughActon Woburn Stoneham Marblehead Saugus Lynn Concord Swampscott Winchester Melrose Lexington Bolton Malden Nahant Stow Maynard Lincoln Medford Arlington Revere Everett Belmont Hudson Waltham Somerville Chelsea Sudbury Cambridge Weston Watertown Winthrop Marlborough Wayland Newton Framingham Brookline Southborough Wellesley Boston Hull Natick Needham Ashland Dedham Quincy Sherborn Dover* Milton* Cohasset Hopkinton Westwood Hingham Braintree Holliston* Medfield Scituate Norwood Weymouth Canton Randolph Millis Norwell Milford Medway Walpole Holbrook Rockland Stoughton Hanover Marshfield Norfolk Sharon Franklin Pembroke Bellingham Wrentham Foxborough Duxbury The Greater Boston area includes 101 cities and towns extending west to Route 495 under the Metropolitan Area Planning Council’s jurisiction (below). The U.S. Census includes more communities under the Standard Metropolitan Area (SMA) and Standard Metropolitan Statistical Area (SMSA). Copyright © 2003 by Rappaport Institute for Greater Boston John F. Kennedy School of Government Harvard University 79 John F. Kennedy Street Cambridge, Massachusetts 02138 ISBN 0-9718427-1-X Library of Congress Control Number: 2003090564 Governing Greater Boston Meeting the Needs of the Region’s People Charles C. Euchner, Editor 2003 Edition Rappaport Institute for Greater Boston Cambridge, Massachusetts Table of Contents About the Rappaport Institute . ix Acknowledgements . xi Preface . xiii Chapter 1 Governing Greater Boston: Fragmented Bodies, Fragmented Policies, by Charles C. Euchner . 1 State Government . 3 The Governor • Constitutional Officers • The State Legislature • The Judiciary State Authorities, Commissions, and Councils. 18 City and Town Government . 25 City Government • Town Government Parties and Elections . 32 The Future of Governance in the State and Region . 37 Chapter 2 Connecting the Region and Its People: Civic Leadership in Greater Boston, by James C. O’Connell . 39 Greater Boston’s Civic Legacy. 42 The Vault • A Fractious Local Culture The Challenges of Civic Leadership . 46 Impacts of Globalization on Local Business Leadership • Social Capital and the Civic Sector Issues Requiring Regional Attention . 52 Key Players in Civic Leadership . 54 Powerful Individuals • Major Corporations • Business-Oriented Organizations • Charitable Organizations and Foundations • Social Entrepreneurs • Public Policy Think Tanks, Watchdogs, and Advocates • Media Options for Improving Civic Leadership . 64 Transparency and Feedback • Strengthening Existing Organizations • Leadership Development • Creating a New Regional Coalition Toward a More Robust Civic Life. 70 v vi Governing Greater Boston Chapter 3 The New Face of Greater Boston: Meeting the Needs of Immigrants, by Irene Bloemraad with the assistance of Daniel Scholzman . 71 Understanding the New Face of Greater Boston . 75 Kinds of Immigrants • Race, Ethnicity, National Origin and Language Policy Actors . 84 The Federal Government • The State Government • Local Governments • Nonprofit Service Providers and Advocacy Groups • Foreign Governments and Consulates Issues Facing the Region. 88 Processing Newcomers • Tracking Aliens • Becoming Citizens • Voting and Elections • Overcoming Linguistic Barriers • Dealing with Discrimination • Work and Income Security • Building Coalitions and Community Building a New Boston. 105 Chapter 4 The Zone of Vulnerability: Poor and Working Class Families in Greater Boston, by Hilary Roxe . 107 The Changing Family in Greater Boston . 108 Trends in the State and Region . 110 Who Needs Help? . 111 The Lives of Children. 112 Children’s Health • Children’s Nutrition • Child Care • Children’s Protection Family Assistance. 116 The Process • Legal Recourse • The Results Employment . 120 A Changing Workforce • Workforce Development • Organized Help • Job Flexibility • Tax Breaks • Welfare to Work • Process • Mutual Aid Nutrition . 127 Food Stamps • WIC • School Meals • Effectiveness Players in Family Policy . 132 The Federal Government • State Government • Local Governments • Nonprofits and Foundations Rethinking Family Policy . 136 Redefining Poverty • Workforce Development • Dealing with Federal Changes • Streamlining the State System The Future of Family Policy . 140 Table of Contents vii Chapter 5 Creating Communities of Learning: Public Education in Greater Boston, by John Portz . 143 Players in Education Policy. 145 The Federal Level • State Level • Local Level Understanding Accountability. 151 Education Reform and the Birth of MCAS • Assessing MCAS • Accountability at the National Level • Local Accountability The Choice Movement . 158 School Choice • Charter Schools • Funding for School Choice and Charter Schools Equity and School Funding . 163 Serving Special Populations . 166 Special Education • English-Language Learners and Bilingual Education Excellence in the Classroom . 171 Where Learning Happens . 172 The Future of Education in Greater Boston . 174 Chapter 6 Health Care at the Crossroads: A Guide for the Perplexed, by John E. McDonough and Christie L. Hager . 177 A Health System Primer . 178 Inside-Government Players . 179 Federal Responsibilities and Oversight • State Responsibilities and Oversight • Local Health Departments Outside-Government Players . 189 Health Care Providers • Health Plans • Purchasers • Patients/Consumers/Advocates Challenges and Policy Options . 194 Health Provider Instability • Medicaid • Resurgent Health Care Inflation • Access to Insurance • Quality of Care • Public Health and Mental Health Services • Care for Senior, Disabled, and Chronically Ill • Racial and Ethnic Health Disparities • Workforce Challenges Health Care’s Future in Greater Boston. 207 viii Governing Greater Boston Chapter 7 Aligning Resources, Needs, and Wants: Public Budgeting and Management, by Bruce A. Wallin. 209 Expenditure Pressure . 210 Health Care • Education Reform • Capital Spending and Debt Service • Management Rules/Contracts • Other Expenditure Pressures Revenue Adequacy. 218 State Revenues • Local Revenues Budgetary Processes . 223 Players. 226 Options . 229 Cost Containment in Specific Areas • Management Reforms • More Stable Revenue Systems • Budget Processes Managing Budgets in a Boom-Bust Economy . 242 Endnotes . 243 About the Authors . 269 Index . 273 Board of Advisors The Rappaport Institute for Greater Boston, based at the John F. Kennedy School of Government at Harvard Charles D. Baker, Jr. University, works with universities, public agencies, and James T. Brett other organizations in the region to improve the gover- Karl E. Case nance of Greater Boston. The Institute offers five critical David W. Ellis resources to pursue this mission: William Fowler, Jr. People: Reaching out to graduate and professional stu- Thomas M. Keane, Jr. dents from throughout Greater Boston, the Rappaport Alex Krieger Institute coordinates fellowship programs that place the Marcia I. Lamb “best and the brightest” in meaningful policy positions in government agencies. Vivien Li Patricia McGovern Research: The Rappaport Institute coordinates a wide range of research projects that provide useful information Jerry Rappaport and analysis. In addition to the Governing Greater Boston Robert Smith series, the Institute issues other major reports, applied Benjamin Taylor research, working papers, and case studies on a wide range Susan Tracy of issues. Elaine Ullian Forums: The Rappaport Institute convenes forums of all Greg Watson types and sizes to engage the community in open-ended Martha Weinberg conversations about the public policy challenges we face in the next generation. Information: The Rappaport Institute web site provides the foundation of a comprehensive information resource for public policy in Greater Boston. The site (www.ksg .harvard.edu/rappaport) provides useful information about the region’s public policy projects and organizations, as well as useful original research, calendars of events, and links to Boston-related research. Training: Building on the Kennedy School’s tradition of executive training, the Rappaport Institute offers work- shops and other programs for public officials, stakeholder groups, journalists, and others. Rappaport Institute for Greater Boston John F. Kennedy School of Government Harvard University 79 John F. Kennedy Street Cambridge, Massachusetts 02138 Tel: (617) 495-5091 Fax: (617) 496-1722 www.ksg.harvard/rappaport Alan A. Altshuler, Director Charles C. Euchner, Executive Director Shelley W. Kilday, Assistant Director Ashley G. Lanfer, Research Associate Paulina M. O’Brien, Staff Assistant ix Acknowledgements e are indebted to numerous scholars and practitioners who read the Wchapters in draft form and offered detailed critiques and sugges- tions for improvements and to the photographers who provided the images for the cover. Credit for the photograph of the doctor and patient at the Boston Medical Center goes to George Disario. The photo of the students was made available by the Academy of the Pacific Rim. The photo of the Spontaneous Celebrations event on the cover and the photo of the boy reading on the back of the book were provided by Ashley Lanfer. The readers of the chapters on governance and civic leadership included Ron Bell of Dunk the Vote, Charles Chieppo
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