This is an historical study of the attempts to achieve racial balance in the public schools of Utica, New York between 1963 and 1975. The methodology of the study is basically historical and also uses participant observation. The overriding issue in the attempt to develop a racial balance plan was the controversy over forced busing. The study poses the question, "why wasn't a plan to implement racial balance developed by Uticans?" In answering this question, census data, the political and social composition and behavior of various groups in the city, and the complex relationships between the local school board and two Commissioners of Education of New York State are discussed. It is concluded that compulsory busing was met with opposition due to a variety of factors such as racism, fear of loss of power, loss of security, loss of status, loss of freedom and loss of physical safety. (Author/AM)