Leonie Haimson, Class Size MattersJuly 2014

UNMET NEED FOR SEATS IN NEW 2015-2019 CAPITAL PLAN

INCLUDING CLASS SIZE AND OVERCROWDING DATA FOR COMMUNITY SCHOOL DISTRICT 31

School Utilization Rates at critical levels• Citywide, schools have become more overcrowded over last six years. More than 480,000 students

citywide are in extremely overcrowded buildings.

• Elementary schools avg. building utilization “target” rates at 97.4%; median at 102%. High schools are not far behind at 95.2%.

• High ES rates in all boroughs, including D10 and D11 in the Bronx 108% and 105.6%, respectively.

• In Queens, D24 (120.6%), D25 (109.7%), D26 (110%), D27 (106.1%), and D30 (107.3%) all extremely overcrowded.

• At the MS level, D20 in Brooklyn, D24, and D25 in Queens have building utilization rates over 95%.

• Queens high school buildings have avg. utilization rate of 110.7% and Staten Island high school buildings 103.2%.

Data source: Blue Book target utilization rates 2012-2013

Average Utilization Rates City-Wide 2012-2013

*Calculated by dividing building enrollment by the target capacity

Source: 2012-2013 DOE Blue Book

Average Utilization Rates in District 28 compared to City-Wide 2012-2013

Elementary Schools Middle Schools High Schools70%

75%

80%

85%

90%

95%

100%

97.4%

80.9%

95.2%

Proposed capital plan vs. needs for seats• Proposed capital plan has (at most) 38,754 seats – and this if

Cuomo’s “Smart School” bond act is approved. (806 more seats funded only for design)

• Plan admits real need of 49,245 (though doesn’t explain how this figure was derived).

• DOE’s consultants project enrollment increases of 60,000-70,000 students by 2021

• At least 30,000 seats needed to alleviate current overcrowding for just those districts that average above 100%.

• Conclusion: real need for seats at least 100,000.

Proposed capital plan vs. needs for seats part II• These figures do not capture overcrowding at neighborhood level, including

schools with K waiting lists, or need to expand pre-K, reduce class size, restore cluster rooms, or provide space for charters as required in new state law.

• Does not capture need to replace trailers with capacity of more than 10,890 seats.

• Though DOE counts only 7,158 students attending class in TCUs, actual number is far higher & likely over 10,000.

• Also, DOE utilization figures underestimate actual overcrowding according to most experts and Chancellor, who has appointed a “Blue Book” taskforce to improve them.

• Revised utilization formula should be aligned to smaller classes, dedicated rooms for art, music, special education services, and more.

Class sizes have increased for six years in a row • Despite provisions in 2007 state law requiring NYC reduce class sizes, classes in K-3 in 2013-

2014 largest since 1998; in grades 4-8 largest since 2002.

• K-3 average class size was 24.9 (Gen Ed, inclusion & gifted classes) compared to 20.9 in 2007, increase of 19%.

• In grades 4-8, the average class size was 26.8, compared to 25.1 in 2007 –increase of 6.8%.

• HS “core” academic classes, class size average 26.7, up slightly since 2007.  (Yet DOE’s measure of HS class sizes is inaccurate and their methodology changes, so estimates cannot be relied upon.)

• Averages do NOT tell the whole story – as more than 330,000 students were in classes of 30 or more in 2013-2014.

• There were 40,268 kids in K-3 in classes of 30 or more in 2013-2014 – an increase of nearly 14% compared to the year before. 

• The number of teachers decreased by over 5000 between 2007-2010, according to the Mayor’s Management Report, despite rising enrollment.

1998/99 1999/00 2000/01 2001/02 2002/03 2003/04 2004/05 2005/06 2006/07 2007/08 2008/09 2009/10 2010/11 2011/12 2012/13 2013/14

24.90

23.25

22.3822.10

21.6821.5521.2821.1221.0020.9021.40

22.10

22.90

23.8924.46

24.86

K-3 Class sizes are the largest since 1998 General ed, CTT and gifted: data from IBO

1998-2005; DOE 2006-2013

1998/99 1999/00 2000/01 2001/02 2002/03 2003/04 2004/05 2005/06 2006/07 2007/08 2008/09 2009/10 2010-11 2011/12 2012/13 2013/14

28.1

27.527.2 27.4

27.0

26.726.4

25.925.6

25.125.3

25.8

26.326.6 26.7 26.8

4th – 8th grade Class sizes largest since 2002 Gened, CTT and gifted: data from IBO 1998-

2005; DOE 2006-2013

FY08 FY09 FY10 FY11 FY12 FY 13

79,109 79,021

76,795

74,958

72,787

73,844

Total no. of teachers dropped by 5,000 since 2007-8

data source: Mayor's Management Report

Class sizes in CSD 31 have increased in grades K-3 by 21.3% since 2008 and are now well above C4E goals

Data sources: DOE Class Size Reports 2006-2013, 2008 DOE Contracts for Excellence Approved Plan

Baseline 2007-8 2008-9 2009-10 2010-11 2011-12 2012-13 2013-1419

20

21

22

23

24

25

26

21

20.720.5

20.320.1

19.9 19.9 19.9

21.020.9

21.4

22.1

22.9

23.9

24.5

24.9

21.121.1

21.521.9

23.6

24.7

25.1

25.6

C4E goalsCitywide actualD31

Stud

ent p

er S

ectio

n

CSD 31’s class sizes in grades 4-8 have increased by 6.7% since 2008 and are very far above C4E goals

Data sources: DOE Class Size Reports 2006-2013, 2008 DOE Contracts for Excellence Approved Plan

Baseline 2007-8 2008-9 2009-10 2010-11 2011-12 2012-13 2013-1422

23

24

25

26

27

28

29

30

25.6

24.824.6

23.8

23.3

22.9 22.9 22.9

25.6

25.125.3

25.8

26.326.6 26.7 26.8

28.9

27.527.6

28.228.3

28.5 28.6

29.2

C4E targetCitywide actualD31

Stud

ents

per

Sec

tion

Class sizes city-wide have increased in core HS classes as well, by 2.3% since 2007, though the DOE data is unreliable*

*DOE’s class size data is unreliable & their methodology for calculating HS averages have changed year to year

2007-08 2008-09 2009-10 2010-11 2011-12 2012-13 2013-1424

24.5

25

25.5

26

26.5

27

26

25.7

25.2

24.8

24.5 24.5 24.5

26.126.2

26.626.5

26.426.3

26.7

C4E TargetCitywide Actual

Data sources: DOE Class Size Reports 2006-2013, 2008 DOE Contracts for Excellence Approved Plan

CSD 31 Schools with large class sizes• At the Kindergarten level, there are 18 schools in CSD 31 with with

an average class size of 25, according to DOE’s November 2013 report.

• In grades 1-3, there are 15 schools in CSD 31 with at least one grade level averaging 30 students per class or more.

• In grades 4-8, 32 schools have at least one grade level with an average class size of 30 or more.

Examples of schools in CSD 31 with large class sizes, K-3

0

20

40

60 48

30 27 27 27 25 25 25 25 25 25 25 25 25 25 25 25 25

D31 Kindergarten

28

29

30

31

32

33 33 32 32

31 31 31 3130 30 30 30 30

30

D31 2nd Grade

2729313335

3533 33 32 32 32 31 31 31 30

D13 3rd Grade

0

20

40

60 56

33 33 33 32 32 32 31 31 31 31 30 30 30 30

D31 1st Grade

School Utilization Rates at critical levels• Citywide, elementary schools avg. building utilization rates are at 97.4%; the median

utilization rate is at 102%, high schools are not far behind at 95.2%.

• In eleven districts, elementary school average above 100%; 20 districts average above 90%.

• High schools in Queens (110.7%) and Staten Island (103.2%) average above 100%.

• At the MS level, D20 in Brooklyn, D24, and D25 in Queens have building utilization rates over 95%.

• There are more than 30,000 seats just to bring those districts to 100% utilization.

Data source: Blue Book target utilization rates 2012-2013

# of Seats currently needed to bring buildings to 100% or less

QUEENS HS STATEN ISLAND HS0

1,000

2,000

3,000

4,000

5,000

6,000

7,000

8,0007,295

518

# of Seats Needed in all districts with building utilization rates higher than

100% at HS level

*These figures are the difference between capacity & enrollment in the organizational target # in 2012-2013 Blue Book

D10 D11 D15 D20 D22 D24 D25 D26 D27 D30 D310

1,000

2,000

3,000

4,000

5,000

6,000

1,929

1,237

1,822

3,912

189

5,318

1,637

1,2311,451 1,476

2,279

# of Seats Needed in all districts with ES building utilization rates

higher than 100%

Source: 2012-2013 DOE Blue Book

Average Utilization Rates in CSD 31 compared to City-Wide 2012-2013

D31 ES building utilization rate at 108.1%, above citywide average

*Calculated by dividing building enrollment by the target capacity

Source: 2012-2013 DOE Blue Book

Average Utilization Rates in District 28 compared to City-Wide 2012-2013

3,598 ES Seats and 1,806 HS Seats needed to reach 100% building utilization

Distric

t 31 E

lemen

tary S

choo

ls

Citywide

Elem

entar

y Sch

ools

Distric

t 31 M

iddle

Schoo

ls

Citywide

Midd

le Sch

ools

Staten

Islan

d High

Sch

ools

Citywide

High

Sch

ools

0.0%

20.0%

40.0%

60.0%

80.0%

100.0%

120.0%108.1%

97.4%

84.5%80.9%

103.2%

95.2%

Over-utilized ES and MS buildings in CSD 31 and Staten Island HS • There are 35 buildings that host elementary school

students in CSD 31 that are above 100% utilization. The seat need for these schools is more than 3,598 students.

• At 4 over-utilized Staten Island HS buildings, there is a seat need for more than 1,801 students.

• Please note that the seat need here is higher because it takes into account all buildings that are over-utilized (100% or more) rather than the need averaged across the district.

35 ES Buildings are over-utilized in CSD 31 (percentages)

*3,598 ES seats needed to reach 100% building utilization

P.S. 4

8

P.S. 2

0

P.S. 1

9- Tran

sport

able

P.S. 2

9

P.S. 3

5

P.S. 4

6P.S

. 3

P.S. 1

3

P.S. 5

5

P.S. 6

P.S. 2

1

P.S. 1

4

P.S. 3

9

P.S. 5

4

P.S. 4

1

P.S. 4

5

P.S. 3

0

P.S. 1

1

P.S. 5

0P.S

. 1

ELIZABETH A

. CONNELL

Y CAMPUS

P.S. 2

3

ARTHUR D. P

HILLIP

S SCHOOL

P.S. 2

2

P.S. 5

8

P.S. 5

6

P.S. 4

2

P.S. 3

ANNEX

P.S. 3

8

P.S. 2

6

P.S. 4

4

P.S. 5

2

P.S. 1

9

P.S. 1

8

P.S. 3

20

20

40

60

80

100

120

140

160

180

200183 178 177

159

142 142 140134

128 126 124 123 122 122 121 120 118 116 116 115 115 113 113 111 110 109 108 108 107 106 106 106 105 102 101

Perc

enta

ges

4 Staten Island High School Buildings are over-utilized

*1,806 HS seats needed to reach 100% building utilization

CURTIS HS PORT RICHMOND HS TRANS. SUSAN E. WAGNER HS TOTTENVILLE HS0

20

40

60

80

100

120

140

160

144%137%

123%

112%

New Seats in Capital Plan and DOE Enrollment Projections for CSD 31

~2,240 to 2,380 new students by 2021 according to enrollment projections but only 912 seats are being added.

0

200

400

600

800

1000

1200

1400

1600

1800

912

1,520

1,659

720

2014 Kindergarten Wait Lists in CSD 31• According to DOE, the wait list for zoned Kindergarten spots in 2014 is smaller citywide than

in 2013, with 1,242 zoned students on wait lists as of April 21, 2014.

• 19 of 32 school districts currently have at least one school with a waiting list.

• 63 schools have zoned wait lists: 20 in Brooklyn, 17 in Queens, 11 in Manhattan, 11 in The Bronx, and 4 in Staten Island.

• DOE less transparent than ever: the number of zoned students for particular schools if less than 10 is not revealed – and methodology for creating wait lists unexplained.

• Over 7,000 families got none of their choices but unclear how many were put on wait list for their zoned school.

• There were four schools in District 31 with waiting lists: P.S. 16 John J. Driscoll (34 students), P.S. 029 Bardwell (18 students), P.S. 74 Future Leaders Elementary School (23), and P.S. 020 Port Richmond (1-9 students).

• A minimum of 76 zoned students were on wait lists in Staten Island.

Number of students in CSD 31 trailers

• In CSD 31, according to the 2012-2013 TCU Report, there are 9 TCUs at 4 schools: PS 38 (1 TCU, no enrollment listed), PS 19 (2 TCUs, 115 students), PS 25 (2 TCUs, no enrollment or capacity listed listed), and PS 37 (2 TCUs, no enrollment or capacity listed).

• There are at least 115 students enrolled in these TCUs that need to be replaced.

Number of students in Staten Island HS trailers

• At the high school level, there are at least 4 TCUs at two Staten Island high schools: Curtis High School (2 TCUs, 44 students) and Port Richmond High School (2 TCUs, no enrollment listed).

• There are 8 classrooms in these 4 TCUs and the total capacity is 180 across the 2 HS. None of these students are included in the total that DOE reports attend classes in TCUs.

New seats need for CSD 31• Capital Plan allocates just 912 seats for FY 2015-2019 for CSD 31.

• To reduce overcrowding, and bring building utilization to 100% at the elementary school and middle school levels, nearly 3,600 seats are needed.

• If the DOE’s enrollment projections are accurate, at least 2,240 seats are needed in the district to meet the enrollment projections for the next decade (2011-2021).

• To remove elementary and middle school students from trailers, another 115 seats are needed to eliminate the need for trailers in elementary and middle schools across CSD 31.

• Therefore, a minimum of almost 6,000 elementary and middle school seats are needed beyond what the FY 2015-2019 Capital Plan has for CSD 31.

Unmet need critical in Staten Island high schools

• DOE allocated 300 seats it in its FY 2015-2019 Capital Plan for Staten Island High Schools.

• More than 1,800 seats in Staten Island HS are needed to reduce present overcrowding and bring building utilization to 100%.

• These figures underestimate actual level of overcrowding, according to most principals.

• About 180 seats needed to remove Staten Island high school students from schools with trailers (from capacity figures).

• There are 2,000 high school seats that the new capital plan does not address.

New charter provisions passed in state budget• Any charter co-located in a NYC school building cannot be evicted and has veto powers

before they leave the building – even if they are expanding and squeezing out NYC public school students. 

• This includes any charter co-location agreed to before 2014 – including the three Success

charter schools approved right before Bloomberg left office.

• Any new or charter school in NYC adding grade levels must be “provided access to facilities” w/in five months of asking for it.

• If they don’t like the space offered by the city, they can appeal to the Commissioner King, who is a former charter school director and has never ruled against a charter school.

• . 

• NO FISCAL IMPACT statement or analysis accompanying this bill.

• In addition, the state will provide all charter schools with per-pupil funding increases, amounting to $500 over the next 3 years and provide them funding for pre-K.

Charter space provisions ONLY apply to NYC

• Upstate legislators fought off making charters eligible for state facilities funds – which would have been better for NYC.

• Yet legislators did not block these onerous provisions for NYC , where we have the most expensive real estate & the most overcrowded schools in the state.

• If the DOE doesn’t offer charter schools free space, the city  must pay for a school’s rent in private space or give them an extra 20 percent over their operating aid every year going forward.

• After the city spends $40 million per year on charter rent, the state will begin chipping in 60% of additional cost.

How many charters will there be entitled to free space?• We have 183 charters in NYC, 119 in co-located space.

• 22 new charters are approved to open next year or the year after, all entitled to free space.

• 52 additional charter schools left to approve until we reach the cap raised in 2010 – with legislative approval – all entitled to free space.

• Any new or existing co-located charter can also be authorized to expand grade levels through HS and will be entitled to free space.

• DOE will be paying $5.4 M in annual rent for four years for 3 Success Academy schools that only have 484 students next year – at a cost of $11,000 per student.

• This doesn’t count the unknown renovation costs in these 3 schools, also paid for by the city.

Blue book data & Utilization formula inaccurate & underestimates actual level of overcrowding

• Class sizes in grades 4-12 larger than current averages & far above goals in city’s C4E plan & will likely force class sizes upwards

• Doesn’t require full complement of cluster rooms or special needs students to have dedicated spaces for their mandated services

• Doesn’t properly account for students now housed in trailers in elementary and middle schools.

• Doesn’t account for co-locations which subtract about 10% of total space and eat up classrooms with replicated administrative & cluster rooms. Small schools use space less efficiently

• Instructional footprint shrank full size classroom only 500 sq. feet min., risking building code/safety violations at many schools as 20-35 sq feet per student required.

• Special ed classrooms defined as only 240-499 sq ft, thought State Ed guidelines call for 75 sq ft per child with special needs; classrooms this small would allow only 3- 7 students.

Comparison of class sizes in Blue book compared to current averages & Contract for excellence goals

Grade levels UFT Contract class size limits

Target class sizes in "blue

book"

Current average class sizes

C4E class Size goals

How many sq ft per student required in classrooms

according to NYC building code

Kindergarten 25 20 23 19.9 35

1st-3rd 32 20 25.5 19.9 204th-5th 32 28 26 22.9 20

6th-8th 30 (Title I)

33 (non-Title I)28 27.4 22.9 20

HS (core classes) 34 30 26.7* 24.5 20

*DOE reported HS class sizes unreliable

Some Recommendations• 38,000 seats in capital plan is too low, esp. given existing overcrowding,

projected enrollment, preK expansion, class size reduction, new mandates to provide charter schools with space

• Also very low as compared to Mayor’s plan to create or preserve 200,000 affordable housing units.

• Council should expand the seats in five year capital plan.

• Commission an independent analysis by City Comptroller, IBO or other agency.

• Adopt reforms to planning process so that schools are built along with housing in future through mandatory inclusionary zoning, impact fees etc.

• Over half of all states and 60% of large cities have impact fees, requiring developers to pay for costs of infrastructure improvements, including schools.