Appeal of COLLEGIATE ACADEMY FOR MATHEMATICS AND PERSONAL AWARENESS CHARTER SCHOOL from action of the New York City Department of Education regarding school utilization.

Decision No. 16,743

(April 17, 2015)

Cohen Schneider & O’Neill LLP, attorneys for petitioner, Cliff S. Schneider and Lisa J. Holtzmuller, Esqs., of counsel

Zachary W. Carter, Corporation Counsel, attorney for respondent, Thomas B. Roberts, Esq., of counsel

BERLIN, Acting Commissioner.--Petitioner, Collegiate Academy for Mathematics and Personal Awareness Charter School (“CAMPA” or “the school”), challenges the New York City Department of Education’s (“DOE” or “respondent”) failure to offer it a co-location site in a public school building or space in a privately owned or publicly owned facility at DOE’s expense and at no cost to petitioner, as required by Education Law §2853(3)(e).  The appeal must be sustained in part.

Petitioner is a charter school originally authorized to serve students in grades five through eight and scheduled to commence instruction in the 2015-2016 school year in Community School District (“CSD”) 19.  Its initial charter was issued on December 17, 2013 for a five year term in accordance with Education Law §§2851(2)(p) and 2853(1)(a).  In his affidavit, petitioner’s board chair states that petitioner requested and was granted a planning year from the New York State Education Department (“Department”), postponing the opening of the school for instruction to the 2015-2016 school year.  In addition, petitioner’s board chair avers that in the fall of 2014, petitioner filed a request with the Department to amend its charter to serve students in grades six through eight, as opposed to grades five through eight, and that the request is currently pending.  He further states that it is petitioner’s expectation that the request will be approved, that the school will commence instruction in 2015-2016 serving students in sixth grade and that the school will add grade seven in 2016-2017 and grade eight in 2017-2018.  Pursuant to §276.6 of the Commissioner’s regulations, I take administrative notice that at its April 2015 meeting, the Board of Regents approved CAMPA’s request to revise its charter to change the grades served such that CAMPA will serve students in grade 6 in its first year and will grow to serve a maximum of 375 students in grades 6 through 8 in the fourth and fifth years of its charter term.

By letter to DOE dated November 29, 2014, petitioner indicated its intention to begin serving sixth grade students in the 2015-2016 school year and requested co-location in a public school building in accordance with Education Law §2853(3)(e).  On February 19, 2015, DOE responded to petitioner’s November 29, 2014 request for co-location space indicating that it would “not be extending an offer of space at this time.”  This appeal ensued.

Petitioner asserts that DOE failed to offer it facilities in violation of Education Law §2853(3)(e) and that such failure was arbitrary and capricious or an abuse of discretion.  As relief, it seeks an order directing DOE to pay rental assistance in accordance with Education Law §2853(3)(e)(5) beginning with the 2015-2016 school year and continuing thereafter.

Respondent requests that the appeal be dismissed in its entirety.

Preliminarily, I note that this appeal was commenced pursuant to Education Law §2853(3)(e), which was added by Part BB of Chapter 56 of the Laws of 2014.  Education Law §2853(3)(e)(3) provides that a charter school in the City School District of the City of New York shall have the option of appealing the “city school district’s offer or failure to offer a co-location site through ... an expedited appeal to the commissioner” pursuant to Education Law §310 and the procedures prescribed in Education Law §2853(3)(a-5).  Pursuant to Education Law §2853(3)(e)(3), in any such appeal, the standard of review shall be the standard prescribed in Civil Practice Law and Rules (“CPLR”) §7803.

In an appeal to the Commissioner, a petitioner has the burden of demonstrating a clear legal right to the relief requested and the burden of establishing the facts upon which petitioner seeks relief (8 NYCRR §275.10; Appeal of Aversa, 48 Ed Dept Rep 523, Decision No. 15,936; Appeal of Hansen, 48 id. 354, Decision No. 15,884; Appeal of P.M., 48 id. 348, Decision No. 15,882).

Petitioner asserts that DOE failed to offer it a co-location space in a public school facility or space in another public or private facility at no cost to petitioner, in violation of Education Law §2853(3)(e).  Education Law §2853(3)(e) provides that in the City School District of the City of New York, charter schools that are approved by their charter entity to first commence instruction for the 2014–2015 school year or thereafter and request co-location in a public school building shall be provided access to facilities.  The statute also requires that, within the later of five months after a charter school’s written request for co-location and 30 days after the charter school’s charter is approved by the charter entity, the city school district shall offer the charter school either a co-location site in a public school building approved by the board of education as provided by law at no cost to the charter school, or space in a privately owned or other publicly owned facility at the expense of the city school district and at no expense to the charter school (Education Law §2853[3][e][1]).

Here, the record indicates that in its February 19, 2015 response to petitioner’s request for co-location space, DOE indicated that it would “not be extending an offer of space at this time.”  However, in the event that DOE did not offer petitioner a co-location site in a public school building, it was nevertheless required by Education Law §2853(3)(e)(1) to offer petitioner space in a privately owned or other publicly owned facility at the expense of the city school district and at no expense to petitioner.  Instead, DOE indicated in its February 19, 2015 response only that it could not extend an offer of co-located space.  As it did not offer petitioner space in a privately owned or other publicly owned facility at the expense of the city school district and at no expense to petitioner, DOE failed to comply with the requirements of Education Law §2853(3)(e)(1).

The standard of review in an appeal pursuant to Education Law §2853(3)(e) is the standard prescribed in CPLR §7803, which lists questions that may be raised in a proceeding brought pursuant to Article 78.  The question set forth in CPLR §7803(1) is whether the body or officer failed to perform a duty enjoined upon it by law.  The question set forth in CPLR §7803(3) is whether a determination was made in violation of lawful procedure, was affected by an error of law or was arbitrary and capricious or an abuse of discretion, including abuse of discretion as to the measure or mode of penalty or discipline imposed.  Although Education Law §2853(3)(e)(3) does not specify which specific provision of CPLR §7803 applies, I find that under either subdivision (1) or (3), petitioner has carried its burden of establishing the facts and law upon which it seeks relief.

In accordance with Education Law §2853(3)(e)(5), DOE is therefore required to pay rental assistance based on student enrollment in all grades for which CAMPA has been approved to provide instruction during the term of its charter (i.e. sixth through eighth grades) (Appeal of Rosalyn Yalow Charter School, 54 Ed Dept Rep, Decision No. 16,690).  I note that Education Law §2853(3)(e)(5) provides for rental assistance based on current school year enrollment, not the enrollment projections set forth in the charter, for each year of the charter term.  Specifically, with respect to a new charter school whose charter is granted before October 1, 2016, “if the appeal results in a determination in favor of the charter school, the city school district shall pay the charter school an amount attributable to ... the formation of the new charter school that is equal to the lesser of: (A) the actual rental cost of an alternative privately owned site selected by the charter school or (B) twenty percent of the product of the charter school’s basic tuition for the current school year and (i) for a new charter school that first commences instruction on or after July first, [2014], the charter school’s current year enrollment ...” (Education Law §2853[3][e][5]).

The amounts payable to a charter school in its first year of operation shall be based on the projections of initial-year enrollment set forth in the charter until actual enrollment is reported to the school district by the charter school (see Education Law §2856[1][b]).  Such projections shall be reconciled with the actual enrollment at the end of the school’s first year of operation, and any adjustment shall be made to payments during the school’s second year of operation (see Education Law §2856[1][b]).

The record in this case indicates that CAMPA will first commence instruction in the 2015–2016 school year, during which it intends to serve approximately 125 students in sixth grade.  In 2016-17 CAMPA will begin serving students in grade seven and, in 2017-18, students in grade eight.  Accordingly, pursuant to Education Law §2853(3)(e)(5), DOE must pay CAMPA in each year of the charter the lesser of the actual rental cost of an alternative privately owned site selected by CAMPA or 20 percent of the product of CAMPA’s basic tuition for the current school year (e.g., the 2015-2016 school year in the first year) and CAMPA’s enrollment for the current school year (e.g., the 2015-2016 school year in the first year).  As noted above, DOE is obligated to pay for all the grades in the newly-opened charter school in each year of the initial charter term; the amount payable must be based on the charter school’s actual current year enrollment (Appeal of Rosalyn Yalow Charter School, 54 Ed Dept Rep, Decision No. 16,690).

In this instance, petitioner also has not been afforded the opportunity to select an alternative privately owned site, and respondent must afford the school an opportunity to do so.  Petitioner must present DOE with evidence of the actual rental cost of an alternative privately owned site so that DOE can determine whether such rental cost is less than the amount computed pursuant to Education Law §2853(3)(e)(5)(B).

Nothing herein should be construed to prevent DOE from offering CAMPA co-location space in the future.

THE APPEAL IS SUSTAINED TO THE EXTENT INDICATED.

IT IS ORDERED that DOE comply with the requirements of Education Law §2853(3)(e)(5) in accordance with this decision and pay petitioner the lesser of the actual rental cost of an alternative privately owned site selected by petitioner or 20 percent of the product of petitioner’s basic tuition for the current school year and petitioner’s current year enrollment.

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