Decision No. 17,921
Appeal of EMBER CHARTER SCHOOL FOR MINDFUL EDUCATION, INNOVATION AND TRANSFORMATION from action of the New York City Department of Education regarding school utilization.
Decision No. 17,921
(September 4, 2020)
James E. Johnson, Corporation Counsel, attorney for respondent, Andrew J. Rauchberg, Esq., of counsel
ROSA., Interim Commissioner.--Petitioner, Ember Charter School for Mindful Education, Innovation and Transformation[1] (“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 other publicly-owned facility at DOE’s expense and at no cost to the school, as required by Education Law §2853(3)(e). The appeal must be sustained.
Petitioner is authorized by respondent’s Chancellor (“Chancellor”) to serve students in kindergarten through grade 12. Its initial charter was issued in January 2010, authorizing it to serve students in kindergarten through grade 5. In April 2016, in accordance with the Chancellor’s recommendation, the Board of Regents approved a revision to the school’s charter to add grade 6.[2] The following year, in March 2017, in accordance with the Chancellor’s recommendation, the Board of Regents approved a renewal to the school’s charter and a revision authorizing the school to expand to serve students in grades 7[3] and 8, as well as a revision approving the school’s request to change its name from “Teaching Firms of America Professional Preparatory Charter School” to “Ember Charter School for Mindful Education, Innovation and Transformation.” In June 2020, petitioner’s charter was revised to authorize it to expand to serve students in grades 9 through 12. According to petitioner, it will expand to serve students in grades 9 and 10 in the 2020-2021 school year, grade 11 in the 2021-2022 school year, and grade 12 in the 2022-2023 school year.
On June 26, 2020, a written request for co-location was submitted for petitioner’s grades 9 through 12, pursuant to Education Law §2853(3)(e). By letter dated July 11, 2020, DOE acknowledged petitioner’s request for space, but stated that it would “not be extending an offer of space at this time.” This appeal ensued.
Petitioner asserts that DOE failed to offer it a co-location site in a public school building or space in a privately-owned or other publicly-owned facility, at no cost to the school, in violation of Education Law §2853(3)(e). As relief, it seeks an order directing DOE - beginning with the 2020-2021 school year with grades 9 and 10 and continuing thereafter in the 2021-2022 school year for grade 11 and continuing thereafter in the 2022-2023 school year for grade 12 - to pay rental assistance in accordance with Education Law §2853(3)(e)(5).
Respondent admits that it failed to offer petitioner a co-location site in a public school building or space in a privately-owned or other publicly-owned facility, at no cost to the school, and that petitioner is eligible for a finding in its favor.
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 P.C. and K.C., 57 Ed Dept Rep, Decision No. 17,337; Appeal of Aversa, 48 id. 523, Decision No. 15,936; Appeal of Hansen, 48 id. 354, Decision No. 15,884).
Petitioner asserts that DOE failed to offer it a co-location site in a public school building or space in a privately-owned or other publicly-owned facility, at no cost to the school, 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 require additional space due to an expansion of grade level approved by their charter entity 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 cost to the charter school (Education Law §2853[3][e][1]).
Here, DOE admits that it responded to the June 26, 2020 co-location request and that it did not offer petitioner a co-location site in a public school building or space in a privately-owned or other publicly-owned facility, at no cost to the school. However, in response to the request, DOE was required by Education Law §2853(3)(e)(1) to offer petitioner space in a privately-owned or publicly-owned facility at the expense of the city school district and at no cost to the school. As DOE has not offered any facilities at the expense of the city school district and at no cost to the school, it 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.
The record indicates that, in June 2020, petitioner was authorized by its charter entity to expand to serve students in grades 9 through 12. It will expand to serve students in grades 9 and 10 in the 2020-2021 school year, grade 11 in the 2021-2022 school year, and grade 12 in the 2022-2023 school year, expansions for which it requires additional space.[4] Therefore, on the record before me, I find that petitioner has established that it requires additional space due to an expansion of grade level that was approved by its charter entity for the 2014-2015 school year or thereafter. Petitioner has, thus, met all the statutory criteria and is entitled either to a co-location or to an offer of private or other publicly-owned space (see Education Law §2853[3][e]).
Accordingly, having failed to make such an offer, DOE must, pursuant to Education Law §2853(3)(e)(5), pay petitioner, commencing with the 2020-2021 school year, and in each remaining year of the school’s current charter term and any subsequent renewal term, provided that, in any such renewal term, the charter school serves the grades encompassed by the charter referenced herein, rental assistance based on student enrollment in the newly-added grades for which the school has been approved to provide instruction.[5] Specifically, with respect to an existing charter school whose expansion of grade level is approved by its charter entity, “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 grade level expansion” that is calculated in accordance with the formula set forth in Education Law §2853(3)(e)(5).
Therefore, DOE must pay petitioner for its newly-added grades 9 and 10 commencing in the 2020-2021 school year, grade 11 commencing in the 2021-2022 school year, and grade 12 commencing in the 2022-2023 school year, and in each remaining year of the school’s current charter term and any subsequent renewal term, provided that, in any such renewal term, the charter school serves the grades encompassed by the charter referenced herein, an amount attributable to its expansion to grades 9 through 12 that is calculated in accordance with the formula set forth in Education Law §2853(3)(e)(5).
In this instance, there is no evidence in the record that petitioner has been afforded the opportunity to select an alternative privately-owned site and respondent must afford petitioner an opportunity to do so. Petitioner must present DOE with evidence of the amount of the actual rental cost of an alternative privately-owned site attributable to the grade-level expansion 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 petitioner co-location space in the future.
THE APPEAL IS SUSTAINED.
IT IS ORDERED that respondent comply with the requirements of Education Law §2853(3)(e)(5) in accordance with this decision and pay petitioner for its newly-added grades for each remaining year of the current charter term and for any subsequent renewal term, provided that, in any such renewal term, the charter school serves the grades encompassed by the charter referenced herein, an amount attributable to the grade-level expansion that is calculated in accordance with the formula set forth in Education Law §2853(3)(e)(5).
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[1] Petitioner was initially chartered under the name “Teaching Firms of America Professional Preparatory Charter School.”
[2] In a previous appeal, petitioner challenged DOE’s failure to offer co-location space in response to its request for space for its grades 5 and 6. On July 13, 2016, a decision was issued ordering DOE to comply with the requirements of Education Law §2853(3)(e)(5) with respect to only the school’s grade 6 expansion. (see Appeal of Teaching Firms of America Professional Preparatory Charter School, 56 Ed Dept Rep, Decision No. 16,922). That decision was upheld in Teaching Firms of America-Professional Preparatory Charter School v. The New York City Department of Education, et al., Index No. 906861-16, Supreme Court, Albany County [Connolly, J.], April 20, 2017.
[3] In a previous appeal, a decision was issued ordering DOE to comply with the requirements of Education Law §2853(3)(e)(5) with respect to petitioner’s request for space relating to its grade 7 (see Appeal of Ember Charter School for Mindful Education, Innovation & Transformation, 58 Ed Dept Rep, Decision No. 17,469).
[4] According to petitioner’s founder and managing partner, as a result of DOE’s failure to offer space, petitioner will incur rental costs and expenses.
[5] To be eligible for an apportionment pursuant to Education Law §3602(6-g) where the charter school has prevailed in an appeal to the Commissioner pursuant to Education Law §2853(3)(e), DOE must document all expenses incurred pursuant to Education Law §2853(3)(e)(5) for each such charter school for the term of the charter indicated in the Commissioner’s decision, including any renewals pursuant to Education Law §2851(4), provided that the charter school serves the grades encompassed by the charter that was the subject of the Commissioner’s decision (see New York State Education Department, Update on Facilities Assistance Guidance for NYC Charter Schools, dated November 3, 2016).