Council Meetings > 2004 > 2004December > Agenda > SS School Facility Needs Study Agenda Attachment

 

CITY OF SUNNYVALE

 

AND

 

SUNNYVALE SCHOOL DISTRICT

 

 

SCHOOL FACILITY NEEDS STUDY

 

 

TABLE OF CONTENTS

 

 

INTRODUCTION

OVERVIEW OF AGENCIES

AREAS OF GROWTH IN THE CITY

ANALYSIS OF SCHOOL DISTRICT NEEDS

FACILITY PROVISION OPTIONS

FINDINGS

STRATEGIES

GOALS AND POLICIES

APPENDICES

 

INTRODUCTION

This document addresses the long-term relationship between future residential land development in the City of Sunnyvale and the capacity of school facilities in the Sunnyvale School District for grades K through 8.  The purpose of this document is to understand the impact that future development may have on demand for schools and to identify options to ensure sufficient school facilities for the long term.

 

This study recognizes that new housing development can create increases and shifts in school enrollment patterns in specific locations of the city.  Changes in numbers of students can result in overcrowding in some schools where adding additional capacity is difficult. Growth is projected to occur in area of the City where schools are already at capacity.

 

Staff from the Sunnyvale School District and City of Sunnyvale formed a team to analyze and quantify the need for future school facilities and to identify potential solutions for providing those facilities.  In the analysis, the needs of both organizations were considered within the context of the regulatory environments within which they both must function.  An overview of both organizations establishes the foundation for the methodology that was developed to assess the need for school facilities and the plans for the future. 

 

The study evaluated factors affecting enrollment such as the residential development patterns in the City.  In order to determine the needs of the District the capacity and condition of existing school facilities, historic enrollment patterns and student generation rates for residential products were examined. Available funding mechanisms such as bonds used for modernization and development impact fees are discussed in this report and taken into consideration for future District planning.

 

All analysis was completed for two scenarios – a financially strained capacity scenario and an acceptable standards capacity scenario.  The differences between the two scenarios are assumptions about the number of classrooms and support classrooms at the District schools and, the more important difference, the average class size.   Also, two enrollment forecasts were used. The term “minimum enrollment” assumes 75% of the remaining development possible under existing zoning and no increase from a recovering birth rate.  “Maximum enrollment” assumes 90% of remaining possible development and an increase of 10% in enrollment from existing homes due to an increase birth rate. 

 

From this collection of information the future needed additional enrollment capacity was calculated.  In comparing two final sets of assumptions, the elementary schools differ by only nine percent in enrollment demand.  The middle schools, however, differ by almost 30%.

 

In Summary, the findings of the report indicate that:

 

  • There is a long a long–term relationship between future land development and the enrollment demands for schools. 
  • The City is required to have zoning and programs in place to allow an average of 511 new housing units per year through July 2006.  On average, the actually pace of development since 1999 has been approximately 350 homes per year.   
  • Under the most conservative estimates there will be an additional needed capacity of 246 elementary school students and 448 middle school students beyond current capacities. 
  • Based on projected enrollment and using standardized student generation rate two needs projections were prepared.

                    Less Need for Facilities Scenario:

 

Assumes minimum future enrollment and the maximum usage of facilities that occurs if financially resources are severely constrained:

                            

                   Identified the need for 246 additional elementary school students and that the District may be able to handle elementary school deficiencies by boundary adjustments and relocatable classrooms.

 

                   Identified the need to accommodate 448 new middle school students and that a new middle school is needed.  A 1,000-student middle school requires acquisition of 20 acres and $13.4 million for construction based on conservative State figures.

 

                   More Need for Facilities Scenario:

 

Assumes maximum future enrollment and the assumptions that maximize the need for facilities.

 

                   Identified a need to accommodate 1,141 additional elementary school students requiring at least one new elementary school in the Columbia Middle School area. A new 600-student elementary school requires acquisition of 10 acres and at least $7.9 million for construction based on conservative State figures.

 

                   Identified the need to accommodate 1,093 additional middle school students requiring one new middle school in the Sunnyvale Middle School area.  A 1,000-student middle school requires acquisition of 20 acres and at least $13.4 million for construction based on conservative State figures.

 

  • Facilities funding for schools come primarily from the State and local obligation bonds and developer fees. 

·        Developer fees in the Sunnyvale School District are limited by the State Allocation Board and cover the costs of adding a mix of portable and permanent construction without the purchase of additional land.

 

  • Other types of fees can only be levied if a school district demonstrates a substantial existing capacity deficiency to the State.  Sunnyvale School District currently does not meet this requirement. 
     
  • Redevelopment tax increment funds are not currently available to the School District.

With solutions such as boundary modification, enrollment capacity in the interim may be adequate to meet acceptable education conditions even with near term growth in the downtown.  Some boundary adjustment may increasingly require students to attend schools distant from their homes.  Enrollment in the longer term, though, will require significantly greater capacity than can be provided on existing campuses.

 

Further evaluation of the options is needed before a decision can be made on how best to provide additional school capacity after another 10 years of housing growth.  The study concludes with a number of strategies to be completed by the District and City by specific target dates. The most important is planning for a new school, probably a middle school, including finding a site and identifying funding sources.

 

OVERVIEW OF AGENCIES

 

The City of Sunnyvale residents are served by four public education school districts:

 

§         Sunnyvale School District(K-8)

§         Cupertino Union (K-8)

§         Fremont HS (9-12) (covers the area of Sunnyvale and Cupertino districts)

§         Santa Clara Unified (K-12)

 

This study focuses on the impacts to the Sunnyvale School District as a result of residential growth over a twenty year period.

 

The Sunnyvale School District

 

The Sunnyvale School District was established in 1899.  It is located entirely within the City of Sunnyvale.  Approximately 32,000 housing units in Sunnyvale are located within the boundaries of the Sunnyvale School District.  The estimated population within the School District is 76,000-79,000, which represents 58% of the Sunnyvale population.

 

The Sunnyvale School District operates two preschools, one alternative school, eight elementary schools and two middle schools.  67% of K-8 students in Sunnyvale reside within the Sunnyvale School District.  Currently, there are three former school sites leased to private schools and a school-owned property that is leased by Plaza del Rey Mobile

School Districts in Sunnyvale Map, Click Here (.jpg)

Homes.  The possibility of using these sites to provide additional school facilities is addressed later in this report.

The State and the Board of Education establish policy for the District, including class size.  In 1996, the State provided funding incentives for schools to reduce the student-teacher ratio for grades K-3 to 20:1.  The State provided more funding to districts to implement smaller class sizes; however, the smaller classes reduced school capacity in the School District.  Due to the recent State and local financial crisis, there are no near-term plans to further reduce student-teacher ratios, but smaller classrooms are a long-term nationwide trend that could affect local school capacity in the long run.

 

The City of Sunnyvale

 

The City of Sunnyvale was incorporated in 1912 and it became a Charter City in 1949.  The City provides a full range of services for 54,000 housing units and approximately 131,000 residents.  The City’s charter and state law give it certain responsibilities for planning land uses and zoning property.  State law requires all cities and counties to prepare a General Plan, which contains the goals and policies that guide development.  Sunnyvale’s General Plan includes twenty-two sub-elements that address specific topics.  Two of these sub-elements, the Land Use and Transportation Element (1997) and Housing and Community Revitalization Sub-element (1999) contain goals and policies that address future housing needs (see Appendix A).  Of those goals and policies, the State-mandated requirement that the City provide its “fair share” of housing most directly impacts this study.  Under the current Housing and Community Revitalization Sub-Element, the City must have zoning and programs in place to allow an average of 511 new housing units per year through July 2006.  In 2006 a revised Housing and Community revitalization Sub-Element will be required; the city’s regional fair share housing goal will be recalculated. On average, the actually pace of development has been approximately 350 homes per year since 1999. 

 

The City’s regional fair share requirement for the planning period of January 1999-June 2006 is 3,836 housing units (about 511 per year).  In the first five and a half years (73% through the planning period), the city saw the construction of 1,948 housing units (51% of the goal).  Although the city is not keeping pace with the goal, there is still land zoned for residential development; residential development has been strong during 2003 and 2004 and expected to continue at a high pace for at least another year.  In 2006 a new Housing and Community Revitalization Sub-element will be required.  The city’s regional fair share has not been determined, but will be influenced by state and regional trends in housing demand and job producing development and changes in the City’s Land Use and Transportation Element of the General Plan.

 

Sunnyvale School District Attendance Areas Map, Click Here (.jpg)

 

AREAS OF GROWTH IN THE CITY

 

The City has planned for and is currently experiencing growth in five major areas of the City: Downtown and four Industrial to Residential Zoning (ITE) Districts.  Other smaller infill and redevelopment sites will also incrementally contribute to additional housing.

 

Table 1

Areas of Growth in the City of Sunnyvale

 

General Name of Area

Planned Growth (number of housing units over existing in 7/04)

General Location

Current School Attendance Area/s

Downtown

835

Evelyn Avenue, Carroll Street, Olive Avenue and Charles Street

Ellis, Cumberland, Vargas,

Sunnyvale Middle

ITR- Futures 4

1064

Evelyn Avenue between Fair Oaks and Lawrence Expressway

Ellis (some portions are in Santa Clara School District)

 

Columbia Middle

ITR- Future 5

(Northrup Grumman site, not likely to redevelop for 10-15 years)

925

California Avenue, Fair Oaks Avenue, Hendy Avenue

Bishop

 

 

Sunnyvale Middle

ITR- Futures 6

694

Arques Avenue, Fair Oaks Avenue, Wolfe Road

San Miguel

 

 

Columbia Middle

ITR – Future 7

1295

Highway 101, Fair Oaks Avenue, “Hetch-Hetchy” right-of-way,

Morse Avenue

Lakewood

 

 

 

 

Columbia Middle

Other planned growth

716

Various infill sites

various

TOTAL

5529

 

 

Residential development is stronger during certain cycles of the economy.  Currently the city is experiencing a period of high demand for housing construction.  Several times a year the city receives requests to consider changes in the General Plan use or density of a site.  From July 2003 to October 2004 several such requests were received.  The City declined to consider some of the requests, and approved 7 requests for a total of 612 housing units.  Staff from the city advises staff on the school districts of requests and reflects potential impacts on schools in the staff analysis.

 

ANALYSIS OF SCHOOL DISTRICT NEED

 

Currently, the Sunnyvale School District operates 13 school facilities.  eight are elementary schools (grades K-5), two are middle schools (grades 6-8), two are preschool centers and one is an alternative school (grades 6-8).  Three school sites, Adair, DeAnza and Hollenbeck, are leased to private parties, and a 9-acre district-owned property is leased to Plaza del Rey Mobile Homes. 

 

Reuse of the DeAnza and Hollenbeck sites is possible; however, they are not located in the areas of potential growth.  Although Adair is a small site, and hence would be relatively more expensive to operate, it could possibly serve the downtown area. Leasing of these sites provides sizeable revenue for the School District’s general fund.  The School District has noted that reopening any of the leased sites would reduce lease revenue and thus result in negative impacts on program offerings to students.  The cost of rehabilitating the schools to make them capable of providing long-term capacity may also be significant.  Using these sites would also require boundary changes.

Sunnyvale Growth Areas, Click here (.jpg)

Following is a table indicating the facilities capacity and maintenance status of each of the schools currently in operation in the Sunnyvale School District. 

Table 2

Sunnyvale School District

School Maintenance Status

 

School

 

Year Built

Upgrades/Additions

Bishop Elem.

450 N. Sunnyvale Ave.

1948

·      Additions - 1949

·      Campus modernization completed - 1999

·      11 relocatable classrooms added since

·      2 Kindergarten relocatable added - 2001

Cherry Chase Elem. School

1138 Heatherstone Wy.

1955

·      Additions - 1959

·      Campus modernization – 2003

Cumberland Elem. School

824 Cumberland Ave.

1964

·      Additions - 1969

·      Campus modernization completed - 2002

·      Existing relocatable classrooms replaced with 7 new relocatable classrooms - 2003

Ellis Elem. School

550 E. Olive Ave.

1953

·      Additions - 1955

·      Campus modernization – 2003

·      8 relocatable classrooms added – 1993 to 2002

Fairwood Elem. School

1110 Fairwood Ave.

1956

·      Additions - 1957

·      Campus modernized – 1997

 

Lakewood Elem. School

750 Lakechime Dr.

1958

·      Additions - 1959

·      Campus modernization – 2002

·      Campus has a total of 14 relocatable classrooms

San Miguel Elem. School

777 San Miguel Ave.

1957

·      Additions - 1969

·      Campus modernization – 1994

·      8 relocatable classrooms added since

Vargas Elem. School

1054 Carson Dr.

1956

·      Additions – 1969

·      Campus modernized – 1992

·      10 relocatable classrooms added since

Columbia Middle School

739 Morse Ave.

1955

·      Additions – 1957

·      Office area expanded and modernized – 1987

·      Campus modernization to convert elem. school to middle school – 1993

·      Addition of AMD Sports and Service Center – 1996

·      Addition of new music classroom and 5 relocatable classrooms – 2001

Sunnyvale Middle School

1080 Mango Dr.

1961

·      Additions in 1987