July 19, 2005
SUBJECT: City of Sunnyvale and Sunnyvale School District School Facilities Needs Study
REPORT IN BRIEF
The attached 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 influence 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, even though capacity could be provided at schools in other areas of the District.
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. City staff prepared the housing growth projections for the study. The Sunnyvale School District, with the help of Schoolhouse Services Consulting, prepared the enrollment and capacity projections. The findings and strategies for the study were prepared jointly.
The study evaluated the following factors: residential development patterns in the City, the capacity and condition of existing school facilities, historic enrollment patterns and student generation rates for various types of housing, and available funding mechanisms such as bonds and development impact fees.
BACKGROUND
In 2003, the City of Sunnyvale and the Sunnyvale School District recognized that the continued growth of the City in accord with the General Plan, including the Downtown Specific Plan, may result in the need for additional facilities to accommodate the resultant increase in the number of K-8 students. The City and the District, therefore, agreed to undertake a joint study of future school facility needs to serve the school-age population growth expected as the City grows and matures.
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.
Two Joint Study Sessions were conducted with the Sunnyvale City Council and the Sunnyvale School District Board: May 18, 2004 and December 7, 2004. See minutes of those study sessions in Attachments B and C. Feedback from those sessions is reflected in the attached study (Attachment A).
The Sunnyvale School Board considered the plan at their meeting of June 16, 2005. The Board approved the plan on a 5-0 vote. In addition to City of Sunnyvale staff, one member of the public spoke on this plan, expressing support for the foresight of the agencies in jointly preparing such a study.
EXISTING POLICY
Following are goals and policies from the various Sub-Elements of the Sunnyvale General Plan that were considered in the planning process. An expanded list of goals and policies is included in the study as Appendix A:
Land Use and Transportation Element (1997)
Goal C2: Ensure ownership and rental housing options in terms of style, size and density that are appropriate and contribute positively to the surrounding area.
Policy C2.1 Provide land use categories for and maintenance of a variety of residential densities to offer existing and future residents of all income levels, age groups and special needs sufficient opportunities and choices for locating in the community.
Housing and Community Revitalization Sub-Element (1999)
Goal A: Foster the expansion of housing supply to provide greater opportunities for current and future residents within limits imposed by environmental, social, fiscal and land use constraints.
Policy A.1 Maintain a supply of residential land for new housing construction.
Action Statement A.1.a Review the General Plan annually to ensure sufficient sites are available to facilitate the creation of additional housing units to meet Sunnyvale’s share of regional housing needs.
Policy A.2 All new residential developments should build at least 75 percent of permitted zoning density.
DISCUSSION
The facility needs analysis in the study was completed for two scenarios – a financially constrained 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 in 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%.
Several findings are made in the report. The most significant findings are:
· There is a long-term relationship between future land development and the enrollment demands for schools.
· The City is required by State law to have zoning and programs in place to allow the construction of an average of 511 new housing units per year through 2006.
· There may be a need for additional schools. Based on projected enrollment and using standardized student generation rates, 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:
Required Facilities:
· Identified that the District may be able to handle elementary school deficiencies by boundary adjustments and relocatable classrooms.
· Identified that a new middle school is needed, centrally located in the district. Requires 20 acres and $35.8 M for construction costs.
More Need for Facilities Scenario:
Assumes maximum future enrollment and the assumptions that maximize the need for facilities.
Required Facilities:
· Identified a need to accommodate 1,100 additional elementary school students requiring at least one new elementary school in the Columbia Middle School area. Requires 10 acres and approximately $28.5 million for construction.
· Identified the need for one new middle school in the Sunnyvale Middle School area. Requires 20 acres and $35.8 M for construction costs.
The report outlines a series of actions and strategies to address future school facility needs. These actions have recommended dates for completion and are identified as being the responsibility of the City, the School District, or a joint effort.
FISCAL IMPACT
Funding options for the Sunnyvale School District are discussed in detail in the study including the availability of development fees, State funds and redevelopment funds. The study includes a number of strategies to be completed in the short-, mid- and long-term that will help determine future steps to meet the District’s facility needs. Fiscal impacts cannot be fully analyzed until the strategies are completed and the best course of action for achieving the District’s facility needs is determined. The funding for additional school facilities is the responsibility of the Sunnyvale School District. Potential long-term fiscal impacts to the City include loss of property tax or sales tax revenues from land converted from residential or commercial use to school use. Further analysis of potential long-term revenue sharing with the City of Sunnyvale Redevelopment Agency is recommended.
Conclusion
As stated above in this staff report and in detail in the attached School Facility Needs Analysis, based on projected enrollment and using standardized student generation rates two needs projections were prepared. At a minimum, the need for a new middle school was identified in both scenarios. Depending on future residential growth and factors such as student generation rates and birth rates, elementary school capacity may be able to be addressed with modified attendance boundaries and the use of relocatable buildings.
Continual 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. With solutions such as boundary modification, school capacity in the interim should be adequate to meet acceptable education conditions even with near term growth in the downtown. The study concludes with a number of mid-term (2005-2015) and long-term strategies (2015-2025) to be completed by the District and City by specific target dates of which planning for a new middle school (finding a location and funding sources) is of most importance. The analysis recommends that these factors be monitored and reported annually so that appropriate planning will occur prior to the manifestation of capacity issues.
PUBLIC CONTACT
In May and June 2005, notices announcing the availability of the draft study were sent home with school children in the monthly newsletters for each of the 10 Sunnyvale School District open schools. The notices also invited the public to a community information meeting held at the District offices on June 1, 2005. A display ad was published in The Sun newspaper with the same information on availability of the draft study and the information meeting. No members of the general public attended the outreach meeting, however The Sun sent a reporter and a feature article appeared as the cover story on the June 8, 2005 edition of the paper. Several members of the public contacted the School District for more information and a copy of the study. One person spoke at the School Board meeting of June 16, 2005 in support of the study. Another person spoke to both School District and City staff with questions about the planning process, costs and respective responsibilities for new facilities. He was not able to attend the School Board meeting.
The Council Agenda was posted on the City bulletin board and on the City’s web site. This report was posted on the web, available in City Clerk’s office and the Sunnyvale Public Library. Copies of the report are also available at the Sunnyvale School District offices.
ALTERNATIVES
- Accept the plan as prepared
- Accept the plan with modifications
- Direct staff to make changes to the plan and return for further Council consideration.
RECOMMENDATION
Staff recommends Alternative 1. This plan is a joint effort of two agencies and is intended to provide a long-term strategy for managing the needs of the Sunnyvale School District. While the majority of the actions are the responsibility of the District, the report recognizes that increases in housing can affect school enrollment. The City can assist the District by keeping the district informed of the rate of growth, trends in housing development and requests to modify the City’s zoning. In addition the City can assist the Sunnyvale School District by being aware of available land and jointly exploring options to identify appropriate sites for a new school.
Reviewed by:
Trudi Ryan, Planning Officer
Prepared by: Gerri Caruso, Principal Planner
Reviewed by:
Robert Paternoster,
Director, Community Development
Approved by:
Amy Chan
City Manager
Attachments
Attachment A: Draft School Facility Needs Analysis
Attachment B: Minutes, May 18, 2005 Joint Study Session
Attachment C: Minutes, December 7, 2004 Joint Study Session
Attachment D: Draft minutes, June 16, 2005 Sunnyvale School Board meeting