Integration calculation

Critics say NYC’s progressive mayor isn’t doing enough to integrate schools. Here’s why he might be dragging his feet.

PHOTO: Michael Appleton/Mayoral Photography Office

It was summer of 2016, and a school rezoning fight was raging on the Upper West Side. The battle over where kindergartners would attend school had, once again, dragged out an uncomfortable fact: New York City schools are starkly segregated.

Parents railed against the city’s plans, which would send more white, affluent students to a school that largely serves black and Hispanic children from a nearby public housing development. Mayor Bill de Blasio, New York City’s unabashedly progressive mayor, visited the district. Faced with questions about segregation in the city’s schools, he promised that a “bigger vision” for integration was coming.

When it did — almost a year later — critics quickly blasted the plan as weak. Notably, the plan did not even use the word “segregation” and the mayor chose not to have a press conference when he released it. A recent study found that some of the plan’s goals could likely be met just through demographic changes already underway.

“I wish there was a bigger, stronger commitment,” Shino Tanikawa, an integration advocate in Manhattan’s District 2, told Chalkbeat at the time.

In the almost four years since de Blasio was elected, he has signed a paid parental leave policy, advocated against stop-and-frisk police tactics and called for more affordable housing. His education agenda has been similarly packed with progressive hallmarks, with the city pumping millions of dollars into struggling schools rather than closing them, and launching universal prekindergarten for 4-year-olds.

But while the city has taken some steps toward creating more diverse schools, de Blasio has poured little of his energy into integration. Why would a liberal mayor, who ran his campaign on a promise to tackle “a tale of two cities,” make only halting moves on an issue that seems core to a left-leaning agenda?

We spoke with a dozen parents, advocates, and academics, who say his constituents simply aren’t aligned on the issue — and he could risk losing their support if he tries a bolder approach. And despite the work of a growing network of activists, a notable advocacy gap means the mayor hasn’t faced intense pressure to act.

“It’s just a calculation that he’s made,” said Matt Gonzales, who works on school integration issues for the nonprofit New York Appleseed. “A lot of Democrats have been characterized as really progressive, but they commit all kinds of errors in their work.”

“People don’t want to give stuff up.”

Recent school rezoning battles are a prime example of why de Blasio might be hesitant to push for integration.

New York City schools are among the most segregated in the country, a fact that was thrust into national headlines by a 2014 report by The Civil Rights Project at UCLA. About half of all city schools are “intensely segregated,” with at least 90 percent of students belonging to a minority group, according to the report.

Some integrated neighborhoods offer opportunities to break that pattern. But when the city has proposed changes that would decrease segregation (as a byproduct of tackling overcrowding), resistance has been fierce.

Doreen Gallo, director of the DUMBO Neighborhood Alliance, spoke out against the Brooklyn rezoning plan. Photo: Patrick Wall

In Brooklyn’s District 13, when the city proposed funneling some children from one crowded school’s zone to P.S. 307 in Vinegar Hill, a school that had largely served black and Hispanic students, white and affluent parents fought back.

The same thing happened in District 3 on the Upper West Side when the local Community Education Council voted to change the boundaries around three vastly different schools. Two were jam-packed and high-performing: P.S. 199 and P.S. 452, which enroll mostly white and Asian students. The third, P.S. 191, enrolls mostly black and Hispanic children from public housing across the street.

Backlash was swift, well-organized, and persistent. Parents opposed to the plans for P.S. 199 and P.S. 452 packed public hearings. They sent letters from lawyers, calling the process “contrary to law.” Many affluent parents said they’d move, rather than send their children to a lower-performing school.

“There’s a serious problem in white liberalism in New York City,” said Emmaia Gelman, a white parent in District 3 who has advocated for integration policies. “Put to the test, it doesn’t hold up. People don’t want to give stuff up.”

De Blasio has signaled he agrees, having once said the city should “respect families who have made a decision to live in a certain area oftentimes because of a specific school.”

Threatening that sense of entitlement could cost him votes, Gelman said. City Councilwoman Helen Rosenthal, who threw her support behind the Upper West Side rezoning, is now facing a competitive reelection race. De Blasio, on the other hand, is coasting toward a second term.

“The parents in my district are in survival mode.”

A fear of alienating white voters might be one concern for the mayor, but it’s not the only one. His black and Hispanic supporters aren’t necessarily pushing him on this issue either.

As the president of the Community Education Council in Harlem’s District 5, Sanayi Beckles-Canton ticks off the complaints about schools she often hears from parents. Some have safety concerns about their children who attend elementary schools co-located with charters that serve older students. Others have complained that their children receive special education services in a school hallway.

Valencia Moore, PTA president at P.S. 36 last school year, called for more resources at the District 5 school. Photo: Christina Veiga

School integration just doesn’t make the list of top concerns in this district, whose students are 90 percent black and Hispanic.

“Before we can really get to the subject of integration, the parents in my district are in survival mode for the basics,” she said. “‘I just want to make sure my child is educated … before I care about you bringing wealthier families into my building.’”

What she does hear, however, are concerns about neighborhood gentrification trickling into schools. With wealthier families moving into Harlem, schools could lose federal funding for high-poverty schools if their low-income populations fall below the required threshold. That money pays for after-school care, arts programs and music classes. Beyond budgets, families also worry about losing their influence in schools.

“Some of the parents in my community are not excited about the notion of integration because it means losing things for them,” she said. “Those families who had the power and leverage in their schools, they’re losing it now because you have the more educated, wealthier families who are taking over.”

Some activists would rather see the city focus its efforts on providing culturally relevant education — making sure all students are reflected and supported in what is taught — within existing school communities.

“He’s not working with the urgency needed, and to make people believe that this is the change he wants to make,” said Natasha Capers, coordinator for Coalition for Educational Justice, a parent advocacy group.

As reluctant as de Blasio may be to rile white parents, he also can’t afford to lose the support of black and Hispanic voters. Half of black voters approved of de Blasio’s handling of public schools and 47 percent of Hispanic voters did, according to a 2016 Quinnipiac poll. But 54 percent of white voters did not.

“When he was elected, he saw that white progressive constituency as very important. It’s less important to his reelection because of liberal disaffection and strong support among the black and Latino voters,” said David Bloomfield, a professor of education at Brooklyn College and the CUNY Graduate Center. “Especially as he looks towards reelection, [integration] is not a pressing voter concern.”

“There’s not a massive movement for this yet.”

If voters haven’t clamored for integration, neither have most advocacy groups.

“If we want integrated schools, we need both real steps forward — real policy steps forward — and a much larger movement of people demanding it and choosing it,” said City Councilman Brad Lander who, along with Councilman Ritchie Torres, has been a vocal supporter of integration.

PHOTO: IntegratNYC4Me
New York City students calling for school integration rallied at City Hall in May. Photo: IntegrateNYC4Me

The United Federation of Teachers has pursued its own desegregation strategies, such as allowing schools to bend city and union contract rules when it comes to student enrollment, as well as lobbying for admissions changes at the city’s elite specialized high schools. The NAACP Legal Defense Fund was among a coalition of organizers that filed a federal complaint in 2012 targeting the specialized high schools exam.

The New York NAACP did not return a request for comment, but Hazel Dukes, president of the conference, was named to a city advisory group analyzing the school diversity plan. The teachers union defended its work.

“There are some people who want a louder voice. There are some people who don’t want us to speak about this at all,” said Janella Hinds, vice president for academic high schools at the UFT. “But I think we are chipping away at this issue in many different ways.”

The Alliance for School Integration and Desegregation is trying to bring together activists in a citywide movement, but it is a budding organization that is largely still figuring itself out. Made up of academics, parents, educators and others who have pursued integration in their own corners of the city, the group only settled on a name for itself in recent months. It has yet to attach that name to a list of policy goals and is still working out such basic questions as what its mission statement should include.

“There’s some legitimacy to the point that there’s not a massive movement for this yet,” said Gonzales of New York Appleseed. “You can still run around and talk to people on the street who have no idea that our schools are segregated.”

The advocacy movement that has sprung up is itself not that diverse, a critique that organizers say needs to be addressed before truly taking the cause mainstream. Naila Rosario realized the problem when serving as president of the Community Education Council in District 15, where parents have started working on a district-wide integration plan.

“I’m really a little frustrated that every time we have a diversity meeting, I’m the only Latina in the room,” she said. “If we do come up with a districtwide plan, I would like it to reflect the entire district — not just Park Slope and Cobble Hill.”

“If you try to do too much, people will flee.”

Another reason the mayor may be slow to act is the prevailing feeling that this problem is just too big to overcome. Before the city released its diversity plan, de Blasio cautioned it wouldn’t “instantly wipe away 400 years of American history and suddenly create a perfect model of diversity.”

He added: “Could we create the perfect model for diversified schools across the school system? No… Because you have whole districts in this city that are overwhelmingly of one demographic background. You would have to do a massive transfer of students and families in order to achieve it. It’s just not real.”

New York City schools have been segregated for a long time, and observers have noted that former Mayor Michael Bloomberg and Chancellor Joel Klein barely touched the issue. At a March meeting of educators, Klein laid out part of his rationale.

Former Mayor Michael Bloomberg, flanked by former Deputy Mayor Dennis Walcott and Schools Chancellor Joel Klein in 2010

“If you try to do too much, people will flee,” said Klein, as reported on an education blog. “The experience I’ve seen with forced busing: When people fled to the suburbs, the bulk of black and Latino kids were bused to hell and yon. To prioritize desegregation would have led to less good outcomes.”

Advocates have managed to agitate the current administration into taking some action. The diversity plan released in June set specific targets for increasing the number of students in racially representative schools and decreasing the percentage of economically stratified schools.

“In terms of beginning a conversation that suggests that diversity in New York City matters and that diversity can be part of a comprehensive plan, I do think that the advocacy community has made a bold victory here,” David Kirkland, executive director of the New York University Metro Center, told Chalkbeat in June.

Lander, the city councilman, understands the frustration many progressives feel when it comes to integration. But he also said the city’s plan provides a way forward.

“It’s hard to be satisfied with incremental change. On the other hand, to me the options are incremental change or no change,” Lander said. “I haven’t heard anyone propose what more rapid, comprehensive change would look like.”

In response to questions, de Blasio’s office emailed a statement that said  “the Mayor believes students benefit from diverse and inclusive schools and classrooms.”

“That’s why we released a school diversity plan that says just that, and lays out a series of initial goals, policy changes and steps forward,” the statement read. “We know there’s lots of work to do, and the DOE is specifically inviting the feedback and ideas of community members and stakeholders… Feedback is central to the work of making our schools more diverse and inclusive.”

“A mayor who doesn’t want change”

In the places where advocates have tried to push harder or faster, the city hasn’t always helped. Take tiny District 1, for example, on the Lower East Side. The district of 12,000 students seems to have all of the ingredients to integrate its schools.

Parents have spent years building grassroots support to change elementary school enrollment policies there. And unlike many neighborhoods, the district’s demographics offer a real possibility to integrate students: 40 percent are Hispanic, 22 percent Asian, 18 percent white, and 16 percent black. District 1 also has the benefit of having no elementary school zone lines, with students assigned based on parent choice — meaning there are no attendance boundaries to fight over.

In 2015, the district landed a state grant to study and implement new enrollment policies to promote school diversity. They came up with a plan for “controlled choice,” which allows families to rank their preferred schools but also factors diversity into admissions.

Between that and de Blasio’s election, Naomi Peña, a parent on the education council, remembers feeling like the stage was thoroughly set for a change. “We were thrilled,” she said.

But Peña and other District 1 parents are still waiting. Rather than finding an ally in the mayor, Peña has accused the administration of holding their integration plans “hostage.” She blames bureaucratic delays that have held up grant payments and a general reluctance from the education department to approve enrollment policies that would deny parents their first choice for their children’s schools.

“What’s happening in our education department is an unwillingness,” Peña said, noting that their plan has been delayed until at least the fall of 2018. “I have a mayor who doesn’t want change.”

pushing integration

New York City must move faster to combat school segregation, lawmakers say

PHOTO: IntegratNYC4Me
New York City students called for school integration at a rally at City Hall in May 2017.

Ahead of a city council hearing Thursday where lawmakers are set to grill the de Blasio administration on its plan to boost school diversity, a trio of council members is calling for more aggressive efforts to tackle the city’s stark school segregation.

In the essay below, the councilmen — Ritchie Torres of the Bronx, Brad Lander of Brooklyn, and Daniel Dromm of Queens — note some progress the city has made in the three years since the council’s last major hearing on the issue, but call the city’s approach “still-hesitant.” Read the full essay below.

Integrating NYC’s Public Schools, Step by Insistent Step

Four years ago, the UCLA Civil Rights Project issued a chilling report, showing that New York had the most segregated schools in the country. Anyone willing to look already knew our schools were deeply segregated, of course. But we had somehow stopped paying attention. We treated segregation like it was a problem of the South, or of the distant past.

After the report — and prodded also by grassroots organizing, powerful journalism, and the symbolism of the 60th anniversary of Brown vs. Board of Education — we decided to hold a City Council hearing. That hearing stretched on for ten hours. Our conclusion: Separate, still, is not equal. And also: segregated schools cannot teach inclusive, multiracial democracy.

Coming out of that hearing, the Council passed NYC’s School Diversity Accountability Act in the spring of 2015. The Act called on the NYC Department of Education (DOE) to develop a plan to integrate our schools, and required the DOE to start submitting annual reports on school segregation (the third annual report came out earlier this fall).

Over the past four years, the City has taken some first steps. Forty-two schools (out of 1700) have joined the “Diversity in Admissions” program. A few middle-school districts shifted to “blind rankings,” so the schools could not so simply pick their students based on who they were. In two high profile cases, in Brooklyn Heights/DUMBO, and on the Upper West Side, the DOE changed elementary school district boundaries with an eye to enhancing diversity.    

Even these first steps the city would not have emerged without insistent activism from students, parents, educators, and advocates across the city. And those groups have kept pushing, because there is a deep mismatch between the moral clarity of the issue — our school system rations opportunity based on race, class, and neighborhood — and the slow approach to do something about it.

This past spring (two years after the School Diversity Accountability Act), the DOE released their plan, “Equity and Excellence for All: Diversity in New York City Public Schools. The title gives away the still-hesitant approach. The report does not even use the words “segregation” or “integration,” preferring the anodyne “diversity.” But at least, for the first time, it set concrete numeric targets for reducing the number of students in segregated schools (and increasing the number of integrated ones).

Finally, this fall, we got something a little bigger, when the DOE released their plan for District 1’s elementary schools, a “controlled choice” model that aims to achieve integration across a district. And a conversation is underway about District 15’s middle-schools. These are still small parts of the system — but at least we are beginning to see systemic approaches.

There’s a lot more we must do. At the high-school level, we could make real progress quickly, since students all across the city are assigned in one process. With political will, the city’s specialized and screened schools could be pushed to integrate. For elementary schools, we need new models, since neighborhood-based school zoning in a residentially segregated city guarantees segregated schools. One model is a “school-pairing” approach that has been successful around the country. Another option is to be much deliberate in the neighborhood-wide housing rezonings about education.  

We must also make sure that schools aren’t just integrated by admissions algorithm — but actually do the hard work of culturally-competent education (with diverse teaching staffs), of surfacing implicit bias, of confronting disparities in school discipline. It is no easy task to make sure our schools are genuinely welcoming and affirming places for kids not only of every race, but also gender identity, sexual orientation, disability status, immigration status, and national origin — but it remains an essential one.  

We’ve made some policy changes over the past four years, but perhaps the best thing that has changed is the emergence of advocacy movement. We’ve been deeply inspired by the growth of IntegrateNYC, the student wing of the school integration movement. Educators, activists, students, and parents from around the city meet together on a regular basis through the NYC Alliance for School Integration and Desegregation. These groups are doing the hard work of building integrated schools. And they are pointing out the gaping chasm between our values of equality and inclusion — and our practice of segregation.

So tomorrow, the City Council is holding another hearing, to listen again to those insistent voices. We’ll hear from the DOE about their plan, and push for far more comprehensive change. We’ll hear from students, parents, and teachers about the stark segregation they face in their schools. We’ll hear about some of the bright spots, too, since the power of genuinely integrated schools is truly transformative, and prepares kids for the city and the world they will inherit.

Most important, we will be called, again, to the “fierce urgency of now,” Dr. King’s demand that we look squarely at the injustice and segregation that characterizes our systems — and take real responsibility for changing them.   

Daniel Dromm chairs the New York City Council’s Education Committee. Brad Lander and Ritchie Torres are co-sponsors of the Council’s 2015 School Diversity Accountability Act.

By the numbers

New York City expands integration program, adding the prestigious Bard high school in Queens

PHOTO: Erin Einhorn

New York City is once again expanding Mayor Bill de Blasio’s signature school-integration program, which tweaks the enrollment process at a few dozen schools to boost their diversity.

This year’s additions — which bring the total number of schools to 42, compared to 7 when the program launched in 2015 — include highly selective schools such as Bard High School Early College in Queens, where students earn an associate’s degree in addition to a high school diploma, and P.S. 77 The Lower Lab School in Manhattan, which only enrolls students who qualify as gifted based on the city’s entrance exams.

Also, for the first time, the “Diversity in Admissions” initiative is expanding to include a school in the Bronx: Academy of Applied Mathematics and Technology in Mott Haven.

The program affects a tiny fraction of city students and only a small number of the city’s almost 2,000 schools. It doesn’t alter system-wide policies that contribute to segregation, including the way most students are assigned to the school closest to their home. But it’s popular with individual schools, and has been one of the most tangible steps taken by the de Blasio administration toward addressing segregation in New York City, which is one of the most segregated school districts in the country.

Officials announced the latest expansion on Tuesday, two days ahead of a city council hearing on school diversity.

Among the added schools are all 16 traditional public elementary school in District 1. City leaders previously announced an intention to include all the elementary schools in the district, which spans the Lower East Side, East Village and some of Chinatown.

Deputy Chancellor Josh Wallack called the initiative a “key part of our schools better reflecting the diversity of our city.”

“We believe all students benefit from diverse and inclusive classrooms, and are excited to see our Diversity in Admissions initiative expand,” he said in an emailed statement.

Integration advocates have been lukewarm about the initiative. Matt Gonzales, who lobbies for school integration efforts with the nonprofit New York Appleseed, said any progress is important but that advocates still want to see more systemic changes.

“This is in no way impacting all 1.1 million students,” he acknowledged. “But it is creating more access for students right now.”

He added: “Obviously that needs to be built into a larger framework and set of priorities to promote more integrated schools all over,” the city.

Schools that join the Diversity in Admissions program are allowed to set aside a percentage of seats for students who meet certain criteria, such as qualifying for free or reduced-price lunch. The aim is to create or maintain a diverse mix of students by giving some an extra chance at being admitted.

The program sets targets for schools, but meeting those goals often requires outreach to ensure a diverse applicant pool. Most schools that have participated have met their targets when it comes to making offers for admission, according to education department figures.

Many schools in the program are located in gentrifying areas, where an influx of higher-income families has started to change the makeup of the local schools. The program can help stabilize the schools’ populations, so that they maintain a mix of students from different income levels.

For example, in Manhattan’s District 6, which is one of the city’s poorest, Muscota New School will set aside 30 percent of seats for students who qualify for free or reduced price lunch or live in temporary housing.

Principal Camille Wallin said the school — which is located in Inwood, a traditionally working class neighborhood where more families and young professionals have begun to settle — decided to join the initiative after noticing a significant drop in the number of needy students enrolled. For the 2016-2017 kindergarten class, only 19 percent of students qualified for meal assistance — down from 30 percent the previous year.

“Our belief system is that children learn from and with other children,” she said. “Widening the circle of people, and the experiences, and the social context of our school can only enhance the learning.”

The new batch of schools also includes P.S. 452 on the Upper West Side, which was at the center of a recent rezoning battle to relieve overcrowding and create more student diversity in Manhattan’s District 3. The school will first admit students living within the school’s attendance zone. For all remaining seats, students who qualify for free or reduced-price lunch will have priority.

Schools have to apply to join the initiative, and some are setting aside only a small number of seats. At Lower Lab, for example, 12 percent of seats will be set-aside for students who qualify for meal assistance. Last year, only 4 percent of students were considered poor.

At Bard in Queens, students who qualify for meal assistance will receive priority for 63 percent of seats. About 42 percent of students last year were considered poor.

Advocates say changing student assignment policies is only one part of integrating schools. The city should also focus on creating welcoming environments within schools by training teachers in culturally relevant practices and making sure school staff reflect the diversity of students, they say.

“Integration can’t happen without one or the other,” said Hebh Jamal, a member of the student-led advocacy group IntegrateNYC.

Here are the latest schools to join Diversity in Admissions:

P.S. 77 The Lower Lab School in Manhattan – Students eligible for free or reduced price lunch receive priority for 12 percent of seats. The standard district Gifted and Talented admissions criteria still apply.

P.S. 452 in Manhattan – For any seats remaining after all in-zone students are admitted, those eligible for free or reduced price lunch will receive priority.

P.S. 125 Ralph Bunche in Manhattan – Students eligible for free or reduced price lunch and those who are learning English receive priority for 60 percent of seats.

Muscota New School in Manhattan – Students eligible for free or reduced price lunch and students in temporary housing receive priority for 30 percent of seats.

Washington Heights Expeditionary Learning School in Manhattan – Students eligible for free or reduced price lunch and students in temporary housing receive priority for 75 percent of seats.

District 1 elementary schools in Manhattan – Students who qualify for free or reduced price lunch, are living in temporary housing or are learning English will have priority for 67 percent of seats. Those with disabilities will also receive a priority for kindergarten admissions. Students who do not meet those criteria will have priority for the remaining 33 percent of offers.

M.S. 260 Clinton School for Writers & Artists in Manhattan – Students eligible for free or reduced price lunch receive priority for 17 percent of seats.

Academy of Applied Mathematics and Technology in the Bronx – Applicants currently attending the following District 7 elementary schools receive priority for up to 25 percent of seats: P.S. 1, P.S. 49, P.S. 154, P.S. 277, P.S. 359, P.S. 369. Applicants currently attending the following District 7 elementary schools receive priority for up to 15 percent of seats: P.S. 5, P.S. 18, P.S. 25, P.S. 29, P.S. 31, P.S. 157, P.S. 161

Boerum Hill School for International Studies on Brooklyn – Students eligible for free or reduced price lunch receive priority for 40 percent of seats.

Bard High School Early College in Queens – Students eligible for free or reduced price lunch receive priority for 63 percent of seats.