Professional Documents
Culture Documents
VERIFIED PETITION
Index No.
For a Judgment and Order Pursuant to Article 75 of the Civil Practice Law and Rules, - against -
SCHOOL
DISTRICT OF THE CITY OF NEV/ YORK (also known as the New York City Department of
Education ("DOE")), and DENNIS M. WALCOTT, as Chancellor of the DOE, by their attorney
MICHAEL A. CARDOZO, Corporation Counsel of the City of New York, as and for their
Verified Petition, allege as follows:
PRE,LIMINARY STATEMENT
award issued by Arbitrator Scott E. Buchheit ("Arbitrator Buchheit") on June 29, 2012, in
Arbitration Between United Federation of Teqchers, Local 2, Council of School Supervisors and
Administrators, Local
and New York Cifii Department o.f Education, AAA, Case No. 13 390
"l."
2.
Federation
("CSA"), (collectively, the "lJnions"), which alleged that the DOE violated their respective
Collective Bargaining Agreements ("CBAs") by closing twenty-four failing schools and seeking to staff new schools pursuant to the terms and procedures of the CBAs.
3. 4.
The Award concluded, without offering any analysis,l that the Unions'
exceeded his power or so imperfectly executed it that final and definite award upon the subject matter submitted was not made.
5.
PARTIES
6. .
Petitioner DOE
is
to the N.Y.
Education Law, and maintains its principal place of business in New York County.
7
Respondent Mulgrew is a resident of the State and City of New York, and
is the
President
organization that
is the
recognized
date
bargaining agent for all nonsupervisory pedagogical personnel and classroom paraprofessionals
employed by the DOE.
8.
Respondent Logan is a resident of the State and City of New York, and is
the President of the CSA, an unincorporated labor organization that is the recognized bargaining
agent for all supervisory pedagogical personnel employed by the DOE.
9. 10.
of
Venue
CPLR
FACTS
A.
Background
1L
The New York State Legislature vested the DOE Chancellor with the power
See
Chancellor
an
to close a school, the DOE must provide notice to the public and prepare
Educational Impact Statement ("EIS"), giving an in-depth analysis of the effect that closing the
school
will
have on the community, at least forty-five days before a Panel for Educational Policy
("PEP") vote. See Afhdavit of Assistant Corporation Counsel Maxwell D. Leighton ("Leighton
Aff.") atl25.
Education
("Commissioner") designates schools that are the farthest from meeting certain academic
benchmarks he has established and most in need of improvement as Schools Under Registration
-3-
Review ("SURR"), See Affidavit of the DOE, Deputy Chancellor for Portfolio Planning, Marc
Sternberg ("sternberg
Aff.")
atl"3."
lowest achieving ("PLA") schools, based on their low graduation rates and/or failure to make
adequate yearly student progress, among other
things.
See 8
N.Y.C.R.R. 100.2(pX9).
13. On April 26, 2012, the PEP authorized the DOE to close twenty-four
SURR/PLA schools. See Sternberg
to
immediately replace the closing schools with new schools that will continue to serve the students who were enrolled in the schools to be closed. See id. This initiative will provide the children at
these schools with a renewed opportunity for success. See
id.
qualify the subject schools for federal School Improvement Grant ("SIG") funding under an
educational intervention model called "Turnaround." See id.
14. In the case of SURR schools, in addition to the PEP approval process
described above, the DOE must also submit a closure application
Exhibit "2," the Commissioner approved the DOE,'s plans to close the 24 failing SURR/PLA
schools as authorized by the PEP,
an
a
for
registration
recommendation regarding approval to the New York State Board of Regents (the "Board of
Regents"). See 8 N.Y.C.R.R. 100.2(p). By approving the DOE's closure applications, which
expressly contemplated
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schools that
which has now been authorized by the PEP and the Commissioner, is to expeditiously improve
the educational opportunities for the students enrolled in these 24 schools. See Sternberg Aff. at
7.
Towards this end, each new school has developed rigorous, school-specific strategies to
measure and screen prospective staff, including current staff who apply to work at the new
schools. See id. Based on these criteria, and in accordance with the staffing requirements in the DOE's existing CBAs with the Unions, new schools have put in place a process aimed at hiring
the best possible teaching staff, thus immediately improving teacher quality and, by extension,
17. In hiring instructional staff for new schools, the DOE historically
demonstrated an ability to hire high-quality teachers. See id. at J[
has
8.
The process
will be no
different for the 24 new schools at issue in this case. See id. Indeed, the schools have already
received over 26,000 applications for positions. See id.
18.
The new schools have also developed new programs and school supports that
9.
instructional and structural reforms at these 24 schools that visions for student success and faculty excellence. See
will
id.
These schools
things, adopt new curricula and instructional models and offer more academic supports for serving high-needs students. See
id.
schools, hiring new talent and incorporating new elements designed to better meet student needs,
the immediate closure and replacement of these schools will, in petitioners' judgment, give
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students access to a higher-quality educational option while they continue to attend school in the
same
building.
See id.
these plans, the DOE also applied for SIG funding for
10.
government's Elementary and Secondary Education Act for state education departments (in New
York's case, the SED) for distribution to schools whose students are not making adequate yearly
progress, provided that the school districts seeking such funding adopt one approved intervention strategies for those students.2 See
of four federally-
id.
funding for the 24 new schools under the "Turnaround" model. See id.
20. However, the DOE has been clear about its intent to move forward with
closing the 24 failing schools and opening 24 new ones, regardless of whether SIG funding is
provided.
See
its students and will not allow the educational futures of 30,000 students to be contingent on the
receipt of SIG funding. See id.
21.
When the Commissioner approved the DOE's plan to close the 24 failing
schools and replace them with new ones, he also stated that SIG funding for the 24 new schools
would be approved conditionally upon three events: (a) demonstration of compliance with
Article l8D of the UFT's CBA at the new schools; (b) submission of proof that "relevant
stakeholders" had been consulted in the process of crafting the proposals for the new schools;
2 New York regulations require school districts to implement one of the four intervention strategies set forth by the federal statute for PLA schools. See 8 N,Y.C.R.R. $ 100.2(p)(1O)(iv)), Howevet, approval of that intervention model for SIG funding pulposes does not affect the State Commissioner of Education's ability to approve a school district's plan to close a SURR/PLA school, or to recommend the registration of a new school.
-6-
proficiency.
See
Ex.2.
The conditions placed on the receipt of SIG funding are wholly unrelated to
22.
the Commissioner's clear approval of the SURR plans to close the 24 struggling schools and
open new ones in their place. See Sternberg
Aff. atn n.
23. In
sum, under the duties delgated to him by State law and regulations, the
Commissioner determined that the DOE's proposal to close the 24 SURR schools fulfilled all
of 24 new,
B.
Arbitration
24.
The Unions' CBAs, copies of which are annexed hereto as Exhibits "3"
(UFT CBA) and "4" (CSA CBA), provide mandatory administrative grievance and arbitration
processes
for disputes over the application of provisions within the CBAs. See Ex. 3, Art.22;
Ex, 3, Art. X.
25.
On or about April 30, 2012, the Unions hled nearly identical grievances,
reassignment of staff, copies of which are collectively annexed hereto as Exhibit "5."
26.
11,
2012, in which the Chancellor detailed, in pertinent part, that the DOE's authority to close a school and register a new school is set forth and governed by the N.Y. Education Law and, as
such, is not proper for adjudication through the grievance and arbitration processes set forth in the Unions' CBAs. The Chancellor's Decisions are collectively annexed hereto as Exhibit "6."
-7
27.
arbitration and, by Order to Show Cause dated May 7,2012, commenced a proceeding in N.Y.
Supreme Court, New York County, pursuant to Article 75 of the CPLR, seeking an injunction in
aid of arbitration that would prohibit the DOE from removing staff from the 24 schools at issue
and hiring new staff at the replacement schools pending issuance of the arbitrators' awards on
their grievances.
28.
That proceeding was settled by a Stipulation and Order, dated May 24,
"7l' by which
petitioners
agreed that the Unions' grievances would be consolidated before Arbitrator Buchheit on an expedited basis and the Unions agreed to allow the DOE to continue to take steps to implement the closure of the 24 schools and staffing of the new schools.
29.
The Stipulation detailed that it would "not constitute a waiver of any other
contractual or legal right, claim or defense related to the underlying grievances, including, but
not limited to, the right to bring an Article 75 proceeding for any available remedy
enforcement of the final decision of the arbitrations." Stipulation, Ex. "7."
against
argued three independent reasons as to why the Unions' grievances were not arbitrable: 1) the
CBAs are silent on what constitutes a school closure or new school; 2) the CBAs expressly prohibit the arbitrator from making any decision contrary to, or inconsistent with, applicable
laws, rule or regulations; and 3) public policy prevents the DOE from bargaining away any statutorily vested power pertaining to the maintenance
of
standards
in the classroom.
See,
-8-
31.
to
authorize
of SURR/PLA
schools was
vested in the Chancellor and State Commissioner of Education by state law, Arbitrator Buchheit issued an Award that found the Unions' grievances-that turned on whether the 24 schools were
being closed and new schools were being opened-were arbitrable. See Ex. 1, at
5.
The Award
also proceeded to sustain the grievances and order that the DOE comply with the provisions
detailed in flfl 8-l
C.
This Proceeding
32.
it
was made
in
excess
of
the
IT "21"
and
State Commissioner of Education has the statutory authority to approve the school closures and register the new schools, the Award violates public policy by usurping the authority reserved by
law to the State Commissioner of Education, the New York State Board of Regents and the DOE
33.
The Unions' CBAs both contain language that limits the jurisdiction of
[t]he arbitrator shall limit his/her decision strictly to the application and interpretation of the provisions of this Agreement and he/she shall be without power or authority to make any decision:
Contrary to, or inconsistent with, or modifying or varying in any wy, the terms of this Agreement or of applicable law or rules or regulations having the force and effect of law;
2.
Involving Board discretion under the provisions of this Agreement, under Board by-laws, or under applicable law, except that the arbitrator may decide in a particular case whether the
-9-
or applied in
discriminatory or arbitrary or capricious manner so as to constitute an abuse of discretion, namely whether the challenged judgment was
justifiably could lead to the conclusion as opposed to merely capricious or whimsical preferences or the absence of
based upon facts which
the powers, duties and responsibilities of the Board under its by-laws, applicable law, and rules and regulations having the force and effect of law.
See Ex. 3,
34.
The Unions' grievances sought from the arbitrator a finding that the
proposed new schools are not new and that the closing schools are not truly closing. See Leighton Aff. at n36." But, because neither of the Unions' CBAs defines a "school closure"
or a "new school," the arbitrator was without jurisdiction to determine such issues. See id.
35.
As discussed above, the New York State Legislature has vested the DOE
Chancellor with the power to create and close schools. See N.Y, Education Law $ 2590-h. When the Chancellor determines to create or a close a school, the DOE must provide notice to
the public and an Educational Impact Statement ("EIS"), giving an in-depth analysis of the effect that the new or closing school
vote.
See Leighton
Aff.
at
submits an application to
36.
the SED's procedures for review and approval arc highly regulated. See
id. at fl "26." The DOE must submit separate applications to the SED to close a SURR school, to register any new school, and to place a school
See
id.
The
-10-
education plans
submitted by the DOE and to ultimately decide on the DOE's application to close a SURR
37.
failing schools that the state's highest educational authority expressly permitted the DOE to close
and replace. See Sternberg
children may have to suffer for yet another year at a school both petitioners and the State found worthy of closure. See id.
38.
No prior application for the relief sought herein has been made to this or
law.
See Leighton
Aff. at fl
"47."
CAUSE OF ACTION
Petitioners repeat and reallege each and every allegation set forth in
arbitrable and sustaining the grievances. The arbitration award violates public policy in that the arbitrator usurped
the authority granted by the Education Law to the Chancellor and the State Commissioner of
Education to determine matters relating to school closures and openings.
42.
- 11-
be
entered vacating the Award, together with such other and further relief as this Court deems just
and proper. Dated:
MICHAEL A. CARDOZO
Corporation Counsel of the City of New York Attorney for Petitioners 100 Church Street, Room 2-143 New York, New York 10007-26
(2t2)
By:
78
Assistant
Of Counsel
Georgia Pestana Chlarens Orsland Martha Mann Alfaro Charles Carey Benjamin J. Traverse
To
UNITED FEDERATION OF TEACHERS Adam S. Ross, of counsel 52 Broadway New York, New York 10004 (212) 701-e420
-12-
VERIFICATION
STATE
OFNEWYORK
)
SS
cotrNTY OF NEW
YORK
Chad Pimentel, being duly sworn, states that he is an attomey in the Office of the
General Counsel of the Board of Education of the City School District of the City of New York
(also known as the New York City Department of Education ("DOE")), that he has read the foregoing petition in the matter
the
contents thereof to be true, except for any contents alleged to be true based upon information and beliefl, which he believes to be true, and that the source of this information and the basis for his
belief are the books and records of the DOE and other deparlments of the City government and
statements made by certain officers or agents of the DOE.
,Ue
NOTARY
,t-lo|ory
rbtc
ffir of
ft.r
"enmon
Index No.
of
THE BOARD OF EDUCATION OF THE CITY SCHOOL DISTzuCT OF THE CITY OF NEW )'ORK ("DOE"), et ano,
Petitioners, For a Judgment and Order Pursuant to Article 75 of the Practice Law and Rules,
Civil
against
MICFIAEL MULGREW, as President of the LINITED FEDERATION OF TEACHERS, Local2, American Federation of Teachers, AFL-CIO, et ano,
Respondents.
VERIFIED PETITION MICHAEL A. CARDOZO Corporation Counsel of the City of New York
Attorney
for
Respondents
New York, New York 10007 Of Counsel: Georgia Pestana, Martha Mann
Alfaro, Chlarens Orsland, Manuell Leighton, Charles Carey, and Benjamin Traverse
Due and timely service is hereby admitted.
.., 201_
Attorneyfor