LB 
 
 3218 
 
TW^NTY-THttiD AND TWl^NTY- 
 
 F9URTH ANNUAt REPbRtS 
 
 m:- rvfj^ luPERINTEINDENt OF 
 
 -^CHOOI^ 1Q20-1922. 
 
 NEW SCHOOL BUILmNdsAf^D 
 ■' BITES 
 
A 
 
 BOARD OF EDUCATIOM ^<i.i.^cU^ ..cujUt^^ 
 
 THE CITY OF NEW YORK 
 
 Twenty-third & Twenty-fourth 
 
 Annual Reports 
 
 of the 
 
 Superintendent of Schools 
 
 1920-1922 
 
 NEW SCHOOL 
 
 BUILDINGS 
 
 and 
 
 SITES 
 
 PRESKNTED TO THE BOARD OF EDUCATION 
 OCTOBER U, 1922 
 
 /^;?5 ? 
 
 ^ 
 

 L18KARY OF CONGRESS 
 
 •'-.C--fVEri 
 
BOARD OF EDUCATION 
 THE CITY OF NEW YORK 
 
 GEORGE J. RYAN, President 
 HARRY B. CHAMBERS, Vice-President 
 
 Borough of Manhattan 
 MRS. EMMA L. MURRAY M. SAMUEL STERN 
 
 Borough of Brooklyn 
 DR. JOHN A. FERGUSON ARTHUR S. SOMERS 
 
 Borough of The Bronx 
 HARRY B. CHAMBERS 
 
 Borough of Queens 
 GEORGE J. RYAN 
 
 Borough of Richmond 
 JOHN E. BOWE 
 
 WILLIAM L. ETTINGER 
 Superintendent of Schools 
 
 EDWARD B. SHALLOW 
 
 Associate Superintendent of Schools, 
 
 Committee on School Sites, Buildings and Leases 
 
TABLE OF CONTENTS 
 
 PAGE 
 
 Administrations, appropriations 31 
 
 Buildings (new), appropriations for 32 
 
 Buildings, cost of 33, 34 
 
 Buildings completed, number of • 11 
 
 Buildings being erected 12, 13 
 
 Buildings, plans for , . . 14, 16 
 
 Buildings, funds for 31 
 
 Buildings, procedure in erecting 36 
 
 Buildings, sites for 36, 37 
 
 Buildings, sittings provided 1918-1922 17 
 
 Buildings, sittings planned for 1918-1922 18 
 
 Continuation schools, building for 42 
 
 Elementary schools, registers in 21 
 
 Elementary schools, new buildings 16, 17, 18 
 
 High schools, plans for new buildings 22, 23, 24 
 
 Registers in 26, 27, 28 
 
 Part-time in 29 
 
 Handicapped children, schools for 43 
 
 Part-time and double sessions 29 
 
 Part-time and double sessions, comparisons 29 
 
 Part-time and double sessions, reduction of 41, 42 
 
 Population of The City of New York 20 
 
FOREWORD 
 
 August 1, 1922. 
 
 TO THE BOARD OF EDUCATION 
 
 Ladies and Gentlemen : 
 
 I beg leave to submit the report of Associate Superintendent 
 Edward B. Shallow, with reference to the acquisition of sites and 
 the erection of school buildings for the period from May 1, 1920, 
 to June 30, 1922. 
 
 This report supplements the previous one, covering the period 
 from January 1, 1918, to May 1, 1920. 
 
 As the report sets forth, noteworthy progress has been made 
 in the erection of school buildings during the past two years. 
 During that period 21 new elementary school buildings contain- 
 ing 27,997 sittings, have been opened and contracts have been let 
 for 43 additional elementary school buildings with 36,841 sittings, 
 and 5 high schools containing 8,076 sittings. Such remarkable 
 achievements bear eloquent testimony to the wisdom and gener- 
 osity of the city financial authorities and the Board of Education 
 and I hope will make impossible a recurrence of the assumption 
 that by some device or other the city can, in the interest of the 
 tax rate, dodge the obligation to provide new school buildings for 
 our constantly growing school population. I beg leave to restate, 
 in this connection, two considerations that I presented in the last 
 report, namely : 
 
 "(a) That the present lack of school accommodations with the 
 resuhant part-time devices and makeshift double session programs, is 
 a great impediment to the efficiency of our educational system. The 
 existing congestion also makes impossible the normal extension of the 
 system with reference to such projects as the proper development of 
 intermediate schools and the establishment of local probationaiy 
 schools. 
 
 (b) That, as the present condition has resulted from political 
 control and divided financial responsibility, the law be amended forth- 
 with £0 that, in connection with the i)urcha3e of sites and the con- 
 struction of school buildings, the statute make it mandatory upon the 
 
Board of Estimate and Apportionment, when requested by the Board 
 of Education, to issue corporate stock to provide yearly a fixed mini- 
 mum amount of money for such purposes. Such a law would at the 
 present moment and for several years to come take from the Board of 
 Estimate and Apportionment a power which at times it has been able 
 to exercise to the detriment of the school system." 
 
 I shall not attempt to discuss in detail the various features 
 of Dr. Shallow's interesting report, but will merely suggest that 
 the discussion of such topics as the determination of the order of 
 necessity of school buildings, the various steps that must be taken 
 in connection with the planning and letting of contracts, and the 
 discussion of the urgent need of additional high school accommo- 
 dations, are deserving of special attention. 
 
 Both Associate Superintendent Shallow and Superintendent 
 C. B. J. Snyder, in a report now available, which is comple- 
 mentary to this report, refer to the need of greater foresight in 
 the acquisition of school sites. I am in hearty accord with their 
 point of view. 
 
 Several months ago, in presenting my views in relation to this 
 problem to the Chairman of the Committee on Civic Planning, I 
 wrote, in part, as follows : 
 
 "Our enormous population which, when immigration is unrestricted, 
 literally spills over adjacent territory, in every possible direction, tends 
 to seek areas which are attractive because of the low cost of housing, 
 the cost and character of transportation, and the proximity of such 
 areas to places of employment. Such shifting of population, which 
 means that some sections of the city have partially vacant school 
 buildings while others are suffering from excessive congestion, because 
 of the lack of such buildings, demands not only that our future build- 
 ing program be developed on a comprehensive scale but also in terms 
 of the best possible forecast as to the future growth of our city. 
 
 The successful solution of the problem involves a well matured 
 civic plan that will provide definite forecasts and also authorizations 
 in relation to the development of lines of transportation, the zoning 
 of areas for residential as well as industrial purposes and also the 
 centralization of financial and business independence in a Board of 
 Education obligated to recognize such civic planning as conditioning 
 its own program of site acquisition and building construction. 
 
 Too often past policies in relation to school sites and construc- 
 tions have been a reflection of transient political expediency on the 
 part of a particular municipal administration, and at times a policy 
 based exclusively upon local demands has meant not merely the acqui- 
 sition of unsatisfactory and inadequate sites, but also no satisfactory 
 determination of the relative needs of the different parts of the various 
 
boroughs. Even xwhen the Board of Education took upon itself to 
 make forecasts as to the future growth and distribution of the school 
 population and purchased sites in advance of immediate needs and 
 also in advance of rising real estate values, such procedure has been 
 the basis of unwarranted criticism. 
 
 Of course, it is evident that the development of schools cannot be 
 treated as if schools were isolated agencies. Thus, if our schools do 
 not supply sufficient play space, adjacent parks or their equivalent 
 must supply the need. Nevertheless, such desirable coordinated de- 
 velopment has been completely lacking, so that schools are without 
 sufficient play space and parks are remote from schools. Moreover, 
 realty values are so high in the congested sections of the lower cast 
 side, Brownsville, and certain sections of The Bronx, that the cost of 
 acquiring additional 'breathing spaces' is almost prohibitive and I am 
 strongly inclined to believe that the next step in insuring proper play 
 facilities for our children ought to be the building of play buildings, 
 the different floors of which will be devoted exclusively to play." 
 
 In conclusion, I wish heartily to commend Dr. Shallow for 
 the energetic and efficient manner in which he has handled the 
 many difficult problems connected with this important assignment. 
 
 Respectfully submitted, 
 
 WILLIAM L. ETTINGER, 
 
 Superintendent of Schools. 
 
10 
 
 BOARD OF EDUCATION 
 THE CITY OF NEW YORK 
 
 DR. WILLIAM L. ETTINGER, 
 Superintendent of Schools. 
 
 Dear Sir: June 30, 1922. 
 
 I have the honor to submit the following report on the work 
 of acquiring new school sites and erecting new school buildings 
 in The City of New York. This is my second report on this 
 subject. The previous report related to such work for the period 
 between January 1, 1918 and May 1, 1920. The present report 
 covers the period from May 1, 1920 to June 30, 1922. 
 
 During the period covered by this report, notable progress 
 has been made in erecting new school buildings. This work has 
 been done notwithstanding unfavorable conditions, such as high 
 costs of materials and labor, scarcity of labor in certain trades, 
 strikes, etc. Failure to complete most of the buildings within the 
 contract time, was the result of these conditions in most of the 
 cases. 
 
 In Table I., following, it will be seen that 21 new elementary 
 school buildings, with 27,997 sittings, have been opened since 
 May 1920, and there are under contract 43 additional elementary 
 school buildings, seating 36,841 pupils, and five high schools with 
 a capacity of 8,076. Tables II. and III. show the buildings now 
 under contract. Of the buildings now being erected, Mr. C. B. 
 J. Snyder, Superintendent of Construction and Maintenance, re- 
 ports that 30 elementary schools and additions, including portable 
 or temporary buildings, will be ready for occupancy in September 
 next. These will include 18,054 additional sittings. The number 
 of high school sittings to be ready in September next will be 2,176. 
 
 As practically no new school construction could be advanced 
 during the year 1918 on account of the World War, our building 
 work really began after January 1, 1919. The result of our 
 building operations for three years and nine months (January 1, 
 1919 to September 1, 1922) will be 54 elementary buildings, seat- 
 ing 46,489 pupils, and 3 high schools and other schools, seating 
 2,176 students. For further information in detail, I refer to 
 Tables VI. and VII. hereinafter. 
 
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 TABLE IV. 
 
 Buildings Completed; Buildings Being Erected; Buildings Authorized 
 
 and Planned. 
 
 1. Sittings — Buildings opened since May 1, 1920. 
 
 (a) Elementary 27997 
 
 (b) High none 
 
 — Buildings now under construction 
 
 (a) gementary j^^^ 3,^ ,,,, 28683 ^^^^ 
 
 — Buildings for which plans are 
 being prepared 
 
 (a) Elementary j ^r. ,099 54980 
 
 (b) High ^"^" **"' ^"^ • 15040 
 
 Total of 1, 2, 3 Elementary 111660 
 
 Total of '• High 23416 
 
 TABLE V. 
 
 School Buildings for which funds have been authorized previous to Jan. 
 1, 1922, but for which no plans have yet been prepared. 
 
 Program Estimated Total 
 
 Year Boro. Sch. Vicinity' of Site Sittings Sittings 
 
 1921 Bx. 70 Weeks Ave. and Being 
 
 174th St. acquired 3,000 
 
 6 Tremont and Vyse 
 
 Aves. (Auditorium) owned 
 
 33 Jerome Ave. owned 360 
 
 21 225th St. and White not yet 
 
 Plains Ave. (temp.) acquired 160 3,520 
 
 Bkn. 190 Georgia and Shef- Being 
 
 field Aves. acquired 2,000 
 
 196 Bushwick Ave. and Being 
 
 
 
 Scholes St. 
 
 
 acquired 
 
 3,000 
 
 
 
 142 
 
 Rapeleye 
 
 
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 1,080 
 
 
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 Church Ave. 
 
 near 
 
 owned 
 
 864 
 
 6,944 
 
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 31 
 
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 160 
 160 
 
 320 
 
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 34 
 
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 not yet 
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 160 
 
 160 
 
 
 
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 Total 
 
 
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19 
 
 DECREASE IN POPULATION AND INCREASE IN ELEMENTARY SCHOOL 
 
 REGISTERS 
 
 The population of The City of New York is estimated by the 
 City Board of Heahh in the years when it is not actuahy counted 
 by the Federal or the State Government. This estimate is based 
 on the Federal Census, the State Census, and other statistics and 
 data. 
 
 The figures given in Table VIII. which follows, show that 
 the population of Manhattan diminished by 507,770 during the 
 two years between 1919 and 1921, while the city at large showed 
 a decrease of 266,211. During the same period, the registration 
 in the schools increased by 43,454, as will be seen by reference 
 to Table IX. This may be accounted for by removals of many 
 persons — not heads of families — from the city on account of un- 
 employment, military service, or by changed conditions in 
 European countries. The increase in total population in one year 
 —1913 and 1914 — was 228,982 in the entire city, and the loss in 
 two years— 1919-1921— was 266,211. 
 
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22 
 
 HIGH SCHOOLS 
 
 In my last report I pointed out the necessity for new high 
 ichool buildings in various parts of the city, as follows : 
 
 "The building in which the New Utrecht High School is housed is 
 an old elementary school building. It is a wooden structure built many 
 years ago by the township of New Utrecht. The building was neither 
 designed nor equipped for a high school. In 1918 a considerable part 
 of the building was badly damaged by fire. A proper high school for 
 boys is greatly needed at Bath Beach, where this school is situated. 
 The New Utrecht is the only high school for boys in the populous 
 territories of Bay Ridge, Bath Beach, Bensonhurst, Borough Park, 
 Dyker Heights, Coney Island, and all that growing district between 
 Bath Beach and Flatbush. I recommend that funds be requested for 
 this building." 
 
 "A new high school is needed in Browns\'ille, in the Borough of 
 Brooklyn. There is a sufficient number of boys and girls of high 
 school age residing in this locality to fill a large high school building. 
 These are now obliged to travel long distances to reach other high 
 schools that are crowded and, in some cases, operating on duplicate 
 sessions. The Board of Education has owned a large site for a high 
 school in Brownsville for the past four or five years. A high school 
 building in Browns\'ille would relieve the congestion in the Richmond 
 Hill (Queens) High School, and in the following Brooklyn schools: 
 Erasmus Hall High School, the Commercial High School, the Boys' 
 High School, the Girls' High School, and the Bushwick High School. 
 I recommend that this building be built." 
 
 "The Manual Training High School building in Brooklyn, is in 
 need of an addition to enable the school properly to carry on tlje 
 work of an excellent technical course which was established in this 
 school over one year ago. I strongly recommend that this new addi- 
 tion be constructed." 
 
 "The Julia Richman High School, Manhattan, is now housed in 
 several elementaiy school buildings located widely apart. Some of 
 these buildings are old and unsanitary. The school is working imder 
 bad conditions. A new site has been selected at Second Avenue, East 
 67th Street and East 68th Street, a place centrally located for most 
 of the students who attend the school, and two other alternative sites 
 have been selected 'farther north and west', as suggested by the Comp- 
 troller. Yet no land has been bought for this purpose." 
 
 "The Board of Education has selected three sites for a new high 
 school in Washington Heights, Manhattan, for the purpose of giving 
 the Department of Finance an option in the matter of purchase. All 
 three sites are suitably located. About 3,000 boys and girls in the 
 northern part of the Borough of Manhattan, where there is no high 
 school building, are now obliged to travel long distances on crowded 
 public conveyances to reach a high school. A suitable .school should 
 be provided for them. In a report made by the Comptroller to the 
 Board of Estimate and Apportionment on December 26, 1919, this 
 official did not recommend the purchase of any one of the three sites 
 
23 
 
 but, instead, recommended that this high school be built at a point 
 about a mile and a half farther south than the place where the school 
 is wanted by both the Board of Education, and the citizens of Wash- 
 ington Heights." 
 
 I am happy to report that we are making good progress in the 
 work of providing a sufficient number of high schools for all bor- 
 oughs, as the following excerpt from a report which I submitted 
 to you on June 2, 1922, will show : 
 
 HIGH SCHOOL BUILDINGS NOW BEING ORGANIZED OR 
 
 ERECTED, AND OTHERS FOR WHICH PLANS 
 
 ARE IN PREPARATION 
 
 Brooklyn : 
 
 (a) The Thomas Jefferson High School in Brownsville, Brooklj-n, 
 now being erected, will have a regular capacity for 3,900 students. 
 This school, when opened, will relieve the Boys' High School, the 
 Girls' High School, Erasmus Hall High School, the Bushwick High 
 School, the Richmond Hill High School, and the Jamaica High School. 
 
 (b) Plans for the new building for the New Utrecht High School 
 are under way. The capacity will be about 3,900 sittings which will 
 afford about 3,267 more sittings than the present building has. 
 
 (c) A site is being acquired for the Girls' Commercial High 
 School, and on this site a building of about 2,500 capacity will be 
 erected. 
 
 (d) The new Technical High School, which will have a capacity 
 of approximately 2,000, is now being organized, and will reduce the 
 register of the Manual Training High School from 5,400 to 3,400. 
 
 (e) A new addition of 24 room units to Erasmus Hall High 
 School — capacity about 640. 
 
 (NOTE : The buildings referred to under "a," "b," and "c" will prob- 
 ably not be ready for occupancy in less than two j^'ears.) 
 
 The net increase in sittings for Brooklyn will be 12,307. 
 
 M.\nhattan; 
 
 (a) The plans for the new building of the Julia Richman High 
 School will soon be ready. This building will have a capacity of 
 about 3,333. The register of this school is now 4,538 with 4,569 sit- 
 tings in seven separate elementally school buildings. 
 
 (b) Plans for the new buildings of the George Washington High 
 School will be ready before September next. This building will 
 accommodate about 3,943 students. 
 
 In these two buildings will be provided about 7,276 additional high 
 school sittings for Manhattan. 
 
24 
 
 Queens: 
 
 (a) When the additions to the Bryant and the Newtown High 
 Schools are completed, about 1,618 additional sittings will be provided 
 for Queens. This work has been going on for the past four years. 
 
 (b) Plans will be begun soon for an addition to the Richmond 
 Hill High School, providing about 500 additional sittings. 
 
 (c) A site has been selected for a new high school in Jamaica, and 
 funds are requested for a building in the budget for 1922. 
 
 Richmond: 
 The new addition to the Curtis High School will provide about 
 616 seats. 
 
 Hence for the city at large, the sittings in high schools now 
 under construction, and about to be erected, will amount to about 
 22,300, but these will not be available for some time to come. 
 
 ADDITIONAL NEW PERMANENT HIGH SCHOOL BUILDINGS, 
 
 AND LARGE ADDITIONS TO EXISTING BUILDINGS 
 
 NEEDED THROUGHOUT THE CITY 
 
 Manhattan : 
 
 (a) A new site and building to be situated west of Broadway be- 
 tween West 165th and West 181st Streets. This building should have 
 a capacity of about 4,000. There are enough commercial students in 
 other high schools to fill this to capacity. 
 
 (b) A new addition to the High School of Commerce, of about 
 51 classrooms, with a capacity of approximately 2,000. 
 
 (c) A small addition to the Washington Irving High School. 
 
 The Bronx: 
 
 (a) A new building to be erected on land owned by the city in 
 the vicinity of 196th Street and Jerome Avenue (the old Reservoir 
 tract). This building should have about 4,000 sittings. 
 
 (b) A new site and building to be located north of Westchester 
 Avenue and east of the Bronx River. 
 
 (c) A new building for a technical or manual training high school. 
 
 (d) A large addition to the Theodore Roosevelt High School. 
 
 (e) A site should be acquired now for a new high school east of 
 White Plains Road, between 200th and 220th Streets, to accommodate 
 pupils north of Pelham Bay Parkway and east of White Plains Road. 
 
 Brooklyn : 
 (a) A new site and building are needed in the vicinity of King's 
 Highway and East 22d or 24th Streets. This is badly needed to pre- 
 vent congestion in Erasmus Hall. 
 
 Queens: 
 (a) A new site should be acquired, and part of a permanent build- 
 ing erected soon, in the vicinity of Baisley and New York Avenues, 
 South Jamaica. 
 
25 
 
 Richmond : 
 
 (a) A new and ample site should be acquired now for a high 
 school to be erected in the vicinity of New Dorp. This will be neces- 
 sary soon to serv^e several growing villages in the middle of Staten 
 Island, and relieve many students of the necessity of travelling long 
 distances by train and trolley. 
 
 We shall probably include in our budget for 1923, all these 
 items for new schools and sites, which have not been included in 
 the budgets for 1921 and 1922. 
 
 In the budget for 1921 were items — 
 
 For new high school buildings $11,600,000 
 
 " " " " sites 670,000 
 
 In the budget for 1922 were items — 
 
 For new high school buildings $13,677,050 
 
 " " " " sites . 720,000 
 
 CONDITIONS IN HIGH SCHOOLS AND RELIEF 
 PLANNED 
 
 The Bronx now sends 4,265 students to the Manhattan high 
 schools. If the 13,500 additional sittings which we are planning 
 for new high school in the Bronx, in our budgets for 1922 and 
 1923, are provided by 1925, all the "excess" students now in the 
 Bronx (7,392) would be adequately housed, and ample provision 
 would be made for 6,000 growth in the next three years. If the 
 George Washington High School and the Julia Richman High 
 School are erected in the next two years (aggregate capacity 
 8,000), and 6,000 additional sittings are provided in other new 
 schools, there will be adequate room for all in 1925, in Manhattan. 
 
 The buildings now projected for Brooklyn, Queens, and Rich- 
 mond will provide amply for those who wish to attend in 1925. 
 
 It requires considerable time, however, to construct and equip 
 a large modern high school building. Relief by this means will 
 not be afforded until late in the year 1923, or the middle of the 
 year 1924. The urgent and immediate relief needed in the high 
 schools is pointed out in the following part of my report to you 
 dated June 2, 1922 : 
 
26 
 
 "On February 1, 1922, there were 93,800 boys and girls registered 
 in the high schools of the city; there were 72,111 sittings, or 22,687 
 less than the number required to give every student a seat. Of the 
 72,111 sittings, 15,878 were in study halls, laboratories, gjannasiums, 
 auditoriums, libraries, shops, etc. Eighteen thousand and thirty-six 
 (18,036) students were registered in annexts or branches of the reg- 
 ular high schools. Many :>t' the high schools are nm on double- 
 sessions, and some have triple sessions and 'over-lapping' sessions. 
 Some of the schools conduce annexes in several buildings — one having 
 as many as six of such branches." 
 
 "The register, the number of buildings, the total sittings (regular 
 and emergency), and the percentage of excess register over sittings 
 for each borough are shown in the following: 
 
 Number of Excess Per Cent. 
 
 Register High Schools Sittings Register of Excess 
 
 Manhattan 
 
 33,502 
 
 8 
 
 24,699 
 
 8,801 
 
 35 
 
 Bronx 
 
 11,250 
 
 3 
 
 8,123 
 
 3,127 
 
 38 
 
 Brooklyn 
 
 36,532 
 
 10 
 
 28,871 
 
 7,661 
 
 26 
 
 Queens 
 
 10,588 
 
 6 
 
 8,619 
 
 2,969 
 
 30 
 
 Richmond 
 
 1,928 
 
 1 
 
 1.799 
 
 129 
 
 7 
 
 93,800 28 72,111 22,687 
 
 "In the high schools of Manhattan, tliere are 4,265 students from 
 the Bronx, 1,345 from Brooklyn, 207 from Queens, and 58 from Rich- 
 mond. Of the 33,502 students in the Manhattan high schools, 3.767 
 reside north of 125th Street in Manhattan, 6,126 reside south of 14th 
 Street and east of Broadway, 3,512 reside east of Fifth Avenue be- 
 tween 59th and 110th Streets. Of the 4,358 girls in the Julia Richman 
 High School, 1.603 — more than one-third — reside between 59th and 
 110th Streets." 
 
 The registration in high schools has increased enormously 
 during the present year, not only in this city but elsewhere. More 
 voung people are seeking a high school education. Many ai-i 
 attending who would leave and go to work if industrial conditions 
 were better. 
 
 The figures in Tables X. and XI. will afford interesting com- 
 parisons. 
 
27 
 
 
 
 
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29 
 
 PART-TIME, DOUBLE AND DUPLICATE SESSIONS IN 
 ELEMENTARY SCHOOLS 
 
 Part-time and double session classes have grown rapidly with- 
 in the past five years, notwithstanding the fact that 27,997 addi- 
 tional elementary sittings have been provided, most of them since 
 January 1, 1921. The increase in registers in one year 1914-1915 
 was 49,165 and there has been a steady increase ever since. Over 
 21,000 additional children were registered last year in elementary 
 schools. 
 
 Table XII., following, shows the increase in part-time and 
 double session classes. 
 
30 
 
 
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31 
 
 FUNDS FOR CONSTRUCTING N]£\V SCHOOL 
 BUILDINGS 
 
 In the work of erecting and equipping new school buildings, 
 the Board of Education has the ready and ample support of The 
 Mayor and nearly all the members of the Board of Estimate and 
 Apportionment. Since 1918, this board has authorized $55,000,000 
 for new school buildings and sites, and assurances are given that 
 all the funds necessary for building an adequate number of new 
 school buildings, will be supplied as fast as the Board of Educa- 
 tion can use the mioney for this purpose. 
 
 LTn fortunately, the Board of Education has not been in a 
 position to use these building funds as quickly as conditions in the 
 schools demand owing to various occurrences and to circum- 
 stances in the Bureau of Construction and Maintenance of the 
 Board of Education. On February 1, 1918, a destructive fire 
 occurred in this bureau which was then located on the three 
 uppermost floors of the Hall of the Board of Education at 59th 
 Street and Park Avenue, Manhattan. Many valuable records and 
 papers of the bureau were destroyed. The bureau then moved to 
 what were considered inadequate quarters in the Municipal Build- 
 ing. War conditions caused the cost of building materials and 
 labor to mount higher and higher until the cost of building and 
 equipping a school increased far in advance of pre-war prices. 
 Strikes occurred on many buildings. (Note regarding compara- 
 tive costs — A general construction contract was awarded on Jan- 
 uary 28, 1914, for a 48-room school building in Brooklyn at 
 $234,987. A general construction contract was awarded on 
 March 3, 1920, for a 48-room school building in The Bronx at 
 $834,000. A general construction contract was awarded on 
 August 17, 1921, for a 48-room school building in Brooklyn at 
 $620,688.) 
 
 The Bureau of Construction and Maintenance is now located 
 in ample quarters in a new reinforced concrete building, recently 
 purchased, near the Brooklyn Plaza of the Manliattan Bridge. 
 Conditions now are more favorable for expediting the preparation 
 of plans and the letting of contracts for the construction of new 
 school buildings. 
 
32 
 TABLE XIII. 
 
 Appropriations for New Schools and Sites Since 1898. 
 
 Mayor 
 
 Amount of Corporate 
 Year Stock Issued 
 
 Van Wyck, Robert A. 
 
 Low, Seth 
 
 McClellan, Geo. B. 
 
 Gaynor, William J. 
 
 Mitchel. John P. 
 
 Hylan, John F. 
 
 1899 
 1900 
 1901 
 
 1902 
 1903 
 
 1904 
 1905 
 1906 
 1907 
 1908 
 1909 
 
 1910 
 1911 
 1912 
 1913 
 
 1914 
 1915 
 1916 
 1917 
 
 1918 
 1919 
 1920 
 1921 
 1922 
 
 $7,683,640.00 
 3,500,000.00 
 3,700,000.00 
 
 $8,000,000.00 
 9,788,430.00 
 
 $9,350,000.00 
 
 15,000,000.00 
 
 13,000,000.00 
 
 3,500,000.00 
 
 8,771,779.00 
 
 1,600,966.04 
 
 $5,270,173.26 
 
 12,138,387.39 
 
 360,490.00 
 
 6,131,085.00 
 
 $798,194.00 
 
 1,500,500.00 
 
 ♦6,172,084.68 
 
 *6,797,571.13 
 
 ►$10,000,000.00 
 
 7,000,000.00 
 
 8,000,000.00 
 
 15,000.000.00 
 
 15,000,000.00 
 
 *0n December 30, 1918, Board of Estimate and Ap- 
 portionment rescinded authorizations of 1916 and 
 
 1917 to the amount of 
 
 And in their stead re-authorized 
 
 Excess of rescindments over authorizations 
 
 $14,883,640.00 
 
 17,788,430.00 
 
 51,222,745.04 
 
 23,900,135.65 
 
 15^8,349.81 
 
 55,000,000.00 
 
 $11,451,478.24 
 10,772,724.00 
 
 $678,754.24 
 
33 
 
 PRESENT COSTS OF CONSTRUCTING AND EQUIP- 
 PING NEW SCHOOL BUILDINGS 
 
 In general it may be stated that new school buildings cost now 
 over 200^ more than they cost before the late war. This means 
 that with the same amount of money that we could build build- 
 ings to relieve 3,000 from part-time before the war, we now can 
 relieve only 1,000. 
 
 In the following Table XIV. these costs are shown. They 
 are referred to elsewhere in this report. 
 
34 
 
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35 
 
 
 
 2b 
 
36 
 
 PROCEDURE IN ACQUIRING SCHOOL SITES AND IN 
 ERECTING A NEW SCHOOL BUILDING 
 
 The question is often asked — Why can not we acquire a site 
 and erect a new school building in a much shorter time than is 
 now taken for this work? Why should it take a longer time to 
 build a new school building than that required to erect a private 
 building of equal size and similar construction? The answer is 
 found in the fact that public schools are erected with public 
 money, and the present legal requirements are that several 
 officials, boards and bureaus must approve the work at certain 
 stages along the line, and that some time is spent in legally pre- 
 scribed advertising. The same prescriptions prevail in the work 
 of erecting other public buildings — municipal, state, or national. 
 The work of erecting a private building is subject to no such 
 formal steps and restrictions, other than compliance with general 
 building laws and regulations. 
 
 (a) acquiring school sites 
 
 The following is the procedure in acquiring a school site : 
 
 1st, The site is selected by the Board of Education (Education Law, 
 §875). Recommendations as to the approximate situation of the site 
 are usually made by local school boards, superintendents, citizens' 
 associations, etc. The act of selecting, however, is entirely in the hands 
 of the Board of Education. 
 
 2nd, The Board of Estimate and Apportionment is notified of the 
 selection, and requested to acquire the site for school purposes. The 
 Board of Estimate and Apportionment is the only body in The City 
 of New York empowered to acquire real estate for public use (Ed. 
 Law, §876). 
 
 3rd, After an investigation of the proposed site by the Board of 
 Estimate and Apportionment, this board may approve the site and 
 authorize the acquisition of the land, or disapprove the selection and 
 refer the matter back to the Board of Education. If the Board of 
 Estimate and Apportionment approves the site selected, condemnation 
 proceedings are authorized, and the Comptroller is directed to nego- 
 tiate for the piu'chase of the land at private sale. If the owner is 
 unwilling to sell at a reasonable price, the land is acquired through 
 condemnation proceedings. The Board of Estimate and Apportion- 
 ment is empowered by the City Charter to pass a resolution vesting 
 title to the land in the City on any particular date, when the site is 
 needed by that date. i 
 
37 
 
 4th, The Corporation Counsel has charge of the legal work relating 
 to the acquisition of school sites, whether through condemnation pro- 
 ceedings, or through private purchase. Condemnation proceedings 
 often take nine months or a year. 
 
 5th, The Board of Education is required to prepare two sets of 
 maps and surveys of the proposed site. One of these is filed in the 
 office of the Register of the County where the land is situated, and one 
 is kept in the office of the Board of Education. 
 
 6th, If the site finally acquired for a school has any buildings on 
 it, the only body which can order the sale and the removal of the 
 buildings is the Sinking Fund Commission, consisting of The Mayor, 
 The Comptroller, The President of the Board of Aldermen, The City 
 Chamberlain, and The Chairman of the Finance Committee of the 
 Board of Aldermen. 
 
 (b) erecting new school buildings 
 The procedure in erecting a new building is the following: 
 
 1st, The Board of Education decides that a new school building is 
 needed in a certain locality (Education Law, §875) and places an item 
 for such building in its next building budget or "program." 
 
 2nd The Board of Estimate and Apportionment is requested to 
 make funds available for the purpose. The Board of Estimate and 
 Apportionment authorizes the work and provides for the sale of long 
 term bonds to meet the expense. 
 
 3rd, In practice, when funds are available, the Board of Superin- 
 tendents makes recommendations to the Board of Education as to the 
 size of the building, the number of rooms, regular and special. (This 
 is a matter of desirable and convenient practice. Such recommenda- 
 tions are not required by law.) 
 
 4th, The Board of Education approves the "lay-out" for the 
 building and directs the Superintendent of School Buildings to' prepare 
 plans and specifications. 
 
 5th The Superintendent of School Buildings must submit the de- 
 sign for the building to The Municipal Art Commission for approval. 
 
 6th The plans and specifications for the general construction of 
 the building must be submitted, for approval, to the Bureau of Build- 
 ings in the appropriate borough. 
 
 7th The plans and specifications for the heating and ventilating 
 and for plumbing must be submitted, for approval, to the Department 
 of Water Supply, Gas and Electricity. 
 
 8th All plans, including those for furniture, are then submitted by 
 the Superintendent of School Buildings to the Board of Education and 
 The Superintendent of Schools, for approval. 
 
 9th The Board of Education then submits the plans to the^ Board 
 of Estimate and Apportionment for approval. Engineers and other 
 subordinates of the Board of Estimate and Apportionment examine 
 the plans. 
 
38 
 
 lOth, The plans are then returned, with approval or disapproval, to 
 the Board of Education. 
 
 11th, If the plans are approved, the Superintendent of School 
 Buildings then submits projiosed advertisements and contracts to the 
 Corporation Counsel for approval. 
 
 12th, If his proposed advertisements and contracts are approved, 
 the Superintendent of School Buildings then causes his specifications 
 to be printed. Several copies of the specifications are printed and 
 several duplicates of the plans are drawn. 
 
 13th, After printing is done, an advertisement is printed in the 
 City Record for ten days, calimg icr bids. 
 
 14th, Bids are then opened and the contracts awarded to the 
 "lowest responsible bidder." 
 
 15th, The Comptroller is now required to examine the bonds and 
 sureties of the lowest bidder and report his findings to the Board of 
 Education. 
 
 16th, The Board of Education then signs contract for the work. 
 The Auditor of the Board of Education records the contract and re- 
 turns it to the Comptroller for a certification as to "financial ability." 
 
 17th, The work of building the school then begins. 
 
 18th, Final payment cannot be made to the contractor until the 
 Municipal Art Commission certifies that the building conforms to the 
 plans which this commission approved. 
 
 METHOD EMPLOYED IN PREPARING A BUILDING PROGRAM 
 
 The following is, in part, what I stated in my last annual 
 report : 
 
 Our aim in preparing a program for building school build- 
 ings, is to determine as carefully as possible just where addi- 
 tional school room is most needed, and to recommend that a site 
 be bought and a building erected in a certain locality, in prefer- 
 ence to some other, only on the ground that the children of that 
 locality are, or may be, in more urgent need of better school 
 accommodations. We try to make equitable recommendations for 
 each borough of the city. We note carefully facts, figures and 
 circumstances relative to each school and each vicinity. We are 
 not moved by unreasonable requests nor by unjustifiable clamor. 
 
 In making recommendations for the new buildings, we con- 
 sider present and prospective conditions in groups of schools 
 
39 
 
 Manhattan Trade School for Girls 
 Comer E. 22nd Street and Lexington A\-c. 
 
40 
 
 where there is present overcrowding or prospective congestion in 
 the near future. These groups of schools, in some cases, are com- 
 prised in two or more local school board districts, as such. It is 
 not a reliable method to plan new schools to relieve the schools 
 of one district without reference to adjoining districts. 
 
 The building program is prepared and the "order of necessity" 
 determined by considering the following for each group of 
 schools : 
 
 1 — The percentage of excess register over sittings ; 
 
 2 — The number of pupils attending on part-time and on double 
 sessions ; 
 
 3 — The growth of public school population within the previous 
 five years, and, based on this, the prospective growth for the 
 next three years ; 
 
 A — The prospects for increase in school population, e. g., increase 
 in transit facilities, increase in building of homes, develop- 
 ment of new residential tracts ; 
 
 5 — Present residential neighborhoods changing to business or 
 manufacturing, or designated for such change as shown by 
 "zoning" maps prepared by the Committee on City Planning; 
 
 6 — Recommendations from superintendents, local school boards, 
 civic associations and others ; 
 
 7 — Present buildings in part unsanitary and unfit for use ; 
 
 8 — Building permits issued within the previous three months by 
 the Bureau of Buildings in each borough. 
 
 Some schools included in the groups which we study, are those 
 where there is no congestion, and where conditions are prac- 
 tically static and likely to remain so for many years. 
 
 INADEQUATE SCHOOL BUILDING IN FORMER YEARS 
 
 The result of inadequate foresight, policy and program in the 
 building of schools in growing parts of the city in years gone by, 
 is that now in practically all parts of the city, citizens are ask- 
 ing — some of them clamoring — for new school buildings for their 
 
41 
 
 particular localities. They demand new buildings on the ground 
 that their home district is faring worse than others, and this 
 claim is often made without knowledge of, or apparently care for, 
 conditions existing in other parts of the great city. Our plain 
 duty, however, is to be guided by facts — not clamor — and to 
 recommend that sites be bought and school buildings be erected 
 in the places where the children need them most ; to discover the 
 "order of necessity"; and to recommend an equitable use of 
 building funds. The "order of necessity" is necessarily not exact 
 but approximate. 
 
 In the six years 1913-1919, the per cent, of new sittings pro- 
 vided, as compared with increase in registers, shows : 
 
 For Manhattan 62.18% 
 
 For The Bronx 61.96% 
 
 For Brooklyn 53.06% 
 
 For Queens 66.85% 
 
 For Richmond 54.55% 
 
 PROSPECT FOR REDUCING PART-TIME AND DOUBLE-SESSION CLASSES 
 
 TO A MINIMUM 
 
 On June 1, 1922, there w'ere 85,326 pupils in part-time classes, 
 and, on the same date, there were in "four-hour double session 
 classes" 73,912, and in "five-hour double session" classes 117,721, 
 or a total of 276,959, in all short time and double session classes. 
 
 The number of sittings to be provided in elementary schools 
 now under construction and in others for which plans are being 
 drawn, is 83,663 in 66 buildings. If we add to this number 10,080 
 sittings in other buildings projected in the building "program for 
 1922," and for which plans will soon be prepared, the total is 
 93,743. Were these sittings available now, the result would be 
 that all part time in elementary schools would be eliminated and 
 the number of pupils in double session classes reduced to about 
 90,000. 
 
 The number of sittings in high school buildings now under 
 contract and in those in our building program for 1922, for most 
 
42 
 
 of which plans are being prepared, is 23,416. Were these sitting? 
 available at once, part-time and double sessions in high schools 
 would be practically eliminated. 
 
 If we estimate that all buildings — elementary and high — now 
 under contract and being erected, and others projected, as stated 
 above, will be completed and ready for occupancy by January 1, 
 1924, and if we estimate that there will be an increase of 30,000 
 in elementary school register, and an increase of 16,000 in high 
 school register by that date, the number in all part-time and 
 double-session classes would then be reduced by about 75 per cent. 
 
 We are making provision in our building budget for 1923 for 
 a sufficient number of school buildings — elementary and high — 
 to provide seats for all pupils not provided for in the programs 
 for 1920-1922, and for the estimated growth in register between 
 now and 1925 when our program for 1923 should be carried into 
 effect. 
 
 BUILDINGS FOR CONTINUATION SCHOOLS 
 
 I have received recently from Superintendent McAndrew 
 and the Director in charge of Continuation Schools, a request 
 that provision be made in our building budget for 1923, for five 
 sites and buildings to be used solely for continuation school work 
 in order properly to carry out the provisions of the Continuation 
 School Law. To do this, we estimate that approximately six 
 millions will be required in addition to what we estimate for 
 other schools, because the localities for which continuation 
 schools are requested, are those in the more congested parts of 
 the city where real estate is costly. 
 
 Our first duty is, to make ample provision in buildings for 
 all regular elementary school children, particularly those of the 
 lower grade classes who should have every opportunity for be- 
 ginning their education. This we should do before we take care 
 of those who have had such opportunities heretofore, and whom 
 we are now forcing to "continue" their education. 
 
43 
 
 BUILDING AND ROOMS FOR PHYSICALLY AND MENTALLY HANDI- 
 CAPPED CHILDREN 
 
 I wish to call attention to the progress we have made and 
 are making in the matter of providing suitable buildings, rooms, 
 and equipment for all classes of handicapped children. 
 
 We are about to erect a new up-to-date structure on East 
 23rd Street, Manhattan, for our School for The Deaf. This will 
 have ample space and equipment. It is the only public school for 
 these unfortunate children in all the greater city. 
 
 In all our large new buildings we provide rooms for anemic 
 children (open air classes), for classes of cripples, and for un- 
 graded classes (mentally sub-normal). In some of the buildings, 
 where necessary, we provide rooms for the blind. We are enlarg- 
 ing and improving the New York Parental School, at Flushing, 
 for the truants and incorrigibles, so that when this improvement 
 is made, we may discontinue other less suitable buildings now 
 used for this purpose. 
 
 LARGER AREAS FOR SCHOOL SITES AND PLAYGROUNDS 
 
 For the past four years we have endeavored to acquire a 
 suitably large plot of ground for all new school sites, so that the 
 children may have adequate outdoor play space, and in this we 
 have succeeded in nearly all cases. 
 
 Many years ago, when sites were bought for most of the older 
 schools in all the boroughs, scarcely any provision was made for 
 outdoor recreation or for a future extension to the building. 
 Conditions created by this lack of foresight deprive the children 
 of much of the outdoor exercise which they should have, and 
 result in large expenditures for additional ground when it is now 
 needed. 
 
 teachers' REST-ROOMS 
 
 One important innovation in each of our new buildings is the 
 teachers' rest-room, which we are providing. In many of the 
 older buildings, we had so-called "teachers' rooms" — small cor- 
 
44 
 
 ners here and there — with no suitable equipment. Our modern 
 rest-rooms are amply large and contain necessary furniture. 
 Yourself and Mrs. Emma L. Murray of the Board of Education, 
 are entitled to great credit for the firm stand which you took in 
 favor of this important feature in school buildings. 
 
 In closing t^is report, I desire to extend to you my cordial 
 appreciation of your full and helpful support in all we are trying 
 to achieve in better construction of school buildings and in every- 
 thing else which makes for sane and progressive school adminis- 
 tration. 
 
 Respectfully submitted, 
 
 EDWARD B. SHALLOW, 
 
 Associate Superintendent. 
 
Stillman Appellate Printing Co. 
 
 200 William Street 
 
 New York 
 

LIBRARY OF CONGRESS 
 
 029 452 316 9