100 Students in a School Meant for 1,000: Inside Chicagos Refusal to Deal With Its Nearly Empty Schools
by Mila Koumpilova, Chalkbeat, and Jennifer Smith Richards, ProPublica ProPublica is a nonprofit newsroom that investigates abuses of power. Sign up for Dispatches, a newsletter that spotlights wrongdoing around the country, to receive our stories in your inbox every week. To keep up with the latest education news, sign up for Chalkbeat Chicagos free daily newsletter. More than 4,000 students once crowded DuSable High School, then an all-Black academic powerhouse on Chicagos South Side. Its three-story Art Deco building drew students with a full lineup of honors classes, a nationally known music program and standout sports teams. Nat King Cole played the piano in his classroom as a DuSable student. Harold Washington, Chicagos first Black mayor, studied there. On Friday nights, teenagers zipped through its hallways on roller skates and danced in the gymnasium.But at the turn of the millennium, enrollment plunged as Chicago closed a massive public housing complex nearby and a growing number of Black families left the city. Amid a national infatuation with smaller high schools 20 years ago, Chicago Public Schools conducted a grant-funded experiment to chop DuSable into three separate schools sharing a campus. What remains today, after that grant money ran out, is an enormous building and, inside, two tiny schools clinging to life.One has about 115 students and claims the north corridors. The other, with only 70 students, takes the south wings. The inoperable pool is off-limits. Hundreds of unneeded hallway lockers hide behind decorative paper and student posters of Pakistani activist Malala Yousafzai, Supreme Court Justice Sonia Sotomayor and former first lady Michelle Obama, whose father attended in the 1950s.The two little high schools in Bronzeville share the same entrance and sports teams, but other things are doubled: two main offices, two principals, two assistant principals, two school counselors. Even though theres a teacher for roughly every five students, the course offerings are limited.Chicago Public Schools operates more than 500 schools and spends about $18,700 per student to run buildings that it considers well-utilized. At the DuSable schools, the cost is closer to $50,000 a student. The DuSable schools are emblematic of an unyielding predicament facing the district. Enrollment has shrunk. Three of every 10 of its schools sit at least half-empty, and they are costly to run. More critically, there are 47 schools, including those inside DuSable, operating at less than one-third capacity, by the districts measure. Thats almost twice as many severely underenrolled buildings as Chicago had in 2013, when it carried out the largest mass school closings in the countrys history, Chalkbeat and ProPublica found. The most extreme example is Frederick Douglass Academy High School, which has 28 students this year and a per-student cost of $93,000.Many of those schools are in historic buildings that need millions of dollars in repairs. The costs are not only financial. Students in the citys smallest schools have fewer courses to choose from and often miss out on clubs, extracurricular activities and sports. Chicagos underenrolled high schools are more likely to have lower graduation and college enrollment rates. They tend to struggle with chronic truancy and higher dropout rates, a ProPublica and Chalkbeat analysis found.But officials in Chicago have chosen not to confront the problem of the citys tiny schools. The teachers union and Chicago Mayor Brandon Johnson, who used to be an organizer and legislative liaison for the union, are quick to shut down discussion of downsizing. Widespread anger over the 2013 closures helped fuel the unions rise to political power over the past decade; the union has also wielded the radioactive closure issue to undermine opponents, notably outgoing district CEO Pedro Martinez.Union leaders, many community activists and some researchers say closures disrupt displaced students learning and harm the citys predominantly Black and Latino neighborhoods, which were disproportionately affected by that earlier wave of closures. They argue the district needs to do much more to try revitalizing these campuses before it considers shuttering or merging them.Helping to delay a reckoning: Since 2013, the district has operated under a series of moratoriums on closing schools, including one state lawmakers enacted with strong support from the teachers union. And a statewide school finance overhaul under former Republican Gov. Bruce Rauner increases or at least holds funding steady for districts even if enrollment declines.Chicago has too many schools for the number of students it serves today, Martinez said in an interview with ProPublica and Chalkbeat. The district is spending too much on aging buildings, and its not providing a rich experience for students in many of its tiny schools, he said, adding: Theyre not having joy in that environment. But he said he inherited a closure moratorium and worked with school boards that had no appetite for closing or merging schools. Our footprint is too large, said Martinez, who leaves the district this month. Every time somebody wants to address this issue, you see at all levels of politics, nobody wants to do it.He said he hopes a fully elected school board that will take over in 2027 will tackle the issue head-on, working closely with the communities it serves. In a statement, the district noted its building utilization formula is just one measure, and it could overestimate available space. The mayors office did not respond to requests for comment.With public school enrollment declining across the country, a growing number of cities Milwaukee; Denver; Flint, Michigan; Boston; San Francisco; Philadelphia are grappling with the issue of underenrollment. Some plan to close schools.But Chicago, the countrys fourth-largest district, operates on a larger scale: It has more students and more buildings than most other cities. The citys school-age population, meanwhile, is on a downward trajectory, federal COVID-19 aid ran out this year and the district faces a budget deficit of more than $500 million. And yet, Chicago doesnt seem to be having an honest conversation about the challenges its facing, said Carrie Hahnel, a school finance researcher with the nonprofit Bellwether. The DuSable High School building houses two smaller schools, the Bronzeville Scholastic Institute and Daniel Hale Williams Preparatory School of Medicine. Unused lockers are covered with posters and decorative crafts. (Akilah Townsend for ProPublica) A Lack of Political CourageThe 2013 closings of 49 Chicago elementary schools and one small high school were more than controversial. Families there felt that their communities were being torn apart as the city moved to shutter schools with long and rich histories. After protests and angry meetings, students were displaced to schools that were farther away from home. Neighborhood hubs were mothballed. Deep distrust of Chicago Public Schools after the mass closures lingers, especially in Black neighborhoods like DuSables Bronzeville. University of Chicago research showed those closures set students back academically, though a small number who moved to high-performing campuses fared better. Some community groups and the teachers union in Chicago see schools as a public good; shuttering them is another mark of disinvestment.That was the backdrop when a group of DuSable High School alumni grew concerned about dwindling enrollment at their beloved school and worried the district might target the building for closure. They approached CPS just before the pandemic with an alternative idea: Consolidate the two tiny schools at DuSable and focus classes on STEM careers.The Bronzeville Scholastic Institute and the Daniel Hale Williams Preparatory School of Medicine would unite and revert to the name DuSable.The alumni had no illusions that they could fully restore DuSable to what it once was. Compared to the schools heyday, a much smaller number of school-age children live in Bronzeville today. But the alumni wanted more for the school. The group met repeatedly with school and district leaders in DuSables wood-paneled social room, where trophies mark decades of athletic and musical excellence. Officials told the group to get more input from current families at both schools a daunting task given that the district would not provide their names or contact information. The plan fizzled out.Hal Woods, now a policy director with the parent advocacy nonprofit Kids First Chicago, worked as the districts school development director at the time and sat in on those meetings. He said the bottom line was that the plan smacked too much of a closure. We didnt want to be seen with our fingerprints on this, he said. The Robert Taylor Homes at one time the largest public housing project in the United States once loomed over DuSable High School, as seen in these images from 1966. The complex was demolished by 2007, and DuSable High School never recovered from the loss of that student population. (Chicago Sun-Times Collection/Chicago History Museum) Former school board President Jianan Shi, a Johnson appointee who served from 2023 to 2024, said rebuilding trust and planning for schools future with local communities at the helm takes time; it must begin now. But, he said, Theres a lack of political courage to have this conversation, and yet its often weaponized.Amid the uproar over the 2013 closings, Chicagos then-mayor, Rahm Emanuel, vowed that his appointed school board would not close schools for five years. The state legislature then imposed a 2021 moratorium on closing Chicago schools until January of this year, part of a bill that changed the Chicago Board of Education to an elected, rather than mayor-appointed, body. Today, Chicago has 634 schools, including 119 charter and contract schools run by outside entities, and a teachers union ally holds the mayors office. Last September, amid a power struggle between Johnson and Martinez, the Chicago Teachers Union publicized a facilities analysis that the district had done in late 2023, which included hypothetical scenarios for consolidating 75 schools, including Williams and Bronzeville. The union argued that even entertaining that idea was cause to fire Martinez immediately. As the CTU pounced, Martinez pushed back, saying the district had concluded that no school would be closed while he was in charge which he now says was really the school boards decision. At the next school board meeting, he presented a new resolution that got unanimous support: CPS would not close any schools until 2027.But the citys demographic realities are not on hold. About 325,000 students enrolled this year, a drop of more than 70,000 from a decade ago. District officials project that three school years from now, there could be as few as 300,000 or, in a best-case scenario, as many as 334,000 students. Those estimates are based in part on the citys sharply falling birth rates. Citywide, from 2011 to 2021, the number of births dropped by more than 43%.Still, CTU leaders insist that the city is actually poised for a population turnaround. During President Donald Trumps second administration, Chicago under Johnson can bill itself as a progressive refuge a place that protects immigrants, abortion care, LGBTQ+ rights and access to gender-affirming care for transgender youth and adults, said Jackson Potter, vice president of the CTU. We are going to need to be a citadel of protection, he said, adding that the last thing the city wants is to shutter some of its schools, then see families arriving in these neighborhoods en masse only to find limited classroom seats. The unions real issue with school closures, Potter said, is that Chicago has done them without enough educator and community input and has rushed them, destabilizing other nearby schools. An influx of immigrant families allowed CPS to stabilize its enrollment and the city to notch modest population increases in the past two years after a lengthy decline. But some demographers think the Trump administrations immigration crackdown might mean these gains are short-lived. Jim Lewis, a senior researcher at the Great Cities Institute, a research hub at the University of Illinois Chicago, is skeptical about the possibility of an influx of school-age children in areas with shrinking schools. Some gentrifying Chicago neighborhoods have drawn new residents, but they tend to be higher earners who generally have fewer kids.Lewis cautions that people tend to overestimate the power of schools to attract residents. Studies have shown that crumbling schools can deter families, he said. But research also suggests new programs and attractive campuses can only do so much to draw them unless those schools come with a complete package of job opportunities, safe neighborhoods, affordable housing and more. Im all for beautiful new schools, Lewis said. Do I think by itself it changes the demography of a place? I dont think so.What to do about underenrolled schools and Chicagos diminished school-age population is a decision for Chicagos school board. Currently, 10 members are elected and 11 are appointed by the mayor. Next year, all will be up for election.Some members, who said they could only speak candidly if they arent named, said the board must discuss solutions for tiny schools, including consolidation. But being branded school closers is a concern ahead of elections. Others said theyre open to discussing alternatives to school closings, including bringing health clinics or other family services into vacant parts of underenrolled schools.I think we have to talk about small schools as a result of historic racism, underfunding, neglect and inequity, said member Debby Pope, a former CTU employee. A conversation is going to be essential, she said, but with a moratorium on closings in place and the possibility that the board could extend it, I dont think this is the moment for that conversation. Dozens of Chicago schools are operating at less than one-third capacity. (Taylor Glascock for ProPublica) Small Enrollment, Limited OpportunitiesAbout 5 miles southeast of DuSable is Hirsch High School, which was one of the districts largest school building projects when it opened in the 1920s and once dealt with severe overcrowding. Its gotten so small now that MKya Craig had taken all the electives the school offered by her junior year. She was one of roughly 100 students at Hirsch, which could enroll 1,000. She browsed the schools limited courses and decided to take yearbook for a second time. She was bracing to take the course a third time her senior year, but Hirsch added an African American literature class. Craig appreciated that staff at the small school got to know her well, including a counselor who helped her get into Chicago State University. But she often felt frustrated by the schools slim course offerings and scarce extracurriculars over the years. We lost a lot over the years due to being a small school, she said.Most of the districts underenrolled schools serve students who do not participate in Chicagos expansive system of school choice, where high-performing students test into selective schools ranked the best in the state, and other students find their way to magnets, charters or strong neighborhood schools, often in wealthier parts of Chicago. Many of the districts small schools serve Chicagos highest-needs students. Hirsch High School on Chicagos South Side opened in 1926 and has the capacity for 1,000 students. It currently has around 100. (Taylor Glascock for ProPublica) At the Daniel Hale Williams Preparatory School of Medicine, one of the schools inside DuSable, junior Georgia Deaye was drawn to the schools medical career program and loves the close-knit feel.The connection with teachers is way deeper than if I was at another school, she said. She participated in a summer internship program that Williams accesses through one of the larger district high schools and recently got her CPR certification. The most recent graduation rate at Williams was 93%, among the highest in the district. The graduating class was 14 students. There are a total of 70 students enrolled there, at a cost of $54,000 per student.Small schools are not always painted in a positive light, said Williams Principal Leonetta Sanders, but the smaller environment is ideal for some students. In part because of its size, the campus hasnt had to deal with gang problems or violence, she said. Safety, she said, is always money well spent.Some research has suggested that students tend to do better in smaller schools, notes Bruce Fuller, an expert at the University of California, Berkeley. But those findings apply to small-by-design campuses with healthy enrollments, not schools that have shrunk dramatically as families have moved away. Fuller doesnt think that student outcomes at those underenrolled schools have been studied rigorously because it would be too hard to control for factors such as the high needs of the students they tend to serve. Theres consistent evidence that smaller can be better, Fuller said. But small in this lifecycle of decline is a totally different story.In Chicagos tiny schools, the limitations, even at a high per-student cost, are substantial. Bronzeville Scholastic Institute, the other school inside DuSable, used to be able to teach Spanish and French but now offers Spanish only. The school once offered Advanced Placement and International Baccalaureate courses but realized it could not continue to offer both; it kept the IB program.The schools have tried to make up for the limited course offerings by encouraging students to take online courses and dual-enrollment classes that local community colleges offer to high school students. Youve got 12 kids in a class. The board is not going to pay for a calculus teacher, Grace Dawson, who leads DuSables robust alumni group, said of the school district. Students are being robbed of opportunity, said Dawson, a former Chicago school principal. Flush with federal COVID aid, the district added more than 7,500 new positions over the past four years even as enrollment kept declining. It also recently started guaranteeing a certain number of staff, including 10 teachers, at each school regardless of enrollment. Williams and Bronzeville, which used to share an assistant principal and a gym teacher, each hired their own. Douglass High School on the citys West Side now has 27 employees for 28 students.That includes six regular education teachers, six special education teachers, a school counselor, a college and career coach, a conflict resolution specialist, a restorative justice coordinator, and an assistant principal and principal. The cost to run the school is $93,000 per student. Is a Douglass student getting a $93,000-a-year experience? No, said Woods of Kids First Chicago. We can confidently say that. CPS pumps extra dollars into these schools so they can offer the bare minimum."The district, which handles requests for comment about individual schools, did not dispute the high per-pupil price tag at Douglass. It has said its new budgeting approach gives all schools a fiscal boost regardless of size.David Narain, who was principal at Hirsch until 2023, said the schools smaller size allowed his staff to focus intensely on a highly mobile student body, where many students came in reading at the third or fourth grade level. But it was challenging to build a school culture on a campus with so few students.You try to have a homecoming, but theres no football team, he said. Theres nothing to come home to.And Narain understands the financial tension the district faces. The writing is on the wall, he said. You cant continue to run these schools and give them all of these resources. Williams Preparatory School, one of the schools inside DuSable, offers students a medical career program. (Akilah Townsend for ProPublica) Old Buildings, Big ExpensesIn a district with a $10 billion budget, the overall spending on staff and programs at small schools can seem negligible. But keeping aging campuses running is costly no matter how many students are there. The average Chicago school building is 85 years old; dozens of them were built before 1900.Analysis of capital spending data by ProPublica and Chalkbeat found that since 2017, the districts 47 severely underenrolled schools ones that sit more than two-thirds empty have cost more than $213 million to maintain and renovate.The emptiest buildings account for $400 million of the districts estimated $3.1 billion in needed critical repairs. The DuSable building alone needs $21 million in urgent repairs. Adding to the financial uncertainty at CPS is the Trump administrations threat to withhold federal funding from districts such as Chicago that have maintained their diversity, equity and inclusion efforts. Education policy researcher Chad Aldeman, the former policy director of the Edunomics Lab at Georgetown University, said some closures or consolidations seem inevitable on the heels of Chicagos massive enrollment losses. If the district doesnt make a plan now with community input and help to ease the transition for students it could find itself scrambling later to reorganize in crisis mode. A lot of places that are closing schools are in financial distress, Aldeman said. They are trying to save money rather than thinking holistically. Closing schools can also carry steep costs. In 2013, the district spent big to add staff at schools that took in students, spruce up those schools and move furniture out of the closed buildings. Then theres what to do with vacant buildings. The district is still trying to sell 20 vacant schools from the 2013 closures, which it pays to maintain.CTU leaders, who pushed to add thousands of new school staff positions in recent contract talks, have long advocated spending more to breathe new life into underenrolled schools an invest-and-theyll-come theory. Potter, the CTU vice president, holds up Dyett High School which the district closed but later reopened after a CTU-supported hunger strike in protest as an example of a phoenix rising from the ashes. Its basketball team won a state title this year. Though the school is still at 58% capacity, enrollment has stabilized at roughly 500 students, a benchmark CPS has used to weigh whether a high school is big enough.Why would you start with a question about consolidations when you can start with a question about support? he said. But recent years have tested the power of added investments to boost enrollment. In 2018, the district and teachers union jointly launched an initiative to target 20 high-poverty campuses, including Dyett, with an additional $500,000 a year. Theyve used the money to partner with a local nonprofit to offer more services for students and families. Some of these schools have since reported parent and student engagement gains. But with a few exceptions, they have steadily lost enrollment since then, in some cases dramatically.
