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HomeMy WebLinkAboutAgenda - 03-28-2001-1ORANGE COUNTY BOARD OF COMMISSIONERS ACTION AGENDA ITEM ABSTRACT Meeting Date: March 28, 2001 Action Agenda Item No. 1 SUBJECT: Coun /OCS /CHCCS Discussion/Policy Issues DEPARTMENT: County Manager PUBLIC HEARING: (Y /N) No ATTACHMENT(S): INFORMATION CONTACT: As listed in Background" John Link or Rod Visser, ext 2300; Donna Dean, ext 2151; Craig Benedict, ext 2592; Rosie Summers, ext 2411 TELEPHONE NUMBERS: Hillsborough 732 -8181 Chapel Hill 968 -4501 Durham 688 -7331 Mebane 336- 227 -2031 PURPOSE: To discuss various issues with policy and/ or financial implications that are of current interest to the Orange County Commissioners, Orange County Board of Education, and /or Chapel Hill - Carrboro Board of Education. BACKGROUND: a) Capital Needs Advisory Task Force Process In January 2001, the Board of Commissioners created a Capital Needs Advisory Task Force.to review identified school and County capital needs, and to develop recommendations regarding the scope, elements, cost, and priorities of projects that should be included in the planned November 2001 bond referendum. Appointments to this task force were made in February, and the group held its first meeting on March 14. The group will meet every week or two until the middle of May, and will present its report to the BOCC before the end of May. Task force members from the BOCC and the. two school boards may wish to offer comments or answer questions from other elected officials about the process. No Attachments b) November 2001 Bond Referendum The identified capital needs of both school systems will be presented to the Capital Needs Advisory Task Force during that group's next two meetings. As noted above, their recommendations are scheduled for presentation to the BOCC in May. The Commissioners will deliberate and decide in June the amounts to be included on the ballot for various purposes (e.g. schools, land for parks and open space, public buildings, etc). County staff will review the major steps leading up to the November bond vote, including procedural steps required by the Local Government Commission. No Attachments c) School Nurses County and school representatives have met several times in recent months to discuss approaches for increasing the availability of nurses to support student populations in both school systems. Pursuant to those discussions, Health Director Rosie Summers has prepared a proposal that would lead to a staffing pattern of one nurse for each school in Orange County phased in over a period of several years. County Manager's Note: While the implementation of this proposal will be subject to the availability in future fiscal years of adequate funds for this and other school and County priorities, this proposal serves as a good starting point for discussions among the three boards of enhancing school nursing services. It is likely that the phase -in period may be elongated to 3 or 4 years. Attachment 1c — Proposal on School Nurse Deployment d) School Impact Fees The County Commissioners and Orange County Planning Board held a joint public hearing on February 26 to receive public comment regarding possible amendments to the County's schedule of school impact fees. The changes under consideration are based.on the student generation ratermpact fee. study prepared by Tischler and Associates. The BOCC and school boards may wish to discuss recommendations for changes to the current impact fee schedule ($750 in the OCS district and $3,000 in the CHCCS district for each new residential dwelling unit), and the process for and timing of any changes to that fee schedule. Attachment Id — Memorandum from Craig Benedict with Information from Tischler and Associates Study e) Planning for Alternative Schools and Other Cooperative Ventures Both school boards indicated a desire to discuss at this work session the prospects for collaboration in planning for alternative schools. All three boards may also wish to examine other opportunities for cooperation with regard to facilities and programming. No Attachments f) School Facilities Task Force Task Force members and staff can provide a brief summary of the major points of discussion regarding school construction standards, school capacity, student population projections, and related topics. The draft task force report is nearing completion, and the final report to the Board of Commissioners should be available in April. No Attachments g) Possible Waiver of County /Municipal /Utility Development Fees for School Construction The Board of Commissioners and Boards of Education share an interest in constructing high quality school facilities at reasonable cost. To that end, the Commissioners have expressed a willingness to support the school boards in approaching the municipalities and public utilities with requests that they waive or minimize the fees that they impose for development review activities associated with school construction projects. County and school staffs have collaborated to compile figures that reflect development- related fees that have been paid (or are anticipated) by both school systems for school construction projects in recent years. The boards may wish to discuss steps that could lead to reductions or waivers in development related fees that would lower the direct costs of new school construction projects. Attachment 1g — 1 3122100 Memo from Donna Dean on `Development Related Fees for School Construction" Attachment 1g — 2 Table: "New School Construction Permits and Fees" FINANCIAL IMPACT: There is no financial impact tied directly to the discussion at this meeting. However, decisions that the school boards and BOCC will make at subsequent meetings are likely to have significant implications for future capital and operating budgets. RECOMMENDATION(S): The Manager recommends that the boards discuss the issues noted and provide direction to staff, as appropriate. Prepared by Rosemary Summers Orange County Health Director Proposal on School Nurse Deployment for Chapel Hill- Carrboro and Orange County School Systems March 28, 2001 "Students who are hungry, sick, troubled or depressed cannot function well in the classroom, no matter how good the school." .Carnegie Council on Adolescent Development INTRODUCTION The goal of a working infrastructure between education and health is to enable schools and communities to create coordinated school health programs. Coordinated School Health Programs (CSHPs) is a goal of both the . North Carolina Department of Public Instruction and the Department of Health and Human Services. A model- coordinated program includes all eight of the following components: • Comprehensive School Health Education (grades K -12) • School Health Services • A Safe Physical Environment • School Counseling, Psychological, and Social Services • Physical Education • Nutrition Services • School -Site Health Promotion for Staff • Family and Community Involvement in Schools With all of these components in place, a student will be healthier. They will be in school, in class, and ready to learn. This discussion focuses on only one aspect of the components above: School Health Services. NEED FOR SCHOOL NURSING SERVICES In 1997, the North Carolina Youth Risk Behavior Survey for Grades 9 -12 found the following for North Carolina students: • 21 % reported having seriously considered suicide in the last year • 25% reported smoking a cigarette before age 13 16% reported having had four or more sexual partners 48% reported having sexual intercourse • 79% reported drinking alcohol in the last 30 days 47% reported using marijuana at least once These behaviors obviously do not begin at the ninth grade, but are the cumulative result of prior years. School Nurse Deployment Proposal Page 2 Today, schools are serving more medically complex children than ever before. More children are taking more medications than in the past. When there is no school nurse on site, it is a challenge to ensure that the right children are getting the correct medications in the correct amount and for the desired period of time. For the most medically complex children, there is a need for skilled nursing services like tube feedings, catheterizations, nebulizer treatments and the like. These factors are not imaginary for our school systems. One example can be seen with asthma. A survey to determine asthma prevalence and risk factors was conducted during the 1999 -2000 school year in 7th and 8th grades by the, North. Carolina Department of Health and Human Services. In Orange County the survey found that nearly one - quarter (24.1 %) of the children surveyed either were already diagnosed with asthma or experienced undiagnosed wheezing symptoms. Translated into real numbers that means that of the 1900 children surveyed, 458 of them experience asthma or asthm a -like symptol-ns. Compared to statewide figures, this is only slightly lower than the average of 27% across the state. Eight percent of those children reported missing school for one -half or more days per month because of wheezing or breathing problems. Fourteen percent (about 266) carry inhalers that they may use less than once a month or almost daily. In addition, children in both school districts take a variety of medications or experience chronic health conditions. All of these situations require monitoring on a frequent basis. Overall, service statistics reported by school nurses in both systems show the following: *Not a total number, only those by school nurse These statistics show that school nurses are "first -line" health services for children in both our school systems. CURRENT STRUCTURE OF. SCHOOL NURSING SERVICES The majority of nurses in both school systems are hired and supervised by each school system. Chapel Hill - Carrboro School System employs eight school nurses (not all full - time) for thirteen. schools and the Orange County School System employs seven full - time school nurses for ten schools. The Orange County Health Department employs two full -time Public Health Nurse I's as school nurses and one part-time (50 %) School Health Aide. One health department nurse is assigned to the Chapel Hill - Carrboro School System full -time and one nurse is assigned to the Orange County School System 40% time. The remaining 60% time for that nurse is assigned to the Hepatitis B Immunization Program for sixth and twelfth graders in both school systems. The school OCS CHCCS .Total Medications authorized to be given at school 946 870 1816 Students with known chronic health' conditions 11.18 1628 2746 First aid /iniuries managed by school nurse* 5992 5660 11652 Health education sessions* 217 210 427 *Not a total number, only those by school nurse These statistics show that school nurses are "first -line" health services for children in both our school systems. CURRENT STRUCTURE OF. SCHOOL NURSING SERVICES The majority of nurses in both school systems are hired and supervised by each school system. Chapel Hill - Carrboro School System employs eight school nurses (not all full - time) for thirteen. schools and the Orange County School System employs seven full - time school nurses for ten schools. The Orange County Health Department employs two full -time Public Health Nurse I's as school nurses and one part-time (50 %) School Health Aide. One health department nurse is assigned to the Chapel Hill - Carrboro School System full -time and one nurse is assigned to the Orange County School System 40% time. The remaining 60% time for that nurse is assigned to the Hepatitis B Immunization Program for sixth and twelfth graders in both school systems. The school School Nurse Deployment Proposal Page 3 health aide is responsible for assisting with the Hepatitis B immunization program and assists both school systems in various screening and immunization tracking functions. The number of nurses for each system does not include Head Start, Hospital School, or specific nurses assigned to the severely and profoundly handicapped students. In both systems, those are accounted for separately. A full -time Health Coordinator provides administration and coordination in Chapel Hill - Carrboro Schools and is responsible for both health services and health education. This individual is a nurse. In Orange County Schools, the Director of Student Services and Personnel and /or a school nurse designee is assigned to coordinate the program. On -site supervision in both systems is the responsibility of the Principal of the individual schools. A nurse supervisor in the Orange County Health Department provides supervision, coordination, and liaison with both school systems at 30% time. Both school systems school nurses function under an annually developed Memorandum of Agreement. The Agreement, jointly developed between the individual school system and the Orange County Health Department, varies slightly for each system. The Memorandums of Agreement specify that the health services policies and protocols of each system are subject to the approval of the Orange County Health Department's Medical Director. Each Agreement details _areas of specific responsibility for both organizations. The table on the following page shows nurse /student ratios per school for each system in the current school year (2000 - 2001). This table shows that in the Chapel Hill - Carrboro School System there are 7.8 full -time equivalent nurses serving 9,648 students for a ratio of one nurse for 1,237 students. In the Orange County School System there are 7.4 full -time equivalents serving 6,168 students for a ratio of one nurse for 834 students. Eleven of the thirteen schools in the Chapel Hill - Carrboro Schools share a school nurse or have one less than full -time. Seven of the ten schools in the Orange County Schools share a school nurse or have one less than full -time. In addition, each school system is anticipating opening a new school during the 01 -02 school year. These newly opening schools are not considered in these numbers. Sharing a nurse between schools often means that a school may be without a nurse for a day or more at a time depending on the needs of each of the schools. School Nurse Deployment Proposal Page 4 Nurse /Student Ratios by School Cha el Hill - Carrboro and Oran a County School S stems School Nurse Time in FTE's * Number of Students Nurse /Student Ratio Ephesus Elem .5 581 1/1162 Carrboro Elem .5 523 1/1079 Scroggs Elem .5 556 1/1079 McDou le Elem .5 676 1/1552 McDou le Middle .5 876 1/1552 Frank Porter Graham Elem .5 586 1/953 Glenwood Elem .5 367 1/953 Phillips Middle .5 816 1/1358 Estes.Hills Elem .5 542 1/1358 East CH High - - 1.0 1273 1/1273 CH High OCHD -1:0 1519 1/1519 Culbreth Middle .8 678^ 1/814 Seawell Elem .5 655 1/1310 Total CH /C 7.8 9648 1/1237 Central Elem .5 359 1/752 Hillsborough Elem^^ .5 393 1/752 New Hope Elem 1.0 614 1/614 CW Stanford Middle .5 792 1/1308 Cameron Park Elem .5 516 1/1308 Efland Cheeks Elem .5 542 1/1249 AL Stanback Middle .5 707 ^^ 1/1249 Orange High 2.0 1596 1/798 Pathways Elem OCHD .4 137 1/342 Grady Brown Elem 1.0 512 1/512 Total OCS 17.4 16168 11/834 * FTE equals full -time equivalents ^ Includes Phoenix Academy ^^Year -Round Schools/ AL Stanback's year round is school within a school (OCHD) is Orange County Health Department assigned nurse FUTURE GOALS FOR NURSING SERVICES Discussions on future goals for providing nursing services to both school systems began in late 2000. Representatives from both school boards, the health board, the board of county commissioners, the county manager's staff, staff from the health department and staff from both school systems met and . agreed on two recommendations: • Each school within Orange County should have a full -time nurse. • New schools should include a full -time school nurse as part of the core funding requirements for opening a new school: (Beginning with Smith Middle School and Cedar Ridge High School.) School Nurse Deployment Proposal Page 5 It was also recognized that to reach the goal with the current complement of open schools, further planning would be necessary. The staffs of each of the respective agencies were tasked with developing a specific plan for achieving the goal in order for the plan to be considered during budget deliberations this spring. The staff working group met in February to develop the specifics of the plan. Recommendations for increases in the number of nurses is tied to the number of schools currently on -line in each of the school systems since the assumption was made that new schools would include a nurse in its -core staffing complement. The estimated annual cost for one -nurse totals approximately $47,650. In addition, there are one -time start -up costs of about $3,600 for each position. The table below out one proposal, phased -in over a two -year period, that would enable both school districts to meet the goal of one full -time nurse in every school. If the plan below were initiated with the upcoming- fiscal year (FY 2001 -02), the goal would be attained in fiscal year 2002 -03: Estimated Annual Cost for One Nurse Salary & Fringes 45,860 Operating Costs 1,790 Estimated Total Annual Cost 47,650 Plus: One -Time Start-Up Costs 3,592 Estimated Total First Year Cost 51,242 Year 3 and School District Year One (1) Year Two (2) Beyond (3) CHCCS Additional # Nurses Required to Meet Goal 3 3 0 Estimated Cost to Meet Goal $153,726 $296,676 $285,900 OCS Additional # Nurses Required to Meet Goal 2 1 0 Estimated Cost to Meet Goal $102,484 $146,542 $142,950 Total Estimated Cost for Both Districts $256,210 $443,218 $428,850 Year one includes annual cost plus one -time start-up Year two includes annual cost for positions added in year 1 plus annual and one -time start -up for positions added in year 2 (3) Year 3 and beyond includes annual cost of positions added in Year 1 and Year 2 School Nurse Deployment Proposal Page 6 Finally, the staff working group recommended that the funding for the positions outlined above be included in the Health Department's annual budget. It is important to note that the positions would not be Health Department positions. Instead, the working group recommended that each school system should employ and supervise their respective positions. The Health Department would develop service contracts with each school system and pay each district for services provided by these positions. As a provision of the contract, each school system would maintain the equivalent number of nurses currently funded, and the Health Department would continue to allocate 1.4 full -time equivalent nurses directly to the schools until Year 2 of the funding plan. At that time, both school systems would attain the goal of one nurse per school. The Hepatitis B nurse will continue to fulfill the goals of that program, until that program achieves 100% immunization of the school population (projected for FY 2004- 2005). The remaining health department nurse. currently assigned directly_to.ahe schools, will be assigned- to . coordinate with both school systems,to plan and provide continuing education to meet best practices for the school health program. In addition, this nurse will be available to cover either school system in the event a school nurse requires extended .leave. The health department will continue to provide medical direction for policy and protocol development and will provide school - nursing continuing education appropriate to maintain best school nursing practices in each system. Public health nursing principles are particularly important in confined settings such as schools. Coordination of health services between school systems will also be part of the health department role. ' MEMORANDUM TO: JOHN M. LINK, JR., COUNTY MANAGER FROM: CRAIG N. BENEDICT, PLANNING DIRECTOR DATE: March 22, 2001 Subject: PUBLIC SCHOOLS IMPACT FEES PURPOSE: To discuss a consultant (Paul Tischler and Associates) report on the calculation of maximum permissible public school impact fees that consider differentiated fees based on housing type. _ . BACKGROUND: The Orange County Educational Facilities Impact Fee Ordinance was adopted on June 7, 1993, and impact fees were set at $750 per newly constructed residential dwelling unit (regardless of type) for both the Orange County and Chapel Hill - Carrboro School Districts. The ordinance has been amended several times since 1993 and impact. fees are currently $750 for the Orange County School District and $3,000 for the Chapel Hill - Carrboro School District. A concern voiced at past public hearings was that different housing types (e.g. apartments vs. single family homes) generated students at varying rates and that impact fees should be proportional to the demand created rather than across- the - board. A recent technical study prepared by Tischler & Associates has been drafted to determine a maximum supportable impact fee per housing unit for each school district, taking into consideration different types of housing units. That report will serve as the basis for an evaluation of impact fees for both the Orange County and Chapel Hill - Carrboro school systems and of possible changes to the current fees. Paul Tischler of Tischler and Associates and Planning Director Craig Benedict presented preliminary findings of the Tischler & Associates report at the February 8 Schools and Land Use Councils meeting and at a February 12 Public Hearing. ATTACHMENTS: See Legal Ad Notice. See also 5 -page excerpt of 50 -page report. g: \craig\ abstracts \impactfeesmemo.dot \3 -22 \jb PUBLIC SCHOOL IMPACT FEES Effective July 1, 1993, the Board of County Commissioners established a system of impact fees to help fund a portion of the school capital needs created by growth in the county. Since that date, an impact fee has been collected for each new housing unit constructed or installed in the county, including single - family homes, multi family housing units, apartments, and mobile homes. Fees collected in the Chapel Hill - Carrboro School District are deposited in a special account and used exclusively for the construction of new school facilities in that district. The same is true for fees collected in the Orange County School District. The impact fee supplements funds provided by the County from sales tax and property fax revenues for school capital projects. The public school impact fee collected is now $750.00 for each new residential unit located in the Orange County School District and $3,000 for each new residential unit located in the Chapel Dill- Carrboro School District. The Board of County Commissioners recently employed a consultant to evaluate -- . - the potential for a public - school impact fee rate structure that could legitimately be the basis for a less regressive fee. structure based on charging a different fee amount for different housing types. Also, the Orange County Board of Education has recently requested that the Orange County Board of Commissioners increase the amount of the fee for new residential dwelling units located in the Orange County School District. The 2001 Technical Report prepared by the consultant concluded that there was a legitimate basis for charging one fee for single family homes and a lower fee for all other residential dwelling units. The Report reflects new demographic data concerning the number of students per household and recommendations of the School Facilities Construction Standards Work Group, and calculates MAXIMUM fees that could be charged as follows: Maximum for Maximum for all other single - family residenial homes units Orange County School District $5,375 $2,538 Chapel Hill- Carrboro School District $7,374 $3,304 The Board of Commissioners will consider whether or not to change public school impact fees following the February 25, 2001 public hearing. THE MAXIMUM LEGALLY PERMISSIBLE FEES CALCULATED IN THE REPORT OF THE CONSULTANT ARE NOT A PROPOSAL TO CHARGE THOSE FEES. Any change in the present fees will be determined by the Board of Commissioners following public comment at the public hearing and otherwise. In no event will public school impact fees be changed to an amount or amounts that exceed the maximums determined by the 2001 Technical Report. Craig Esened ict - c ee.doc age School Impact Fees Orange County, North Carolina Executive Summary Tischler & Associates, Inc. (TA) calculated school impact fees for Orange County, North Carolina based on data for the current school year (2000 - 2001). Impact fees are one- time payments that are used to construct public facilities needed to accommodate new development. Impact fees are proportionate to the school capital facility service demands for two categories of residential development. The impact fee methodology establishes an equitable allocation of the costs in comparison to the benefits received (i.e, capital improvements to be provided by either Orange County or Chapel Hill — Carrboro School District). The school impact fee methodology is based on current public school student generation rates, local costs, and level of service standards. Figure 1 illustrates the methodology used to calculate the fee, The basic formula used to derive the impact fee for both school districts is to multiply student generation rates by the net capital cost of public schools per. student. To avoid potential double payment for school facilities, a credit for future principal payments on existing General Obligation bonds is reflected in the maximum supportable impact fee per housing unit. Impact fees will address.the cost of five different types of facilities, including school sites, school buildings (i.e., total project cost), relocatable classrooms, support buildings and vehicles used by the . School Districts. Section II of this report discusses development projections and student generation rates used in the impact fee calculations. Section III of the report documents each cost factor and level -Of - Service (LOS) standard used to derive the school impact fees. The final section of this report discusses implementation and administration of the fees, including a cash flow analysis (See Appendix A) and a memorandum on the methodology used to derive the student generation rates .(see Appendix B). n School Impact Fees 0 Public School Students Per Housing Unit multiplied by Net Capital Cost Per Student Land Cost plus Relocatable Classroom Cost Plus Vehicles Cost Orange County North Carolina plus Local Share of School Project Cost plus Support Buildings Cost minus Principal Payment Credit Craig ene ict - ch ee. oc age t School Impact Fees Orancle Counk North Carolina Based on the above methodology, the maximum supportable school impact fees for . both the Orange County and Chapel Hill -- Carrboro Districts are shown in Figure 2 below. The -current fee schedule does not differentiate by type of housing. Under the proposed fee schedule, a higher fee is imposed on single - family detached houses due to higher student generation rates. p Housing Unit Figure 2 - School Impact Fees Per _ Current Fee Single Family Detached $7501 $3,000 All Other Residential $750L____ $3,0001. Maximum Supportable Fee Single Family Detached. $5,3641 $7,345 All Other Residential 1 $2,5391 $3,298 Demand Generators The primary indicators of the need for additional, growth - related school facilities are projections of housing units and public school students, as measured by Average Daily Membership (ADM). The memo found in Appendix B provides a detailed explanation of the demographic data shown in Figure 3. Figure 3 — Orange County Projections Summary Craig ene pct - CSc ee. oc pag School Impact Fees 160,000 140,000 120,000 10.0,000 80,000 60,000 40,000 20,000 0 0 Orange County, North Carolina Orange County Growth Indicators !001 t02011, 2001 2006 2011 Population 116,217 127,928 139,639 Housing Upits 55,000 61,007 67,015 Households 45,819 50,824 55,829 Pub Sch ADM 15,841 17,888 20,259 160,000 140,000 120,000 10.0,000 80,000 60,000 40,000 20,000 0 0 Orange County, North Carolina Orange County Growth Indicators !001 t02011, ,erage Annual reasc Growth Rate 2,342 2.0% 1,202 2.2% 1,001 2.2% 442 2.8% 2001 2006 2011 t' � qC�rY�zn`� ORANGE COUNTY BUDGET OFFICE Donna Dean, Budget Director 208 South Cameron Street, Post Office Box 8181 • Hillsborough, NC • 27278 Phone: 919 - 245 -2151 0 Fax: 919 -644 -3324 E -Mail: ddean@co.orange.nc.us To: Board of County Commissioners John M. Link, Jr., County Manager From: Donna Dean, Budget Director Subject: Development Related Fees for School Construction Date: March 22, 2001 At the December retreat, the Board raised concerns about the amount of money that local school districts are required to expend for local review fees and other requirements they plan and construct new schools. It is important to make the distinction between (1) fees that the County, the Towns and OWASA may charge for particular inspections or services and (2) costs for additional requirements to meet particular local ordinances or codes. Most local governments and public utility companies assess user fees to offset costs of providing those services — the majority of which are State mandated. Examples of these fees include plan reviews, use and building permits, and connection or tap fees. In addition, entities may also require that a construction project meet particular local codes or ordinances. Examples of these types of requirements include construction of sidewalks, road improvements, and installation of building sprinkler systems. Fees Assessed for Project Review and Approval I recently contacted representatives from local government entities and OWASA regarding, typical fees that potentially could be assessed to a school system during a construction project. I am currently compiling this information and will have it available at the meeting with the School Boards next Wednesday night. Attachment 1 of this memorandum provides, by recent school construction project, the fees that each district has paid to local and State agencies. Additional Requirements to Meet Local Initiatives As stated earlier, in addition.-,to review and permit fees, local, state and federal agencies may require each school system to meet particular requirements or codes. The requirements and costs for these elements vary with each construction project. Both school systems have provided specific examples for recent projects. Examples of local requirements associated with CHCCS Smith Middle School include $23,265 for upgrading existing sewer lines (required by OWASA) and $28,497 for roadway improvements required by NC Department of -2— March 22, 2001 Transportation. It is interesting to note that the Town of Carrboro requires that applicants reimburse the Town for 80 percent of its engineering services, and this cost is included in the Smith Middle School project. For East Chapel Hill High School, the Town of Chapel Hill required CHCCS to increase the number of parking spaces in order to accommodate potential overflow from a Town park located across the street. In addition, the school system was required to construct a pedestrian walkway located on property adjacent to the high school. While the school district did incur additional costs for these items, staff was not able to identify the specific costs of these additions. 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