HomeMy WebLinkAboutAgenda - 04-24-2003-1ORANGE COUNTY
BOARD OF COMMISSIONERS
ACTION AGENDA ITEM ABSTRACT
Meeting Date: April 24, 2003
Action Agenda
Item No. ~
SUBJECT: Additional High School Space Proposal from CHCCS
DEPARTMENT: County Manager/CHCCS PUBLIC HEARING: (Y/N) No
ATTACHMENT(S):
4/11/03 CHCCS Chair Letter
w/Attachments
INFORMATION CONTACT:
John Link or Rod Visser, ext 2300
Neil Pedersen, 967-8211
TELEPHONE NUMBERS:
Hillsborough 732-8181
Chapel Hill 968-4501
Durham 688-7331
Mebane 336-227-2031
PURPOSE: To receive and discuss the proposal from the Chapel Hill-Carrboro Board of
Education regarding the proposed siting of a third high school in the Chapel Hill-Carrboro City
Schools District.
BACKGROUND: During several recent BOCC meetings, the Board has discussed plans to
formally receive and consider a CHCCS proposal to site a third high school on a site near Rock
Haven Road, just off Smith Level Road in the southern part of the school district. The BOCC
expressed interest in receiving a 15 minute presentation of the proposal from CHCCS
representatives at this April 24 work session.
Staff will also provide at or before the work session an assessment of the implications of the
proposal, particularly in the context of the development of the County's 2003-2013 Capital
Investment Plan (CIP).
FINANCIAL IMPACT: The CHCCS Board resolution of April 10, 2003 requested that the
BOCC approve the purchase of the three properties included in the proposed site "for the final
appraised value". The accompanying CHCCS background materials indicate that the appraised
value of those three properties is $2,535,700. The total project cost for the third high school
reflected in the draft CHCCS CIP for 2003-2013 is approximately $34 million.
RECOMMENDATION(S): The Manager recommends that the Board receive the proposal from
the Chapel Hill-Carrboro Board of Education and provide appropriate direction to the Manager,
Attorney, and staff.
Chapel Hill-Carrboro City Schools
Lincoln Center, 750 S. Merritt Mill Road
Chapel Hill, North Carolina 27516-2881
The Board of Education Telephone: (919)967-8211 Ext. 226
FAX: (919) 933-4560
Neil G. Pedersen
Superintendent
Valerie Foushee, Chair
Board of Education
April 11, 2003
Margaret Brown, Chairperson
Orange County Commissioners
200 South Cameron Street
Post Office Box 8181
Hillsborough, North Carolina 27278
Dear Ms. Brown,
During the regularly scheduled Board of Education meeting held on April 10, 2003, the Board passed a
resolution identifying the site for the third high school and directing the staff to prepare any documentation
that the Commissioners may require to move the site procurement process forward in a timely manner.
Included in this package are the memorandum and fact sheets prepared by the staff for the Board's review.
This includes a justification, concept plan and project-funding proposal. As stated in the resolution, the
Board is committed to the southern location and is willing to finance the additional funds that that location
may require.
The County Commissioner assigned to this process, Alice Gordon, has been in attendance during these
discussions and can provide you with any additional commentary that you may require. Her contributions to
the process have been invaluable.
If there is any other information required, please feel free to contact my office, the administration or staff.
We will provide any requested information promptly.
Thank you for your time and consideration.
S'ncerely,
~~~_
Valerie Foushee, Chair
Cc: it Pedersen
~hn Link
Chapel Hill - Carrboro City Schools
Lincoln Center, Merritt Mill Road
Chapel Hill, NC 27516
Telephone: (919) 967-8211
Fax: (919) 933-4560
Neil Pedersen, Superintendent
Ray Reitz, Chief Technology Officer
Nettie Collins-Hart, Assistant
Superintendent for Instructional Services
Steve Scroggs, Assistant Superintendent
for Support Services
To: Neil G. Pedersen
Superintendent
From: Steve Scroggs
Assistant Superintendent for Support Services
Re: Rock Haven Road
Date: Apri12, 2003
Included is an updated analysis of the site that the Board is considering for the location
of the third high school. The analysis of the Rock Haven site includes the three parcels
of property, a building with 182,710 square feet with a capacity of 1,000 students. A
funding scenario is provided that includes impact fees, impact fee balances, bond funds,
alternative financing and financing by the district. A massing plan for the Rock Haven
site is included for your review. For clarification, we have also presented maps and
student numbers that support the southern location. The spreadsheets for the proposed
2003-2013 CIP are also attached.
The Need for Additional Capacity
The need for additional high school capacity is clear. According to the latest County
approved projections, the District will be out of capacity (100% LOS) in 2003-2004
and will exceed the 110% level of service during the 2004-2005 school year. The need
for additional capacity has been evident for some time.
The need for a southern site is confirmed when looking at the present elementary
enrollment in the area. Over 1,500 students live in southern areas in grades K-5. This is
more than enough students to support a 1,000 capacity high school. The scatter graph
that has been presented several times is included in the appendix. This scatter graph
provides a visual density model of the district. This graph has been shared on several
occasions to the Board of Education and the County Commissioners. There has been
some confusion over the numbers of students living in the south of the district. The
District has quoted figures that there are 1,500 elementary students living in that area.
This has been confused with high school numbers, as there are four grades.in high
school, not six as in the elementary schools. A count of present 5th, 6th, 7~' and 8th
graders, these students who will be in grades 9-12 when the new school opens,
indicates that there are 1,041 future high school students currently living in the southern
area of the district. These figures and a map defining the southern area are provided in
the appendix.
With the current discussion of merger, it would be important to view capacity on a
countywide basis. The chart below indicates that the combined high school projections
for the two school districts will exceed capacity in 2006-2007. The need for a fifth high
school in the county is clear, whether or not the County Commissioners pursue merger.
Projected Membership
H.S. 110°k School Year
Ca a ' Ca a ' 02-03 03-04 04-05 05-06 06-07 07-08 08-09 09-10 10-11 11-12 12-13
CHCCS 3035 3339 3162 3250 3425 3552 3692 3719 3790 3889 3981 4159 4310
OCS 2518 2770 1828 1868 1926 1958 1950 1952 1957 1912 1915 1938 1942
Total 5553 6109 4990 5118 5351 5510 5642 5671 5747 5801 5896 6097 6252
Consensus has formed that the need for additional high school capacity is real. The
School Board and County Commissioners have come to the realization that CHCCS'
present high schools are over capacity today and will be over 110% of capacity by
2004-05. When SAPFO and the Memorandum of Understanding are approved,
additional capacity must be added when high school LOS exceeds 110%.
Rock Haven Road
Concept Plan:
The massing plan is attached and shows how the use of three parcels with a competition
stadium off site allows entry off Rock Haven Road. It also allows completion of the
connector road and leaves a parcel of land to the north that could be used for other
development or field placement. The massing plan also indicates that the need for the
Minton property has been reduced. This 3.6-acre thin strip has three 1.2 acre lots that
could be used. Amassing plan is designed to gauge whether a site is suitable for the
program of the school. It is not intended to be part of the design process but is a
valuable tool in the siting process. Viewers of the massing plan should not assume this
is the final location for school buildings or fields.
Cost/Acquisition:
The District employed Analytical Consultants to provide appraised values for these
properties (see below) There is currently a contract on the Glover property for
$3,000,000, certainly higher than the appraised value. This contract is based on the
developer's ability to get the parcel rezoned for student apartments. That rezoning is
not yet assured. If the property were rezoned the contract would certainly be used in
any eminent domain process to establish fair market value. A complete description of
this process is included under Condemnation and Acquisition.
Parcels: Acreage Appraised Values
Glover Property 49.50 $1,658,700*
Fisher Property 10.60 $ 551,000
Minton Property 3.60 $ 326,000
Total 63.72 $2,535,700
*estimated at 49.25 acres
Site:
Using all three parcels of land and moving the competition stadium off site leaves
enough room to provide for the connector road off Rock Haven as well as using it for
the main school entrance. This will allow for greater buffers between the
neighborhoods and will relieve some of the neighborhood concerns about
encroachment towards Ray Road. Removing the stadium from the site and using Rock
Maven as an entrance also reduces the need for purchasing all or part of the Minton
Property.
RCD/Watershed:
There is a small, southern section of the Fisher and Rock Haven Road sites that is
contained in the watershed. It should not present a problem for construction.
Slopes:
The Northwest portion of the site has steep slopes and should be avoided during
construction. It would also provide a buffer for the residents on Ray Road.
Probable Construction Costs:
The costs of site work are increased based on the topography of the site. Earthwork
costs associated with the building, fields and parking drive the total costs up. There is
rock present on the site; thus a rock allowance is provided.
Additional On-site/Off-site Improvements:
These would include Smith Level Road improvements such as turn lanes and a traffic
signal. One major improvement would be a connector road between Rock Haven and
BPW Club Drive. Moving the main entrance to Rock Haven Road reduces the amount
of linear feet of road improvements required. This cost is offset by the addition of the
connector road.
Other Items:
Ray Road should not be considered as an entry point to the school. The road is not
centered and any expansion of it would encroach on the existing homes to the point that
purchase of them might be required.
Transportation:
A major factor in locating the third high school at Rockhaven is the ease of
transportation. Several factors exist that must be considered.
• The Rock Haven site has an established bus route "J°' that would serve the area
• The site is located closer to the students who would attend the school thus
reducing driving distances and time. An example is provided showing the
reduction in miles when compared to driving to CHHS.
Students Avg. Reduction in Miles X 180 School Days = Total Miles
200 200 X 10 (@ 5 miles each way) 180 360,000
• Similarly, miles driven by parents and by school buses would be reduced
dramatically.
• The possibility of access from Southern Village would allow for more walking
and biking students.
Condemnation and Acquisition:
The Rock Haven site is comprised of three parcels of land, the Glover, Minton and
Fischer parcels. The Mintons have indicated their willingness to listen to an offer and
3
Mr. Fisher has indicated that he would prefer a 10301and swap for tax purposes but
would be willing to listen to other District offers. JPI, the Dallas based development
firm, has clearly stated that it is an unwilling seller and that it "would want to be made
whole" through the condemnation process. JPI currently has a contract on the property
for $3,000,000 and according to their representative has expended a great deal of
money in the planning and development stage for Jefferson Commons at Carrboro. This
project includes 264 multifamily units, 850 parking spaces and over 500,000 square
feet of impervious surface. The rezoning required to complete this project is not yet
determined. This would have a major impact on the potential land cost of the major
parcel.
The District's legal staff has provided the following summary of the condemnation
process.
1. The Boadd performs an appraisal on the property in question. The Boadd has already
commissioned Lee Butzin to perform this service and this work is complete.
2. After the Board obtains an appraisal, it petitions the County Commissioners for approval of the
appraised amount and for any increase in the yeaz's capital outlay fund. The Board should
certify that it will attempt to purchase the property through negotiation, but will use its
condemnation powers under N.C.G.S ~ 40A if the negotiations aze unsuccessful. The County
Commissioners should be informed that if they approve the price, they have also approved any
additional compensation costs ordered by the Court if condemnation proceedings are necessary.
3. After County Commissioner approval, the Boadd must give the current owners 30 days notice
before filing a condemnation complaint. The Board files a complaint and a deposit for the
appraised amount in Superior Court and also files a declazation with the Register of Deeds.
Unless an action for injunctive relief has been initiated, title vests with the Boadd upon filing the
complaint in Superior Court. The schools can commence construction at this point and the
remaining issue will be compensation for the former owners.
4.. The former owners have 120 days to file an answer.
5. The former owners have 60 days after filing an answer to make a motion to appoint 3
independent commissioners to determine compensation for the taking. If they do not request for
independent commissioners to determine the land's value, the case goes on the civil docket to
determine the issue of compensation.
6. Within 90 days of receipt of the answer, the Boadd must file a plat with the Register of Deeds.
7. If the independent commissioners or the Court fmd the amounts deposited to be insufficient to
properly reimburse the owners, the schools will pay the balance. The Court can also order the
owners to be reimbursed for the costs of any appraisals or engineering services used for this
action.
Description of the Site
The administration directed Mosely, Wilkin and Wood to examine the Rock Haven site
for suitability. They were asked to create three options on the site, each one
progressively moving more facilities off site or reducing square footage. At the last
meeting, the Board directed the administration to look at a modified Option 2. This
option would secure all three parcels of land and move the competition stadium off site.
This option allows for increased flexibility on the site and allows the District to be more
flexible in meeting the needs of the students, parents and neighborhood. Some of the
factors examined are listed below.
• Allows for greater buffers between the school and the surrounding
neighborhoods
• Allows for the connector road that would also serve as the main entry point to
the site
• Places the baseball and softball fields on the Fisher property, reducing the noise
issue on Ray Road
• Removes the entry road from Smith Level through the Fischer or Minton
property, a safety concern.
• Reduces the amount of road improvement needed on Smith Level
• Creates the possibility of not purchasing the Minton property
The selection of this site allows the district to utilize two components of sound school
design. The first is the urban school facility. The initial design focuses on a multi-story
building with a compressed design to reduce the amount of impervious surface
occupied by the building. This building design reduces the building footprint on the
site. The second component is the reduction and placement of fields and parking to
reduce the impact on the surrounding neighbors while protecting the environment.
Parking lot medians will serve as bio-retention areas and will also serve as water
storage areas to prevent damaging storm water runoff. The removal of the competition
stadium to an off site location is another step in reducing impact on the environment
and the neighborhood. Reduced light pollution measures and noise reduction planning
will add to the commitment of the District to being a positive force in the
neighborhood. The selection of the site with an already existing bus route will also
promote public transit use by students, parents and staff.
The architects' resources have also been used in developing a preliminary program
design. They have been instructed to build a school with a core for 1,000 students and a
capacity for 1,000 students. The square footage for that model is approximately
182,710 square feet matching the Orange County construction standards.
Project Budget:
The total estimate for the project budget is $33,866,931. This is consistent in square
footage with the Orange County Construction Standards but the budget is higher by
$3,947,191. Land costs and site development costs account for $3,600,890 of that
difference. The increase in fees and contingency funds based on site development costs
make up the remaining deficit.
The initial funding proposal by the County Commissioners included $27,800,000 for
the project. The funds were broken down as follows:
Bonds for Elementary #10 $12,800,000
Impact Fees, Balance $ 6,200,000
Impact Fees, Budgeted $ 5,100,000
Alternative Financing by County $ 3,700,000
Total $27,800,000
The proposed funding plan included is quite similar to the plan above and is illustrated
below.
Bonds for Elementary #10 $12,800,000
Impact Fees, Balance $ 3,240,231
Impact Fees, Budgeted $ 6,400,000
Alternative Financing by County $ 5,100,000
Financing by District $ 6,326,700
Total $33,866,931
The plan uses the impact fee balance to pay the debt service on the borrowed funds and
dedicates the entire budgeted impact fees to the project during the course of
construction. The borrowed $6,326,700 makes up the difference between the County
Commissioner funding plan and the project funding needs.
Project Needs $33,866,931
Less District Financing $ 6,326,700
Balance $27,540,231
The Option sheet provides information about the project including costs, features and
funding
1. Budget category descriptions
2. Orange County construction standards budget
3. Project budget
4. Variance in budget from construction standards
5. School features that could be included on site for this option
6. Site considerations including land costs and off site improvement costs
7. Funding proposal
8. Debt service
Off Site Facilities
Following the direction of the Board, a competition stadium would have to be located at
another site. The field at Scroggs would be a prime location. The administration would
recommend approaching Chapel Hill Town Council to seek cooperation in upgrading
the Scroggs field such that official varsity sports could be played on this field in the
evenings. Minimally, we would need it for five football games per year. The field is a
high quality field with lights to which we'd have to add seating and
restroom/concession/locker room facilities (these costs have been estimated but are not
included in the cost comparisons but are included in the proposed CIP). Initial
conversations with the Town of Chapel Hill Parks and Recreation Department indicate
a willingness to discuss the issue. If upgrading the Scroggs field were not an option,
upgrading Culbreth could be considered. The projected $660,000 cost of the project is
included in the proposed CIP.
Impact on the Capital Investment Plan (CIP)
Even without the pressures of funding a new school, funding projections for the 2003-
2013 CIP are greatly reduced from the previous year, creating a situation where
6
existing projects have to be scaled back or even eliminated. This also reduces the
amount of impact fees that could be scheduled to the high school project. The chart
below shows the significant decrease in funding potential.
2002-2 012 CIP
PSBF IMPACT
Year FEES
2003-04 $ 487,552.00 $ 2,296,010.00
2004-OS $ 492,427.00 $ 2,296,010.00
2005-06 $ 497,352.00 $ 2,296,010.00
2006-07 $ 502,325.00 $ 2,296,010.00
2007-08 $ 507,348.00 $ 2,296,010.00
2008-09 $ 512,422.00 $ 2,296,010.00
2009-10 $ 517,546.00 $ 2,296,010.00
2010-11 $ 522,722.00 $ 2,296,010.00
2011-12 $ 527,949.00 $ 2,296,010.00
2012-13* $ 527,949.00 $ 2,296,010.00
2003 -2012 CIP
PSBF IMPACT
FEES
$ - $ l ,600,000.00
$ - $ 1,600,000.00
$ - $ 1,600,000.00
$ - $ 1,600,000.00
$ - $ 1,600,000.00
$ - $ 1,600,000.00
$ - $ ],600,000.00
$ - $ 1,600,000.00
$ - $ 1,600,000.00
$ - $ 1,600,000.00
ANNUAL
FUNDING
REDUCTION
$ 1,183,562.00
$ 1,188,437.00
$ 1,193,362.00
$ 1,198,335.00
$ 1,203,358.00
$ 1,208,432.00
$ 1,213,556.00
$ 1,218,732.00
$ 1,223,959.00
$ 1,223,959.00
• extended for comparative purposes
GRAND TOTAL REDUCTION $ ` 12,fl55,692 00?
This reduction is not offset by the small increases in sales tax revenue. With a reduction
this size, the ability of the District to take on any new major projects is limited. Projects
for a new central office, McDougle auditorium, and science classrooms at Culbreth
have all been moved to the unfunded column of the proposed CIP. This has made
financing of the third high school a creative and complex process.
The financial proposal included below uses the bond funds from elementary #10, the
impact fee balance, county provided alternative financing, impact fees and a district
financing plan. Each is explained in detail below. The staff has met with the Orange
County Finance Director and Budget Director and developed the following proposal.
Any potential issues or concerns are listed.
Elementary #10 Bond Funds $12,800,000
These were funds approved by the voters in 2001.This would require County
Commissioner approval to use the funds differently.
Alternative Financing by the County $ 5,100,000
This alternative financing was proposed by the County. The original $11,100,000 was
scheduled for 03-04, OS-06 and 06-07 in three $3.7 million amounts. The original $11.1
million was intended to be used to provide funding for projects in older buildings and a
new central office. The revised proposal used $3.7 million for funding at the high
school and the present proposal uses $5.1 million for the project. This proposal would
leave $6,000,000 for the original purpose of supporting older facilities.
Financing by the District $ 6,326,700
The district would request additional funds be borrowed and would repay the debt by
using budgeted impact fees and the impact fee balance. With the anticipated decline in
impact fee revenue, the proposal is very conservative in the debt repayment schedule
and uses just more than 50% of the budgeted impact fee revenue for debt service after
the project is completed. With the $696,000 reduction this year in impact fee revenues,
this revenue source should not be viewed as stable. The impact fee balance would be
used to service the debt during the construction period so that budgeted impact fees
could be used totally for construction. At the conclusion of the project, the debt service
would be covered by budgeted impact fees. The amount financed covers the amount
that the project is expected to be over Orange County Construction Standards and the
loss of impact fee revenue. It must be noted that the Local Government Commission
requires that all alternative financing for a project be in place before bonds are sold,
thus the financing is set for 2004-2005 and 2005-2006 and can not be moved to a later
date.
Impact Fee Balance $ 3,240,231
The impact fee balance was created when more impact fees were collected than were
budgeted for in the CIP. This balance will be used to finance part of the high school.
Approximately $275,000 of the balance is being set aside to cover any increase in land
costs associated with condemnation proceedings. The rest of the impact fee balance
would be used to repay the debt service of the District financed note.
Bud et~Impact Fees $ 6,400,000
Impact fees are used to fund part of the project as well as providing for the debt service
on the District financed notes. All of the budgeted impact fees for 2003 - 2007 would
be used for construction. After the project is completed, the debt service on the
financed notes would come out of the budgeted fees.
While impact fees must be used for construction that increases student capacity, the
County has allowed some flexibility in cash flow to enable the District to undertake
other major projects. A review of the proposed CIP, included in the appendix, shows
the projects currently underway and those that are planned for the near future. A major
reduction in impact fee availability would severely constrain capital projects planned
for the next ten years.
Other Factors to Consider:
• There are unknown costs associated with land condemnation at the Rock Haven
site. Funds have been reserved for increased costs.
• The terrain and rock at the Rock Haven site make it more likely that we will
encounter unforeseen costs associated with site development and the foundation
of the building. If land costs are not significantly higher than anticipated, that
funding source could be used to offset any increase. If unavailable, then further
reductions to existing projects would be required.
• The Rock Haven site is the preferred geographic location and gives the
community a high school and reduces travel for students, parents, and school
buses as well as existing service by the Town of Chapel Hill Transit. Access for
walkers and bikers would be considered.
8
• Off site facilities for a competition stadium would be needed and are included in
the proposed C1P.
• Cooperation by all the elected bodies would be required to keep this project on
schedule.
In conclusion, when building at Rock Haven, the School Board will be dependent upon
the cooperation of both Towns' officials and the County Commissioners. It is our hope
that there has been enough concern expressed by this community that all parties will
come together and help us to plan and construct a third high school for the Chapel Hill-
Carrboro City Schools that continues the level of excellence for which this District is
known.
Representatives of Mosely, Wilkin and Wood, Steve Scroggs and Bill Mullin will be
present to answer any questions you may have.
Resolution: Be it, therefore, resolved that the Board of
Education requests the Orange County Board of Commissioners
to approve the purchase of the Glover Property, the Minton
Property, and the Fisher property for the final appraised value.
The Board of Education further requests permission from the
Orange County Board of Commissioners to exercise its statutory
authority to acquire the above mentioned parcels by the process
of eminent domain.
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