ALPINE COUNTY UNIFIED SCHOOL DISTRICT FACILITIES MASTER PLAN

Transcription

1 ALPINE COUNTY UNIFIED SCHOOL DISTRICT FACILITIES MASTER PLAN February 2018

2 Alpine County Unified School District School Board Members Clint Celio, President Amy Mecak, Clerk Rachael Brothers, Member Geoffrey B. Ellis, Member Anthony Tony Holdridge, Member School District Administration Patrick Traynor, Ph.D., Superintendent Klaus Leitenbauer, Business Manager Scott Smith, Ph.D., Principal/Director of Student Services

3 TABLE OF CONTENTS INTRODUCTION AND OVERVIEW... 1 PURPOSE OF A FACILITIES MASTER PLAN... 1 LCAP Goals... 1 PRIMARY FACILITIES PLANNING STRATEGIES... 2 GUIDING PLANNING PRINCIPLES... 2 PLANNING PARAMETERS... 3 THIS FACILITIES MASTER PLAN... 3 FACILITIES ADVISORY COMMITTEE CONSENSUS FOR FACILITIES PLANNING... 3 DISTRICT DESCRIPTION... 5 DISTRICT ENROLLMENT... 7 SCHOOL SITE OVERVIEW AND ESTIMATED COSTS... 8 DIAMOND VALLEY ELEMENTARY SCHOOL... 8 EARLY LEARNING CENTER BEAR VALLEY SCHOOL OTHER PROJECT CONSIDERATIONS PROJECT PRIORITIZATION CODE COMPLIANCE AND NECESSARY PROJECTS ADA Compliance FUNDING FACILITIES NEEDS SUMMARY OF POTENTIAL FUNDING SOURCES State School Facility Program General Obligation Bonds Developer/Mitigation Fees Energy Efficiency and Generation Funding General Fund FUNDING THE DISTRICT S FACILITIES NEEDS IMPLEMENTATION PLAN AND PHASING APPENDIX A: ALPINE COUNTY ECONOMIC FORECAST... 24

4 Purpose of a Facilities Master Plan INTRODUCTION AND OVERVIEW There are two Local Education Agencies (LEAs) within Alpine County: Alpine County Office of Education (ACOE) and Alpine County Unified School District (ACUSD). ACOE owns the Early Learning Center (ELC). ACUSD owns the Diamond Valley site which includes: Diamond Valley Elementary School, the annex building used for Board meetings and other events, the Opportunity School, a Community Day School, the ACUSD and ACOE offices, and the bus barn facilities. In addition, ACUSD also owns Bear Valley School. Although this is an ACUSD Facilities Master Plan for Board approval, the ACOE Early Learning Center is included in the plan to give the community and Board an awareness of the facilities in which all county and district students receive their education through high school. In addition, the inclusion of the Early Learning Center in this facilities plan avoids the necessity of having two facilities master plans which would decrease efficiency, increase costs, and potentially cause confusion among stakeholders. The Alpine County Unified School District (District) Facilities Master Plan (FMP) establishes a framework for the school district to assess and define its facilities needs and prioritize the facility improvements to be completed. In addition, the plan allows for longer term planning with a multi-year projection into the future. The FMP focuses on how existing and future facilities can provide the best educational experience for students, staff and the community of Alpine County Unified School District. The Facilities Master Plan is a comprehensive planning document designed to address the needs of an academically rigorous program, technology, legal compliance, and deferred maintenance. The plan is not a static document and needs to be reviewed, re evaluated, and updated periodically. Preparation and implementation of a FMP defines, identifies and establishes a need for facility improvements and changes. Maintaining and operating facilities must have long range planning if it is to remain viable, productive, cost efficient and successful in meeting the District s goals and objectives. Through the Local Control and Accountability Plan (LCAP), the District has set-forth clearly defined goals. The capital improvement needs identified in the FMP are intended to aid the District in delivering on these goals and in supporting the District s Vision Statement, that all students are engaged and successful. LCAP Goals Goal 1: Alpine County Unified School District and Alpine County Office of Education are committed to ensuring all students have access to a broad course of study with highly qualified teachers in a healthy and safe school environment. Goal 2: Pupil Outcomes: Alpine County Unified School District and Alpine County Office of Education are committed to supporting students holistically toward performing at high levels on the state s adopted standards. Alpine County USD February 7, 2018

5 Goal 3: Engagement: Alpine County Unified School District and Alpine County Office of Education are committed to providing a collaborative culture for students, parents, teachers, staff and the community which promotes the social, emotional, and academic growth of all students. Primary Facilities Planning Strategies Develop and implement a master facilities plan for physical space and technology infrastructure required to achieve our objectives and realize our vision. All students, especially socioeconomically disadvantaged students, Native American students, and students with disabilities, maximize academic achievement performance toward closing the achievement gap, in English Language Arts and particularly Math. The modernization of facilities will enable teachers and students to explore new instructional technologies and techniques and build a modern educational program tailored for the 21 st century. An example can be found in the modernization of Diamond Valley Elementary School. The building of additional classrooms will allow: 1) all students to be housed in one building, which is beneficial during inclement weather, 2) the expansion of technologies, such as 3-d printing and engineering, 3) visual and performing arts, and physical education. The newer facilities will assist in the developing a holistic approach to education through the increased visual and performing arts instruction, increased of athletic participation, and Science, Technology, Engineering, and Mathematic (STEM) education. Ensure a robust technology infrastructure exists to fulfill modern learning requirements and allow students to express and build upon their skills through technology media. The infrastructure will allow all students to simultaneously access rich media tools, aligned with state standards. The improved system will also allow for streamlined access to the state s new assessment system and also allow effective analysis of student performance data at appropriately frequent intervals in order to improve instruction, close the Achievement Gap, and ensure that all students meet or exceed district standards. Guiding Planning Principles Our facilities will continue to adapt, both physically and technologically, to address the evolving needs of our students, teachers, and community. Develop and implement a master facilities plan for physical space and technology infrastructure required to achieve our objectives and realize our vision. Modernize, or update, the current facilities in a manner that enhances the safety and health of Alpine County Unified School District students, especially in light of the natural hazards that can occur in Alpine County. These needs include the requirements of providing clean water and protect/house students when wildfire or sudden weather emergencies occur. Alpine County USD February 7, 2018

6 Continue to build positive relationships with all stakeholders through transparency, strengthening engagement, and expand outreach efforts to positively impact student achievement. Our schools will continue to be community centers that promote life-long partnerships with local agencies to the benefit for our students. Continue to honor the wishes of the community and taxpayers for an independent, highquality educational system for Alpine County students. Planning Parameters All programs and services must be consistent with our vision to help all students be engaged and successful. All budgetary decisions must include a cost-benefit analysis to ensure educational opportunities are balanced with fiscal responsibility. This Facilities Master Plan In 2015, the District s Board of Trustees provided direction to embark on a process to evaluate the facilities needs at each school site, obtain input from stakeholders and capital needs and ultimate create a FMP that identifies the capital improvements needed to deliver a quality educational product to District students. The facilities improvement needs for each campus were identified through visual inspections of each school site completed by contracted facility experts, Aspen Street Architects, and conversations with school site users, including: administration, maintenance and custodial staff, teachers and District office staff. Further, the District engaged a Facilities Advisory Committee to provide input and direction on the FMP. The results of these site assessments and input from site stakeholders are memorialized in this FMP document. It is the District s intent to create a working document that is updated regularly, as the needs, priorities, and funding options of the District change and evolve. Specifically, this FMP identifies a range of needs and improvements for each program site within the District. Some of these needs may consist of upgrades, new construction, renovations, and/or repairs. The FMP further provides the estimated project costs for the improvement needs identified. Facilities Advisory Committee Consensus for Facilities Planning Current enrollment levels are expected to continue with modest growth in the future. Diamond Valley Elementary School should be planned for an enrollment of students. The current high school arrangement with students attending comprehensive high schools outside the District and Opportunity and Community Day High Schools, is the Alpine County USD February 7, 2018

7 best program for students from educational, financial and enrichment perspectives and should remain. The Alpine County Unified School District is currently planning on opening the Bear Valley School Facilities for the school year. Continued examination of the Bear Valley facilities is necessary to meet the deadlines outlined by the Bear Valley School opening plan. Some of the conditions that have been identified include: (1) the necessity to structurally shore-up the building due to the damage received from the winter; (2) a more detailed count of the number of students who plan to attend a school when reopened; and, (3) the need to not spend capital funds on the building repairs until the plan to use the facilities is approved. Further develop a plan for meeting District technology/internet needs as use grows. Identify room/space needs from possible growth of STEM, CTE, Maker programs. Consider total cost of ownership when creating master plan. Consider voter support for any future bond. Complete the Master Plan with schedule to include input from the teachers and classified staff and then for the Board to be able to evaluate the "big picture" of Districtwide needs. The District may proceed efficiently with needed facility changes, decision makers and the community will have clearly stated priorities, and the District will have a prudent budget that is realistic for the facility projects that are needed. Alpine County USD February 7, 2018

8 DISTRICT DESCRIPTION Alpine County is considered a frontier county with a population density of two people per square mile. This makes the County the least populated county in California with approximately 1,200 permanent residents. The majority (95%) of the county s 740 square miles is composed of forestry reserves. The Sierra Nevada Mountain range divides the county into an eastern and western section. The Bear Valley community is located on the western slope of the mountains, while the county seat of Markleeville is located on the eastern side. During the winter months, the Bear Valley community is completely closed off from Markleeville, as Ebbett s Pass closes for the season due to heavy snow. Markleeville is only accessible from the north through the Lake Tahoe Basin or the east from Douglas County, Nevada. The variety of weather patterns and propensity for harsh weather during the fall and winter months can further isolate the Bear Valley and Markleeville communities from surrounding resources. The District serves approximately 130 students. The majority of Alpine County resident students, approximately 85, attend Diamond Valley Elementary School, a K-8 grade elementary school located next to the Alpine County Unified School District/Alpine County Office of Education offices. Approximately 30 students are enrolled outside of State and District boundaries for their high school experience in Douglas County, Nevada, through an interagency/interstate agreement. One to a few K-8 resident students attend a Douglas County middle school and it is anticipated after the school year, no K-8 Alpine County residents will attend Douglas County Schools. Bear Valley Elementary School in Alpine County closed on July 1, 2011 due to low enrollment. Therefore, approximately five Alpine County resident students receive their education in Calaveras County within the Vallecito Union School District. Bret Hart Union High School District is an option for when these students reach high school age. The parents of these students have expressed an interest in reopening the Bear Valley School, particularly as a K-5 school. Surveys are taken annually to determine these parents preferences which are shared with the School Board for consideration. The Board approved planning for the full reopening for the school year for K-5 students. The timeline and outline for opening the Bear Valley School is detailed in the Bear Valley School opening plant documentation. A map of the District is provided in Figure 1. Alpine County USD February 7, 2018

9 FIGURE 1 The District and County s program of quality education is currently delivered on two campuses, with a potential third school site to re-open for the school year. These school sites include: Diamond Valley Elementary School (K-8) - ACUSD Early Learning Center (infant/preschool) - ACOE Bear Valley School - ACUSD A description of each school site is included in this report. The community and District Board believe the current secondary educational arrangements with neighboring high schools help Alpine County students foster a holistic education. As such, the FMP does not address the needs of the comprehensive secondary education students. Alpine County USD February 7, 2018

10 District Enrollment As shown in Chart 1, the District s enrollment has declined significantly over the past 20 years, to a current enrollment of 80 students. CHART 1 Source: California Department of Education, Data Reporting Office. Alpine County USD February 7, 2018

11 SCHOOL SITE OVERVIEW AND ESTIMATED COSTS Diamond Valley Elementary School Diamond Valley Elementary School is located at 35 Hawkside Drive in Markleeville. This kindergarten through eighth grade elementary school is situated on a 10-acre site that also houses the District s administrative offices, maintenance and transportation facility and the Alpine County Community Day School operated by the Alpine County Office of Education, as shown in Figure 2. The school is comprised of eight classrooms, a Resource Program room, Expanded Learning Program room, a combined gymnasium/multipurpose room/cafeteria, a library media center, a staff lounge, one computer lab, several offices and grass, dirt and paved playgrounds. FIGURE 2: CURRENT FACILITIES Alpine County USD February 7, 2018

12 Proposed changes to the facilities are outlined in Figure 3. The Alpine County Unified School District and Alpine County Office of Education offices, business department, technology department and administrative annex will be demolished to make way for a new, single building to house these services. In addition, the Kindergarten classroom and Visual and Performing Arts classroom will be demolished and added to the existing Diamond Valley Elementary School structure through new construction. FIGURE 3: PROPOSED FACILITIES The Diamond Valley Elementary School facility has served the surrounding community both as an educational entity, but also as a resource for several local governmental agencies as a means to engage the public for the past forty years. Diamond Valley Elementary School requires the modernization and upgrading of its facilities in the following umbrella categories: Accessibility Upgrades Architectural Upgrades Civil Engineering Improvements Structural Engineering Improvements Mechanical Systems Upgrades Plumbing Updates Electrical Systems Improvements Alpine County USD February 7, 2018

13 Accessibility upgrades is focused on bring the facilities up to date with ADA compliance in the following areas: exterior access to classrooms, restroom facilities, and door/door hardware. Architectural upgrades includes: the modernization of flooring and wall finishes, the exterior finish, and the single pane windows with dual pane windows to increase energy efficiency. Civil engineering improvements include: the building of a containment dike for the above ground fuel storage tank and the redesign of the driveway/street intersections and culvert crossing the street. Structural engineering improvements includes: increasing the anchorage of the electrical panels and inspections for non-visible damage such as dry rot or termite damage. Mechanical systems upgrades include: the installation of a new roof top air conditioning unit, replacing the kitchen hood and exhaust system, and the alteration of the existing boiler pressure relief piping to reduce the possibility of water splashing into the electrical panels. Plumbing updates includes: bringing restrooms plumbing fixtures to ADA compliance. Electrical systems improvements includes: increasing electrical capacity into the school, increasing and improving both electrical and data distribution systems, increased exterior lighting, modernization of interior lighting fixtures, increased emergency egress and exit lighting, increased number of power outlets, the installation of a public-address system, and a modernization of the fire alarm system. The extreme winter conditions can create a heavy burden on an aged electrical system. In addition, technology has become a critical component of today s educational setting and the current electrical system is currently not adequate to meet those technological needs. The modernized electrical system will help increase capacity in preparation for both current and future facility and technological needs. The facilities improvements summarized in Table 1 include estimated project costs in current dollars. Based on the timing of project implementation, project costs will likely be higher, due to construction cost inflation. Alpine County USD February 7, 2018

14 School Site TABLE 1 Project Estimated Cost Accessibility Upgrades $315,000 Architectural Upgrades $210,000 Civil Engineering Improvements $60,000 Structural Engineering Improvements $40,000 Mechanical Systems Upgrades $110,000 Plumbing Upgrades $210,000 Electrical Systems Improvements $755,000 Visual and Performing Arts Room Replacement $490,000 Diamond Valley Elementary School Kindergarten Room Replacement $320,000 Opportunity School/Community Day School Classrooms Replacement $820,000 Del Masso Literacy Library Replacement $325,000 Bus Barn Replacement $750,000 Alpine County Unified School District and Alpine County Office of Education Administrative Services Building Business Office/Admin. Office Replacement $775,000 Administrative Annex Replacement $500,000 Technology Room Replacement $130,000 TOTAL $5,810,000 Alpine County USD February 7, 2018

15 Early Learning Center The Early Learning Center is located at 100 Foothill Road in Markleeville. This Center was opened in 2004 and provides early care and education to children ages three to five years old. The facility on this 2.52 acre site (comprised of 2 parcels as shown in Figure 3) also provides office space for several local non-profit agencies. FIGURE 4 The Aspen Street Architect s performed a brief inspection of the various buildings located as part of the Early Learning Center. Additional inspections may indicate the need for additions to the FMP. Some of the items identified as being in need include: Demolition of the former church building Replacing the former parsonage with a modular building to maintain storage space Addressing accessibilities issues to help make the facilities ADA compliant Various interior repairs to improve aesthetics Alpine County USD February 7, 2018

16 The facilities improvements summarized in Table 2 include estimated project costs in current dollars. Based on the timing of project implementation, project costs will likely be higher, due to construction cost inflation. TABLE 2 School Site Project Estimated Cost Preschool Building Improvements $235,000 Multipurpose Building Improvements $200,000 Former Church Building Demolition $335,000 Early Learning Center Replace Former Parsonage Building with Modular $500,000 Survey Campus $5,000 Geotechnical and Civil Engineer Evaluation $10,000 TOTAL $1,285,000 Alpine County USD February 7, 2018

17 Bear Valley School Bear Valley School is located at 550 Creekside Drive in Bear Valley. This former kindergarten through eighth grade school is situated on a 3.03 acre site, as shown in Figure 4. The school closed its doors in July In April of 2017, the Alpine County Unified School District Board of Trustees approved development of a plan for the reopening of the Bear Valley School for the school year. This plan was presented to the Board of Trustees in October FIGURE 5 In order to bring the Bear Valley School facilities up to their pre-closure state, the following repairs and upgrades are needed: Mold and hazardous materials abatement Flush and disinfect the water system Fire alarm inspection Charge and replace fire extinguishers Roof repairs Exterior wall repairs Testing of all existing and remaining systems to ensure property functionality Short-term mechanical system servicing In addition to those items identified for immediate attention, some of the Bear Valley School repairs include: Mechanical Systems Improvements Accessibility Upgrades Plumbing Updates Alpine County USD February 7, 2018

18 Electrical Systems Improvements Mechanical systems improvements would include upgrades/replacement to the heating, ventilation and air conditioning (HVAC) system. Accessibility upgrades is focused on bring the school up to date with ADA compliance in the following areas: exterior access to classrooms, restroom facilities, and door/door hardware. Plumbing updates includes: bringing restrooms plumbing fixtures to ADA compliance and septic system improvements. Electrical systems improvements includes: increasing electrical capacity into the school, increasing and improving both electrical and data distribution systems. The extreme winter conditions can create a heavy burden on an aged electrical system. In addition, technology has become a critical component of today s educational setting and the current electrical system is currently not adequate to meet those technological needs. The modernized electrical system will help increase capacity in preparation for both current and future facility and technological needs. The facilities improvements summarized in Table 3 include estimated project costs in current dollars. Based on the timing of project implementation, project costs will likely be higher, due to construction cost inflation. TABLE 3 School Site Project Estimated Cost Accessibility Upgrades $305,000 Architectural Upgrades $175,000 Civil Engineering Improvements $35,000 Structural Engineering Improvements $55,000 Bear Valley School Mechanical Systems Upgrades $65,000 Plumbing Upgrades $210,000 Electrical Systems Improvements $130,000 Repairs and Upgrades to Reopen School $110,000 TOTAL $1,085,000 Alpine County USD February 7, 2018

19 The facilities improvements summarized in Table 4 include estimated project costs in current dollars. Based on the timing of project implementation, project costs will likely be higher, due to construction cost inflation. TABLE 4 Project Estimated Cost Diamond Valley Elementary School $5,810,000 Early Learning Center $1,285,000 Bear Valley School $1,085,000 TOTAL $8,180,000 Total Estimated Project Cost - $8,180,000 Alpine County USD February 7, 2018

20 OTHER PROJECT CONSIDERATIONS Project Prioritization With limited resources, school districts are typically not able to fund all of the desired capital improvements. As such, project prioritization is required to determine how limited funding can be allocated. The process for establishing project priorities is dependent on Board goals combined with school site and community input. As part of the implementation of the District s FMP, project prioritization will be required. Once initially established, the priority of projects will likely be adjusted due to availability of funding, immediate site needs, and/or the Governing Board s priority. Code Compliance and Necessary Projects One item that is often overlooked within the planning and costing of modernization and additional construction on existing sites are the requirements to adhere the site to the current codes of the Americans with Disabilities Act (ADA), and also the requirement of certifying any non-closed out construction projects through the Division of the State Architect (DSA). ADA Compliance California's Building Standards Codes (Physical Access Regulations) are found in Title 24 of the California Code of Regulations (CCR), and are designed to comply with the requirements of the Americans with Disabilities Act (ADA) and State statutes. These regulations are applicable to each public school site in California. Sections 4450 et seq. of the Government Code ensure that where state funds are used for the construction or alteration of any public building or facility or where the funds of counties, municipalities, or other political subdivisions are utilized for the construction or alteration of school buildings and facilities that the plans and specifications for such buildings and facilities are reviewed by the Division of the State Architect (DSA) and certified to be in compliance with California law requiring access for persons with disabilities. Often districts will encounter issues with compliance to this code simply because they are modernizing sites that were constructed prior to the 1990 adoption of the regulations. In essence, any time any changes are made to a school site, access compliance must be reviewed and brought to current code from parking lots, to restrooms, to the area of construction. This often will take a very small project and make the costs and scope much larger than originally intended. During the process of improvements or construction, District sites will need to have ADA improvements made to them that will indeed increase the cost of the project. It is important that the District have full knowledge of the possible costs and scope increase on their projects, and also for the District to have a plan of transition to making all the sites ADA compliant. This can be done with a full ADA compliance audit, or an ADA transition plan. Both will audit each site for areas on non-compliance and list remedies for the area, and often can estimate costs of that improvement. As the District s architects formulate plans for various sites, they will also evaluate the ADA compliance in relation to the work Alpine County USD February 7, 2018

21 being required. It is important that the District continue to convey to site staff and the community that they are taking proactive steps to make all sites ADA compliant. FUNDING FACILITIES NEEDS School facilities in California are traditionally funded from a combination of State and local sources. The following provides a summary of some of the funding sources available to school districts. Summary of Potential Funding Sources The District intends to contribute all available revenue toward the construction of its facilities projects, but lacks sufficient funding to pay for all necessary construction. A combination of funding sources will be necessary to complete the necessary facilities projects. Following is a summary of each funding source available to the District: State School Facility Program The State School Facility Program is a funding program whereby the State provides matching funds to school districts embarking on eligible construction projects. The State School Facility Program is funded through statewide general obligation bonds. In November 2016, the voters authorized a $9 billion State school bond. Funding will be available based on the timeframe that projects are submitted to the State for approval. Modernization Funding The State provides funding assistance to school districts for the modernization of school facilities. The assistance is in the form of grants, and requires a 40 percent district funding contribution. A district is eligible for modernization grants when students are housed in permanent buildings that are 25 years old or older and relocatable classrooms that are 20 years old or older, and the buildings have not been previously modernized with State Funds. In order to receive funding, the district must also show that there are pupils assigned to the site who will use the facilities to be modernized. If the facility is currently unused, such as a closed school, it may also be eligible for modernization funding if the district intends to reopen it for students immediately. The modernization grant can be used to fund a large variety of work at an eligible school site. Air conditionings, insulation, roof replacement, as well as the purchase of new furniture and equipment, are just a few of the eligible expenditures of modernization grants. A district may even use the grants to demolish and replace existing facilities of like kind. However, modernization funding may not be spent for construction of a new facility. New Construction Funding New construction funding is available for school districts whose existing capacity is insufficient to house the existing students or those students anticipated within the district, based on a five-year enrollment projection. Alpine County USD February 7, 2018

22 After a district has established eligibility for a project, the district may request funding for eligible project costs. The funding for new construction projects is provided in the form of grants. The grants are made up of a new construction grant, also known as a pupil grant and a number of supplemental grants. The new construction grant is intended to fund design, construction, testing, inspection, furniture and equipment, and other costs closely related to the actual construction of the school buildings. This amount is specified in law based on the grade level of the pupils served. Supplemental grants are special grants and are intended to recognize unique types of projects, geographic locations and special project needs. Each new construction project is reviewed and appropriate grants are allotted by the Office of Public School Construction ( OPSC ). All new construction grants must be matched equally by the district with local funding sources. Once the grants are determined for a project, a request is sent to the State Allocation Board ( SAB ) for a funding apportionment. Although the grant amount is intended to be 50% of the total project amount, because of the State formulas that are used, in reality, this typically amounts to only 30%-40% of the total project cost. Financial Hardship Funding The School Facility Program provides funding for schools under what is commonly referred to as a program, where the State contributes 50% of the construction cost and the district contributes 50%. In reality, school districts find themselves contributing substantially more than the required local share of 50%. The Financial Hardship Program is a program where the State provides assistance for those districts that cannot provide all or part of their share of a school facility project. In order to receive such funding, districts are required to have made all reasonable efforts to impose all levels of local debt capacity and development fees prior to requesting financial assistance. In theory, the State pays for up to 100% of the cost of constructing a new school. However, in practice, the amount is not equal to 100% of the actual construction costs of a school but is limited to a maximum of 100% of what the State has deemed to be appropriate. It is widely understood that the State s share is closer to 30%-40% of actual construction costs and not the 50% as touted. Building a new school under the Financial Hardship Program, if eligible, is extremely difficult and typically results in a school with a high percentage of relocatables and very few, if any, permanent structures. Other Financial Hardship projects sometimes lack what are known as Minimum Essential Facilities due to the limited funds. While the program is helpful to those districts that do not have local funding, the long-term ramifications of surviving under Financial Hardship are problematic at best. General Obligation Bonds General Obligation Bonds ( GO Bonds ) are loans issued by a school district and repaid from an ad valorem tax levy on property within the District s boundaries. The funds derived from these types of bonds are to be used for Alpine County Unified School District properties Alpine County USD February 7, 2018

23 only. The maximum amount of GO Bonds that can be outstanding at any one time is limited to 2.5% of a unified school district s assessed property value. This is referred to as a district s bonding capacity. GO Bonds must be approved by voters within the District. The timing of the elections for GO Bonds depends upon the authority under which the bonds are to be approved. There are two types of GO Bonds. Two-thirds voter approved bonds This type of GO Bond may be used for the acquisition and improvement of real property. This includes the acquisition of land, the construction or acquisition of school buildings and facilities, the expansion, restoration, remodeling or improvement of school facilities and the permanent improvement of school grounds. Two-thirds voter approval elections can be held any Tuesday that is not the day before, day after or day of a State holiday, or within 45 days of a regularly scheduled statewide election day. Proposition 39 Bonds or 55% voter approved bonds This type of GO Bond may be used for construction, rehabilitation, equipping of school facilities, or the acquisition or lease of real property for school facilities. This includes the same purposes of the two-thirds voter approval bonds but also includes furniture and equipment. This type of bond measure requires a specific list of school projects to be funded and certification that the school board has evaluated safety, class size reduction, and information technology needs in developing the list. Finally, there is a requirement that expenditures are reviewed by an oversight committee and the school board conducts annual, independent financial and performance audits until all bond funds have been spent to ensure that the bond funds have been used only for the projects listed in the measure. In addition to the bonding capacity restriction, Proposition 39 Bonds require that the tax rate levied as the result of any single election can be no more than $60 per $100,000 of assessed value, for a unified school district. Election dates for a Proposition 39 Bond election are limited to: (1) statewide primary or general elections; (2) regularly scheduled local elections; or (3) statewide special elections. Statewide election dates only occur in June and November in even-numbered years. Therefore, except in the case of a special statewide election (which can only be called by the Governor), districts may only hold Proposition 39 Bond elections on regularly scheduled local election dates and statewide elections held in June and November of even-numbered years, unless they have districtwide board member elections during odd-numbered years. It is likely that the District will need to go the community and ask for additional bond authorization in order to fund the improvement projects identified in this FMP. Preliminary GO Bonding Capacity Estimates The amount of GO Bonds that the District can ultimately issue is dependent on several assumptions. Based on preliminary estimates, the District can reasonably expect to authorize $9 million-$10 million of bonds, funding expenditures over a 6-year period, under a Proposition 39 Bond election, with tax rates capped at $60 per $100,000 of assessed value. Alpine County USD February 7, 2018

24 Developer/Mitigation Fees California law allows for the levy of assessments on new construction projects where a school district will be impacted. This is called a developer fee. Due to available capacity at the District s school sites, the District is not able to justify developer fees at the State maximum amount allowed. The District has justified fees of $0.47 per square foot of residential construction and $0.45 per square foot of commercial/industrial construction. The District will continue to analyze this fee and make adjustments as appropriate. Developer fees are levied on new residential and commercial construction and may be used to construct or reconstruct school facilities for the students generated or anticipated to be generated as a result of this development. As noted on page 7 in this Master Plan, District enrollment has declined significantly over the past 20 years. Thus, available capacity currently exists at the District s school sites. Maximum development fees are based on a formula defined by the State based on the amount of money it would take the District to construct or reconstruct school facilities to house anticipated students from any development. The maximum amount that a school district can charge is set by the State. Currently, the State has capped statutory developer fees at $3.39 per square foot of residential construction and $0.55 per square foot of commercial/industrial construction. This maximum fee is expected to be adjusted in early Energy Efficiency and Generation Funding Rebates, grants and subsidized loans are regularly available for the completion of energy conservation and/or generation projects at schools. For example, PG&E often provides rebates for swapping out old lights for new energy efficiency lighting and fixtures. Additionally, the State of California provides grant funding for energy conservation projects meeting specific energy savings thresholds. Furthermore, the Federal Government often provides an interest subsidy on loans issued for clean and renewable energy projects. In 2012, the California Clean Energy Jobs Act (Proposition 39) changed the corporate income tax code and allocated projected revenues for five fiscal years, beginning in Under the initiative, roughly up to $550 million annually is available for appropriation by the Legislature for eligible projects to improve energy efficiency and expand clean energy generation in schools. The amount of each s school s allocation is set at the State level and provided to the District. The District will want to evaluate energy funding opportunities as they come available and determine whether such funding can be adequately integrated into the capital needs of the District. General Fund Although General Fund money can be used for school facilities, due to other demands on this budget, such as salaries and benefits for employees, this is not a substantial revenue Alpine County USD February 7, 2018

25 source for facilities projects. To the extent that the operating budget allows, the District can consider allocating General Fund dollars to capital projects. The District also funds a Deferred Maintenance Program for ongoing major repair and maintenance projects. The Deferred Maintenance plan should be integrated into the Facility Master Plan to ensure a large amount of funding is not spent on facilities scheduled to be replaced and those items needing major and/or ongoing maintenance are addressed in the Facility Master Plan. Funding the District s Facilities Needs The District may consider utilizing all available funding sources to pay for the facilities needs identified in this report. Funding may be utilized in the following manner: The State School Facility Modernization Program can be utilized to the extent possible, based on State eligibility, to match local resources and complete the modernization projects identified if State funding is available for the District. The State School Facility New Construction Program can be utilized to the extent possible, to match local resources, based on State eligibility. Developer fees/mitigation can be applied toward eligible projects. Deferred maintenance funds may continue to be utilized to adequately maintain the District s facilities. Energy efficiency funding sources may be applied towards applicable projects as those funds are available. A local GO Bond may be needed to fund a large portion of the capital needs identified in this report. The next available election dates are June and November of 2018 for a Proposition 39 General Obligation Bond. The planning and education required for such a measure can be started immediately. Alpine County USD February 7, 2018

26 IMPLEMENTATION PLAN AND PHASING To implement the FMP, the District will need to evaluate the appropriate project phasing balancing necessary health and safety improvements with available funding and cost savings measures that can be implemented. The recommended next steps to implement this FMP are identified below: Board adoption of FMP and acceptance of capital project needs identified at each school site. The adoption of this FMP formalizes the needs identified and provides direction to District staff with regards to what capital improvements are necessary throughout the District. The FMP can be updated as projects are completed or additional capital needs are identified. Begin stakeholder outreach related to capital needs. Begin education and outreach efforts to inform key stakeholders and community members on the facilities improvements identified at each school site and to develop an awareness of the school facility construction process, costs and funding options available to the District. Develop a General Obligation Bond plan and pursue a Bond measure. Consider the amount of money needed from Bonds in order to leverage other available funding sources balanced with taxpayer tolerance for bond repayment and resulting tax rates. Target a November 2018 bond measure, which would require Board action to call for an election in June This document is intended to be an ongoing, working and living Master Plan that will change and evolve as the District does. The work completed to identify the project needs in this FMP will ensure that Alpine County Unified School District continues to provide a desirable educational environment to support the success of District students. Alpine County USD February 7, 2018

27 APPENDIX A: ALPINE COUNTY ECONOMIC FORECAST Alpine County USD February 7, 2018

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