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Report to Committee of the Whole November 18, 2013
SUBJECT: Woolwich and Wellesley Townships Elementary Schools Pupil Accommodation
Review Recommendations ORIGINATOR: This report was prepared by Marilyn Allen, Executive Superintendent of Business and
Financial Services and Treasurer, Mary Lou Mackie, Executive Superintendent of Education, Dennis Cuomo, Manager of Planning, Nathan Hercanuck, Senior Planner, Lauren Manske, Senior Planner, Ian Gaudet, Controller of Facility Services, Ron Dallan, Manager of Capital Projects, Karen Newland, Controller of Financial Services, and Nick Landry, Business Services Manager, in consultation with Executive Committee.
PURPOSE: To present the recommendations and to seek a Board decision on the future of Floradale, Linwood, St. Jacobs and Three Bridges Public Schools, as a result of the Woolwich and Wellesley Townships Elementary Schools Pupil Accommodation Review. BACKGROUND: An Accommodation Review is a formal process that may result in school closure and consolidation, school construction and renovations, and boundary and program changes in a defined area within the Waterloo Region District School Board’s (Board) jurisdiction. In accordance with Board Policy 4000 – Pupil Accommodation Review and in compliance with the Ontario Ministry of Education’s Pupil Accommodation Review Guideline (published June 26, 2009), on February 14, 2011, the Board initiated a pupil accommodation review of the elementary schools in the Woolwich and Wellesley Townships area of the Board, which included: Floradale, St. Jacobs, Linwood and Three Bridges Public Schools. This review was titled the Woolwich and Wellesley Townships Elementary Schools Pupil Accommodation Review. On March 18 2013, the Woolwich and Wellesley Townships Accommodation Review Committee (ARC) presented its Accommodation Report to the Committee of the Whole of the Waterloo Region District School Board. The Accommodation Report shared the Committee’s findings and recommendations with respect to the accommodation of elementary students in the Woolwich and Wellesley Townships Review Area. Throughout the review process the ARC spent a considerable amount of time on two subjects; the condition and equity of the St. Jacobs Public School facility, and the future of Three Bridges Public School as an elementary school facility in the Board. In the end, the ARC could not reconcile the continued operation of Three Bridges Public School within the context of the Review Objectives and the unique role the school plays in the local conservative Mennonite community. Therefore, the ARC’s Accommodation Report presented two scenarios to the Board of Trustees for the accommodation of students in the Woolwich and Wellesley Townships Review Area; one that included the continued operation of Three Bridges Public School as a Board elementary facility, and one that did not. The following is a brief outline of the ARC’s recommendations for each Scenario provided in the Accommodation Report. Option 1 - ARC Recommendation: Status Quo (Three Bridges Public School remains open)
1. To rebuild St. Jacobs Public School 2. To construct a bus lay-by at Three Bridges Public School 3. To consider a future boundary study between Floradale and Conestogo Public Schools
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Option 2 - ARC Recommendation: Scenario 10a (Three Bridges Public School closes)
1. To close Three Bridges Public School 2. To modify the boundary between St. Jacobs and Floradale Public Schools 3. To modify the boundary between Floradale and Linwood Public Schools 4. To rebuild St. Jacobs Public School 5. To consider a future boundary study between Floradale and Conestogo Public Schools
Board Policy 4000 – Pupil Accommodation Review requires a 60-day period between the submission of the ARC’s Accommodation Report and Recommendations and when the Board of Trustees can make a final decision regarding the future of the schools under review. This requirement has been met. Throughout this 60-day period, Board administration reviewed the ARC’s recommendations and presented an administrative analysis (Appendix A) to the Board of Trustees on September 23, 2013. As required by Section 2.9 of Board Policy 4000 – Pupil Accommodation Review, the administrative recommendations, which are based on the analysis of the ARC Accommodation Report, are being presented at this time. According to Board Policy, once presented with both the ARC and administrative recommendations, the Board of Trustees will make the final decision regarding the future of the school(s). Existing Situation An Accommodation Review for the area identified in Woolwich and Wellesley Townships was initiated by the Board due to concerns about:
• Declining enrolment • Surplus capacity • Facility condition and equity • Small school organizations.
With these issues in mind the ARC developed Review Objectives to guide the process and evaluate the proposed solution(s) (See Table 1). Table 1 – ARC Scenarios v. Objectives
Objective
Objective Met? Option1
Three Bridges P.S. remains
open
Option 2 Three Bridges
P.S. closes Ensure equitable student access to a community school by having defined attendance area boundaries that relate geographically to the community it is located in.
No Yes
Where possible organize school attendance boundaries to minimize distance to school (time on bus) No No Address student transitions where changes proposed. n/a Yes Have regard for Board Policy 3002; Elementary School Size and Configuration, recognizing the challenges of rural areas. No Yes Support the efficient use of capital and operating resources through the consideration of facility condition, accessibility, and equitable access to educational amenities.
No Yes
Maximize the number of students accommodated in permanent capacity. No Yes Maximize the use of existing capacity within facilities No Yes Recognize the unique needs of communities served by different schools through the reasonable accommodation of cultural differences. No Yes
The ARC and Board administration have examined the implications of both the Status Quo (Option 1: operating Three Bridges Public School as is), and its closure as a standard elementary school facility (Option 2: Scenario 10a). It is recognized that a Three Bridges Public School closure is consistent with the majority of the review objectives, Board Policies, and mirrors previous Board decisions with respect to small schools. It is also logical from a financial standpoint, owing to the condition, staffing and operational costs, nearby vacant pupil places, and the financial position of the Board with respect to the $4.6M deficit and ongoing fiscal review. The Board needs to achieve operational savings to offset the $4.6M deficit.
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Three Bridges Public School serves a population who have indicated that they may not choose to attend another Board facility should it close. The rural location and character of the school are attractive factors to the local Mennonite community with respect to public education. The closure of the facility, as proposed under Option 2: Scenario 10a, may lead to a loss of enrolment as a portion of the population may choose to exercise their other educational options (parochial schools). While the administrative analysis has demonstrated that the financial savings realized from no longer operating Three Bridges Public School outweigh the funding losses resulting from a potential loss of enrolment from this community, it is our fundamental belief that these students are best served by the public education system. STATUS: The ARC’s Accommodation Report presented two options for the accommodation of students within the Woolwich and Wellesley Townships Elementary Schools Pupil Accommodation Review area. Administration has also looked at two other possibilities. Option 1: Status Quo Scenario (Three Bridges Public School remains open)
The Waterloo Region District School Board and its precursor iterations have operated Three Bridges Public School on the basis of a number of ‘understandings’ with the Mennonite community, primarily related to curriculum elements and delivery with which they are uncomfortable. In effect these ‘understandings’ create an overlap in attendance areas with respect to student accommodation with St. Jacobs Public School. Families wishing to have their children attend a school governed by these understandings send them to Three Bridges Public School, and families who wish their children to receive the ‘standard’ Board curriculum send their children to St. Jacobs Public School. No other schools in the Board provide differentiated or segregated facility accommodation based on cultural curriculum and curriculum delivery preferences. Maintaining Three Bridges Public School as a separate entity is in direct opposition to Board Policy 1012 – Faith and Religious Accommodation (Appendix C) and related Procedure. The Policy and Procedure clearly articulate that while “The Board is committed to taking all reasonable steps to provide religious accommodations to staff and students.” they also state;
“The Board does not support the primacy of one faith, religious or secular belief over another.” (Policy 1012 – Faith and Religious Accommodation Section 1.5)
“Equity, inclusiveness, and diversity are goals in all programs, practices, and facilities.”(Administrative Procedure 1230 - Faith and Religious Accommodation, Section 2.2); and
“The duty to accommodate is an obligation that arises when requirements, factors, or qualifications, which are imposed in good faith, have an adverse impact on, or provide an unfair preference for, a group of persons based on protection described in the OHRC.”(Administrative Procedure 1230 – Faith and Religious Accommodations Section 3.1)
The operation of Three Bridges Public School under the current ‘understandings’ creates a school where students who belong to one faith or culture are assured that only that faith will be honoured in the school by way of the concurrent boundary and differentiated curriculum and curriculum delivery. In this manner the Board is supporting the primacy of one faith or belief contrary to Board Policy 1012 – Faith and Religious Accommodation It should be noted that there is no official Board agreement or motion on record approving the ‘understandings’ under which Three Bridges Public School operates. As well, it is the opinion of Board administration that the Board is under no policy or legal obligation to continue to operate the school facility with respect to the ‘understandings’ and the existing arrangement with the community. In its Accommodation Report the ARC recognized that the continued operation of Three Bridges Public School under the current conditions is in contravention of the Review Objectives established at the outset of the Review. However, the ARC took the position that the historical arrangement between the Board and the Three Bridges community was beyond the ARC’s mandate to address. The ARC felt that should the Board wish to continue to operate Three Bridges Public School under the current arrangement; the Status Quo Scenario was the best option to do so. The annual cost of keeping Three Bridges Public School open is $350,282 (See Table 2).
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TABLE 2: Three Bridges Public School site specific annual operations costs (Option 1) Site Specific Staffing Costs (salary and benefits)
Administrator $127,408 Custodial $57,518 Secretary $56,856 Library $22,857
Facility/Maintenance Costs Hydro (2010) $10,827 Natural Gas (2010) $5,196 Grounds Maintenance (2010) $1,620 Amortized 10 Yr. Renewal Costs $68,000
Total Annual Operating Costs $350,282
The operation of Three Bridges Public School under the current conditions (Status Quo Scenario) would continue to accommodate the unique cultural preferences of this conservative Mennonite community. However, as the administrative analysis of the ARC recommendations demonstrated, the school will continue to consume more resources than the current and projected enrolment brings in through the GSN – utilizing additional resources, detracting from other schools and students and placing a financial burden on the Board.
Option 2: Scenario 10a (Three Bridges Public School closes)
Scenario 10a, which involves the closure of Three Bridges Public School, meets the Review Objectives in that it addresses key issues such as equitable access, student transitions, utilization of surplus capacity, and the efficient use of capital and operating resources. Scenario 10a also achieves the goals of Board Policy 3002 – Elementary School Size and Configuration which recommends ideal school sizes based on having a sufficient population to support multiple classes per grade (500-650 pupils JK-8); a situation believed to support student achievement. The administrative analysis report on the ARC recommendation concurred with this position. Scenario 10a also includes recommendations specifically to accommodate the Three Bridges community upon closure of the Three Bridges Public School facility at Floradale Public School. Floradale Public School accommodates a similar cultural group, has available space, and is in close proximity to the Three Bridges Public School community. Based on consultation with the community, both the ARC and staff have concluded that the implementation of this option may lead to some loss of enrolment to the parochial school system. The annual savings associated with the closure of Three Bridges Public School is $345,782 (See Table 3). TABLE 3: Annual operational savings resulting from Three Bridges closure (Option 2 and 4)
Three Bridges Public School site specific annual operational costs Site Specific Staffing Costs (salary and benefits)
Administrator $127,408 Custodial $57,518 Secretary $56,856 Library $22,857
Facility/Maintenance Costs Hydro (2010)1 $6,327 Natural Gas (2010) $5,196 Grounds Maintenance (2010) $1,620 Amortized 10 Yr. Renewal Costs $68,000 Other
Total Annual Operating Savings $345,782 1 Hydro savings less than annual hydro cost at Three Bridges Public School reflecting the utilization of portables at Floradale Public School.
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The closure of Three Bridges Public School is consistent with the Board decisions for the closure of other small schools in similar financial situations within the Waterloo Region District School Board (Dickson Public School, Baden Public School, North Wilmot Public School, and Wilmot Senior Public School) Scenario 10a would see the closure of Three Bridges Public School and the implementation of boundary changes to accommodate and integrate the school community at Floradale Public School. The administrative analysis demonstrated that an annual financial savings of $346,000 could be achieved assuming total enrolment retention. However, the Board may see a loss of a portion (up to 65%, approximately 54 elementary students) of this community from the public education system if they choose to attend parochial schools. Other Options At the September 23 Committee of the Whole meeting, where Board staff presented their administrative analysis of the ARC’s Accommodation Report, the Board expressed an interest in examining alternate accommodation solutions in the Wellesley and Woolwich review area that would fall somewhere in between the Status Quo and Scenario 10a as recommended by the ARC. The Three Bridges Public School community has identified the facility, its rural location, and separate organization of the school as their main reasons for attending a public elementary school. The following potential intermediate options contemplate the accommodation of the Three Bridges Public School community while still maintaining one or both of these desired elements. Option 3: School ‘Twinning’
In its administrative analysis Board staff presented a business case supportive of the closure of Three Bridges Public School on the basis that the annual costs to operate the facility (See Table 2) significantly exceed the annual funding received from the enrolment of the small school generated through the GSN.
In the business case the provision of an elementary administrator is a significant annual site specific cost ($127,000) incurred by the operation of the facility under the Status Quo Scenario. Ontario Regulation 298 ‘Operations of Schools – General’ section 9(4) allows Boards to appoint a supervising principal to supervise the administration of two or more elementary schools. The school ‘twinning’ option would see the elimination of the administrator position at Three Bridges Public School and the assignment of either the St. Jacobs or Floradale Public School principal as the Three Bridges Public School supervising principal. In this way the annual operational costs of operating Three Bridges Public school are reduced from $350,000 to $223,000 (See Table 5).
While the twinning scenario would put Three Bridges site specific operation cost closer in line, the option still does not meet a majority of the Review Objectives. The continued operation of such a small school organization remains far from achieving the goals of Board Policy 3002, which recommends school sizes of 550-650 pupils JK-8. The school would maintain multiple combined grade class organizations. The Board would also still be responsible for the required upgrades and ongoing maintenance of the Three Bridges Public School facility when surplus pupil places exist in the area. This could potentially amount to significant dollars well into the future, and the facility itself is sub-standard in that it would not meet current Board standards with respect to gym, accessibility and program standards.
Similar to the Status Quo Scenario, maintaining a separate school facility and boundary for one faith group is in contravention to the Board’s Faith and Religious Accommodation Policy in that it does not promote equity, inclusiveness and diversity, and supports the primacy of one faith, religious or secular belief over another.
As well, the operation of a school facility without an on-site administrator presents other challenges which would need to be addressed. The annual cost of keeping Three Bridges Public School open as a ‘twinned’ school is $222,874 (See Table 4)
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TABLE 4: Three Bridges Public School site specific annual operations costs (Option 3: ‘Twinning’) Site Specific Staffing Costs (salary and benefits)
Administrator - Custodial $57,518 Secretary $56,856 Library $22,857
Facility/Maintenance Costs Hydro (2010) $10,827 Natural Gas (2010) $5,196 Grounds Maintenance (2010) $1,620 Amortized 10 Yr. Renewal Costs $68,000
Total Annual Operating Savings $222,874 Option 4: ‘Transition provision’
In the Accommodation Report, the ARC recommended Scenario 10a seeks to accommodate the Three Bridges Public School Community at Floradale Public School upon closure of the Three Bridges Public school facility. Through consultations with the Three Bridges community, attending Floradale Public School was identified as the preferred alternative should Three Bridges Public School be closed. The school has a similar rural setting and already accommodates a significant population of Mennonite (David Martin sect) students. Scenario 10a would see the retained Three Bridges Public School enrolment integrated into the existing school organization of Floradale Public School.
The ‘transition provision’ concept would see the accommodation of the retained Three Bridges Public School enrolment at Floradale Public School similar to Scenario 10a, except that the small school organization of Three Bridges Public School would be maintained as a separate entity on the Floradale Public School site for a period of transition. The Three Bridges Public school organization could be either accommodated in a combination of spare classrooms and portables, or entirely in portables external to the Floradale P.S. building. This option would allow the Board to eliminate the annual site specific operations costs of maintaining the Three Bridges Public school site and facility while preserving the separated school organization element the Three Bridges Public school community finds attractive. With respect to the Review Objectives this option does eliminate surplus spaces in the review area, and would have a similar positive net financial impact for the Board. However, the small school organization of Three Bridges Public School on the Floradale Public School site would still not completely meet the intent of Board Policy 3002. Savings would be similar to Option 2: Closing Three Bridges Public School. The annual operating savings associated with the closure of Three Bridges Public School with a transition provision at Floradale Public School is $345,782 (See Table 3).
Assessment of the Potential Loss of Enrolment under Options 2 and 4 While a loss in enrolment is a possible consequence of a Three Bridges Public School closure it should be noted that similar concerns were expressed a number of years ago with respect to the reconstruction of Floradale Public School. Floradale Public School also serves a significant Mennonite population. In 2010 the facility was reconstructed on site using funds available through the Ministry of Education’s “Prohibitive-to-Repair” (PTR) initiative. During public consultation, the community expressed that changing the ‘character’ of the school by replacing the facility with a modern building could lead to a loss of enrolment from the conservative Mennonite community. In September 2010 the new Floradale Public School facility opened and no enrolment loss was observed over previous years (See Table 4). As well, the school continues to successfully accommodate the needs of its Mennonite community. In fact, Floradale Public school is the only school in the Review which has demonstrated stable enrolments as demonstrated in Table 5.
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TABLE 5: Historical enrolment of Review Area schools
School 2002 2004 2006 2008 2010 2012 Change 2002-2006
Change 2008-2012
Floradale P.S. 220 243 283 261 251 270 28% 3% Linwood P.S. 603 588 559 504 469 429 -7 -14% St. Jacobs P.S. 316 316 318 333 319 315 0% -5%
Three Bridges P.S. 114 107 109 101 83 83 -4% -18% Total 1253 1254 1269 1199 1122 1097 1% -8.5%
In previous ARC Reports generally all students are presumed to move to the new accommodation dictated by the recommended scenario. Table 6 outlines the financial impact of a number of enrolment loss assumptions with respect to Option 2 and 4 (Three Bridges Public School closure).
TABLE 6: Anticipated annual savings: Three Bridges Public School closure (Options 2 and 4) Enrolment decline assumptions Three
Bridges P.S. Closure Three Bridges Public School site specific annual operational savings
0%
35% 65% 100%
Site Specific Staffing Costs (salary and benefits) Administrator $127,408 $127,408 $127,408 $127,408 Custodial $57,518 $57,518 $57,518 $57,518 Secretary $56,856 $56,856 $56,856 $56,856 Library $22,857 $22,857 $22,857 $22,857
Facility/Maintenance Costs Hydro (2010)1 $6,327 $7,827 $10,827 $10,827 Natural Gas (2010) $5,196 $5,196 $5,196 $5,196 Grounds Maintenance (2010) $1,620 $1,620 $1,620 $1,620 Amortized 10 Yr. Renewal Costs $68,000 $68,000 $68,000 $68,000
Other Transportation (Bus Run) $0 $0 $37,000 $37,000
Sub-Total: Annual Operating Savings $345,782 $347,282 $387,282 $387,282
Three Bridges P.S. Pupil Funding Reduction Three Bridges P.S. Enrolment 2013-14 87 87 87 87 Secondary Enrolment 2013-14 (Including SAL) 35 35 35 35 Net Elementary Enrolment Loss (2013-14) 0 30 57 87 Net Secondary Enrolment Loss (2013-14) 0 12 23 35 Elementary Net Regular Grant Contribution (2013-14)
$1,908 $1,908 $1,908 $1,908
Secondary Net Regular Grant Contribution (2013-14)
$2,362 $2,362 $2,362 $2,362
Sub-Total: Revenue Loss $0 $85,584 $163,082 $248,666 Annual Net Savings/(Loss) $345,782 $261,698 $224,200 $138,616
One time portable costs (Floradale P.S.) $25,000 $20,000 $0 $0 1 Hydro savings costs vary by scenario accounting for the need to power 2 or 3 portables to accommodate a portion of the Three Bridges Public School elementary enrolment under 35%, and 0% loss assumptions respectively.
The preceding accommodation options for the Three Bridges Public School community were developed as a result of direction from the Board to examine compromise solutions somewhere in between the ARC recommended Status Quo Scenario and Scenario 10a with respect to the potential closure of Three Bridges Public School. While the ‘twinning’ and ‘transition provision’ options would seem to offer some solutions to issues the Board expressed with the Status Quo Scenario and Scenario 10a they also introduce new challenges. The chart below (Table 7) summarizes the ARC recommended Scenarios as well as the explored alternatives
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within the context of the Review Objectives, Board Policy, and financial impact with respect to the accommodation of the Three Bridges Public School community. TABLE 7: Woolwich Wellesley Accommodation Review Accommodation Options v. Review Objectives, Board Policy and Financial Impact.
Evaluation Criteria Accommodation Option Does this Option Achieve ARC
Objectives? Does this Option Achieve Board Policy Objectives?
Annual Cost/Savings
Option 1 : Status Quo • Retention of Three
Bridges P.S. facility
NO • Surplus pupil places in
review area • Facility condition not
addressed • High operation costs
(staff and maintenance) remain
• Small school organization continues
NO Policy 3002 • This option maintains the
current small school organization of Three Bridges P.S.
• Combined grade classes will continue to exist for all classes
Policy 1012 • Operation of Three Bridges
P.S. as a separate facility does not promote equity, inclusiveness, diversity, and promotes the primacy of one faith, religious or secular belief over another.
$350,000 Cost
Option 3 : Three Bridges Public School ‘Twinning’ • Retention of Three
Bridges P.S. facility
NO • Surplus pupil places in
review area • Facility condition not
addressed • Small school organization
continues • High operation costs (staff
and maintenance) remain • (1 administrator reduced)
NO Policy 3002 • This option maintains the
current small school organization of Three Bridges P.S.
• Combined grade classes will continue to exist for all classes.
Policy 1012 • Operation of Three Bridges
P.S. as a separate facility does not promote equity, inclusiveness, diversity, and promotes the primacy of one faith, religious or secular belief over another.
$223,000 Cost
Option 4 : ‘Transition provision’
Three Bridges Public
School at Floradale
0% loss Three
Bridges P.S. enrolment
YES (at end of transition period) • Eliminates surplus pupil
places in Review area • Three Bridges P.S. site
specific operational costs eliminated (staffing,
YES (at end of transition period) Policy 3002 • This option maintains a
small school organization
$346,000 Savings
35% loss Three
Bridges P.S. enrolment
$262,000 Savings
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Public School
65% loss Three
Bridges P.S. enrolment
maintenance) • Maintains small school
organization over transition period
for Three Bridges P.S. students for a transition period. Allows for integration over a transitional period
Policy 1012 • Promotes equity,
inclusiveness, diversity by gradually integrating Three Bridges P.S. population into Floradale P.S.
$224,000 Savings
Option 2 : Scenario 10a
0% loss Three
Bridges P.S. enrolment
YES • Eliminates surplus pupil
places in Review area • Three Bridges P.S. site
specific operational costs eliminated (staffing, maintenance)
YES Policy 3002 • Closure of Three Bridges P.S.
and the integration of the enrolment into Floradale P.S. will meet the intentions of Board Policy 3002 with respect to maintaining an enrolment of sufficient size so as to support multiple classes per grade.
Policy 1012 • Promotes equity,
inclusiveness, diversity by gradually integrating Three Bridges P.S. population into Floradale P.S.
$346,000 Savings
35% loss Three
Bridges P.S. enrolment
$262,000 Savings
65% loss Three
Bridges P.S. enrolment
$224,000 Savings
Based on the comparison of all four scenarios, and in consideration of the stated objectives of the ARC, Board policies, and financial implications, Scenario 10a (Option 2: The closing of Three Bridges Public School) provides the most appropriate and consistent solution for the future accommodation of students within the Woolwich and Wellesley Elementary Pupil Accommodation Review Area. It is however, reasonable to allow a transition period for Three Bridges Public School students moving to Floradale Public School (Option 4: Transition provision) Summary The Waterloo Region District School Board initiated a pupil accommodation review of the elementary schools in the Woolwich and Wellesley Townships area of the board due to concerns about declining enrolment, surplus capacity, facility condition and equity and small school organizations. The closing of Three Bridges Public School achieves the ARC objectives and aligns with Policy established by the Waterloo Region District School Board. In addition, overall annual operating savings of approximately $350,000 can be achieved to assist with the System Fiscal Review objective to address a $4.6M annual deficit. COMMUNICATIONS: To ensure the involvement of an informed local community, the administrative recommendations will be presented to the Committee of Whole on November 18, 2013, which is open for members of the public to attend. Notice and details of the meeting were provided to the schools involved in the Review via flyers distributed to students of the Review Area schools as well as ARC members.
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FINANCIAL IMPLICATIONS: As detailed in the report entitled “Woolwich and Wellesley Townships Elementary Schools Pupil Accommodation Review Administrative Analysis” presented to the Board on September 23, 2013 the implementation of Scenario 10a (Option 2) is estimated to have an annual net financial savings of up to $346,000 depending upon student retention. STRATEGIC PLAN: The six strategic directions that are used to guide the work of the Board are:
• Engaging students, families, staff and communities • Fostering wellness and well-being • Pursuing student achievement and success for all • Embracing diversity and inclusion • Championing quality public education • Promoting forward-thinking.
This report relates to the following strategic directions:
• Engaging students, families, staff and communities • Pursuing student achievement and success for all • Promoting forward-thinking
RECOMMENDATION: It is recommended: That the Waterloo Region District School Board formally close Three Bridges Public School (MIDENT # 621080) effective August 31, 2014, and advise the Ministry of Education; and That the Waterloo Region District School Board establish a transition option for the Three Bridges Public School students at Floradale Public School for a period of one year; and That the Waterloo Region District School Board approve the Scenario 10a (Option 2) boundaries for Floradale, Linwood, and St. Jacobs Public Schools as illustrated on Appendix A, attached to this report, dated November 18, 2013, effective September 2014; and That the Waterloo Region District School Board approve the grandfathering options as set out on Appendix C of this report titled, “Woolwich and Wellesley Townships Elementary Schools Pupil Accommodation Review Recommendations,” dated November 18, 2013; and That the Waterloo Region District School Board direct staff to investigate the feasibility of rebuilding St. Jacobs Public School to address concerns regarding facility equity and condition.
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Report to Committee of the Whole September 23, 2013
SUBJECT: Woolwich and Wellesley Townships Elementary Schools Pupil Accommodation
Review Administrative Analysis ORIGINATOR: This report was prepared by Marilyn Allen, Executive Superintendent of Business and
Financial Services and Treasurer, Dennis Cuomo, Manager of Planning, Nathan Hercanuck Senior Planner, Lauren Manske, Senior Planner, Ian Gaudet, Controller of Facility Services, Ron Dallan, Manager of Capital Projects, Karen Newland, Controller of Financial Services, and Nick Landry, Business Services Manager, in consultation with Executive Committee.
PURPOSE: To present the administrative analysis of the Woolwich and Wellesley Townships Elementary Schools Pupil Accommodation Review Committee’s Accommodation Report and Recommendations prior to making a final decision regarding the future of Floradale, Linwood, Three Bridges and St. Jacobs Public Schools. This report is for information only; recommendations will follow in a separate report. BACKGROUND: An Accommodation Review is a formal process that may result in school closure and consolidation, school construction and renovations, and boundary and program changes in a defined area within the Waterloo Region District School Board’s (Board) jurisdiction. In accordance with Board Policy 4000 – Pupil Accommodation Review and in compliance with the Ontario Ministry of Education’s Pupil Accommodation Review Guideline (published June 26, 2009), on February 14, 2011, the Board initiated a pupil accommodation review of the elementary schools in the Woolwich and Wellesley Townships area of the Board, which included: Floradale, St. Jacobs, Linwood and Three Bridges Public Schools. This review was titled the Woolwich and Wellesley Townships Elementary Schools Pupil Accommodation Review. On March 18 2013, the Woolwich and Wellesley Townships Accommodation Review Committee (ARC) presented its Accommodation Report (attached as Appendix I) to the Committee of the Whole of the WRDSB. The Accommodation Report shared the Committee’s findings and recommendations with respect to the accommodation of elementary students in the Woolwich and Wellesley Townships Review Area. Throughout the review process the ARC spent considerable time on two subjects; the condition and equity of the St. Jacobs Public School facility, and the future of Three Bridges Public School as an elementary school facility in the Board. In the end the ARC could not reconcile the continued operation of Three Bridges Public School within the context of the Review Objectives and the unique role the school plays in the local conservative Mennonite community. Therefore the ARC’s Accommodation Report presented two scenarios to the Board of Trustees for the accommodation of students in the Woolwich and Wellesley Townships Review Area; one that included the continued operation of Three Bridges Public School as a Board elementary facility, and one that did not. The following is a brief outline of the ARC’s recommendations for each Scenario provided in the Accommodation Report. ARC Recommendation: Status Quo
1. To rebuild St. Jacobs Public School 2. To construct a bus lay-by at Three Bridges Public School 3. To consider a future boundary study between Floradale and Conestogo Public Schools
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ARC Recommendation: Scenario 10a
1. To close Three Bridges Public School 2. To modify the boundary between St. Jacobs and Floradale Public Schools 3. To modify the boundary between Floradale and Linwood Public Schools 4. To rebuild St. Jacobs Public School 5. To consider a future boundary study between Floradale and Conestogo Public Schools
Existing Situation An Accommodation Review for the area identified in Woolwich and Wellesley Townships was initiated by the Board due to concerns about declining enrolment and surplus capacity, facility condition and equity, and small school organizations. Historical enrolment information and enrolment projections completed as part of the Review indicate that there has been a decline in enrolment over the past ten years (see Table 1) resulting in some surplus capacity at the Review Area facilities. Looking forward, enrolment projections indicate that the decline is anticipated to stabilize and enrolment to even increase slightly owing to a small residential development in the Town of St. Jacobs. Nonetheless, despite this slight enrolment increase surplus elementary capacity of approximately 200 pupil places in the Review Area is projected to remain (see Table 2). TABLE 1: Historical enrolment of Review Area schools
School 2002 2004 2006 2008 2010 2012 Change 2002-2006
Change 2008-2012
Floradale P.S. 220 243 283 261 251 270 28% 3% Linwood P.S. 603 588 559 504 469 429 -7 -14% St. Jacobs P.S. 316 316 318 333 319 315 0% -5%
Three Bridges P.S. 114 107 109 101 83 83 -4% -18% Total 1253 1254 1269 1199 1122 1097 1% -8.5%
TABLE 2: Projected enrolment of Review Area schools
School Capacity with FDK 2012 2014 2016 2018 2020
Floradale P.S. 340 270 256 256 251 272 Linwood P.S. 551 429 404 418 425 429 St. Jacobs P.S. 406 315 327 360 368 380
Three Bridges P.S. 69 83 88 96 97 90 Total 1366 1097 1075 1130 1141 1171
The schools in the review area vary greatly in the age of their original construction and also their subsequent additions. Consequently, some of the facilities are expected to incur higher maintenance and retrofitting costs moving forward. Facility condition and equity was examined by the ARC with respect to the estimated maintenance costs of the existing school infrastructure, required works as a result of legislatively mandated programs (e.g., Full-Day Kindergarten , Accessibility), and system benchmarks for educational spaces the Board is trying to achieve (see Table 3). TABLE 3: Anticipated facility maintenance and capital costs Woolwich Wellesley Accommodation Review facilities
School 10yr Renewal needs FDK Accessibility Bus Lay-
by Library Gym Total
Floradale P.S. $0.73 M $0 $0 $0 $0 $0 $0.73M Linwood P.S. $3.2 M $0 $0 $0 $0 $0 $3.2 M St. Jacobs P.S. $2.1 M $1 M $0.5 M $0 $0.3 M $1.5 M $5.4 M
Three Bridges P.S. $0.54 M $0 $0.08 M $0.05 M $0 $0 $0.68M Total $6.57 M $1 M $0.58 M $0.05 M $0.3 M $1.5M $10 M
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The Woolwich and Wellesley Townships review area is home to the smallest school in the Board with respect to both capacity and enrolment. Three Bridges Public School has a capacity of 69 pupil places and serves approximately 85 students. In June 2010, the Board passed a new policy (Board Policy 3002- Elementary School Size and Configuration) related to elementary school size and configuration. This policy references the research presented in the Good Schools Standing Committee Report of the same name dated May 17, 2007, which states that when considering Pupil Accommodation Reviews, the following guiding principles are to be used:
• JK-8 facilities will ideally have a built capacity of between 500 and 650 students; • JK-6 facilities will ideally have a built capacity of between 350 and 400 students; • JK-6 facilities will be designed to accommodate future expansion to accommodate a JK-8
configuration where practical; • That planning for elementary school configurations consider the following:
o Have at least 2 classes per grade in JK-6 to support professional learning communities; o Have more than 2 classes per grade in Grades 7 and 8 to support program; o Minimize the number of schools with FTE enrolments over 650 students, including the Full-
Day Kindergarten program, wherever possible; o Be sensitive to the impact on elementary students transitioning between schools
The schools in the Woolwich and Wellesley Townships review area are challenged in meeting the majority of these criteria owing to the lower population densities of the primarily rural review area. However, Three Bridges Public School with its small enrolment of 85 students is significantly below the recommendations on school size, operating with only one-half class per grade (1-8). The ARC spent a considerable amount of time throughout the Review discussing the unique nature of Three Bridges Public School within the Board and the community it serves. It is the only elementary school that shares a boundary for the same grades (1-8) with another elementary school (St. Jacobs Public School). This unique arrangement originated in the late 1960’s as the Board was formed from the amalgamation of the multiple smaller school boards in the current Region of Waterloo. The precursor school board (Woolwich Township School Area Board) operated Three Bridges Public School as a school to serve the Mennonite community in the area by providing public education. A review of historical Board meeting minutes reveals the Board at the time had expressed concerns with retaining this population when discussing potential changes to the delivery of elementary school services within the Board. No mention of the ‘understandings’ under which Three Bridges Public School currently operates could be found in the historical minutes; however, post-amalgamation, the precursor Board (then a transitional Committee under the newly formed Waterloo County District School Board) recommended that “…consideration be given to their religious beliefs in so far as possible.” The minutes of this Committee meeting were then moved to be received by the Waterloo County District School Board on July 24, 1969. The motion was carried. Currently Three Bridges Public School serves a diverse Mennonite population, comprised of approximately five different sects; Old Order, Old Colony, David Martin, Markham Conference, and Crystalview/Mid-West Fellowship who attend the school together. Many of the students attending the school have a significant historical connection to the facility in that multiple generations of their families have attended over the years. Three Bridges Public School families have indicated that the rural character of the school and location are also reasons they choose to send their children there. This is a community that, for the most part, has other educational options in their parochial schools, though they choose to attend Three Bridges Public School. As the ARC proceeded through the review process, conversations with the Three Bridges Public School community indicated that any change involving Three Bridges Public School (renovation/rebuild, boundary change, closure, etc.) would likely result in a loss of some enrolment for the Board. Depending upon the nature of the change, it is estimated the Board could experience a loss of up to 65% of the existing and future Three Bridges Public School students to the parochial system. STATUS: Board Policy 4000 – Pupil Accommodation Review requires a 60-day period between the submission of the ARC’s Accommodation Report and Recommendations and when the Board of Trustees can make a final decision regarding the future of the schools under review. This requirement has now been met. Throughout this 60-day period, Board administration reviewed the ARC’s recommendations. As required by Section 2.9 of Board Policy 4000 – Pupil Accommodation Review, the staff analysis of the ARC Accommodation Report, is being presented at this time. A subsequent report will present the administrative recommendations. Once presented with both the ARC and administrative recommendations, the Board of Trustees will make a final decision regarding the future student accommodation in the review area.
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Administrative Response to ARC Recommendations As mentioned above, the Woolwich and Wellesley ARC recommended two scenarios for the Board to consider; one that included the continued operation of Three Bridges Public School as a Board elementary facility (Status Quo Scenario), and one that did not (Scenario 10a). Aside from the obvious difference of a Three Bridges Public School closure and resulting boundary changes, the two scenarios the ARC has recommended are similar in all other respects. The WRDSB conducts an ARC to determine whether or not a school should be considered for closure according to parameters which the Board establishes. The fundamental concerns that precipitated the review;
• declining enrolment and surplus capacity • facility condition and equity • small school organizations
clearly indicate that the ARC’s recommendation of Status Quo cannot be supported. The following is the analysis as it relates to each of the ARC’s recommendations for Scenario 10a. 1. ARC Recommendation #1: Close Three Bridges Public School Three Bridges Public School has served the rural conservative Mennonite community of the area for a significant period of time. Its operation as an elementary school has allowed the Board to service this community for whom attendance at other Board elementary schools may not be an option. However, the small school organization, surplus capacity at other review area schools, higher staffing costs (ratios), maintenance costs, and necessary facility upgrades make its continued operation as a standard elementary facility an issue of concern to the Board. Three Bridges Public School is the Board’s smallest elementary school organization with an enrolment of approximately 85 students (grades 1-8) (see Table 2). This small elementary school organization requires that classes be organized as combined grades. For the 2012/2013 school year Three Bridges Public School was organized with four classes, each a combined grade. Board Policy 3002- Elementary School Size and Configuration recommends ideal school sizes of 350-400 pupils (JK-6) and 500-650 pupils (JK-8) based on the premise that multiple classes per grade level benefit student achievement. Enrolment at Three Bridges Public School is far from meeting these guidelines and is not projected to significantly increase in the foreseeable future. The small school organization of Three Bridges Public School results in a higher ratio of non-teaching staff. The Board currently assigns a full-time principal, secretary, and custodian to Three Bridges P.S along with 17.5 hours of library clerk time (see Table 4). TABLE 4: Non-teaching staff Woolwich Wellesley Review Area schools
School Enrolment (2012/2013) Administrator Custodian
(40 hrs) Library
(hrs) Secretary
(35hrs) Floradale P.S. 270 1 2 21 1 Linwood P.S. 429 1.5 2.75 21 1.4 St. Jacobs P.S. 315 1 2 25 1
Three Bridges P.S. 83 1 1 17.5 1 The Ministry of Education provides funding for school administrators as part of the Grants for Student Needs (GSN). Full funding for the salary and benefits of an elementary school principal is provided for all elementary schools with greater than 50 pupils (Grants for Student Needs – Legislative Grants for the 2013-2014 School Board Fiscal Year Sec. 17(4)). However, in a 2012 memo (2012:B5) summarizing the GSN for the 2012-2013 school year, the Ministry of Education indicated that it ‘will examine the incentives built into the GSN that encourage school boards to establish and maintain small and/or under-utilized schools, particularly in urban areas, with the goal of implementing changes in the 2013-14 school year.’ While no further details were provided in the GSN summary memo for the 2013-2014 school year, it is believed that ‘small and/or undersized schools’ will remain an element of the Ministry of Education’s cost efficiency efforts moving forward. It is anticipated that this funding will not continue and consequently there will be no financial support for the additional administrative staffing. Expenditures to support a small school organization consume resources that could be spent to support student learning across the Board.
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As previously mentioned, the continued operation of Three Bridges Public School will require a significant maintenance and capital commitment by the Board moving forward. As Table 5 indicates, facility maintenance and capital costs over the next ten years for Three Bridges Public School is estimated to be approximately $680,000. While the absolute costs appear minimal compared to other schools in the review area, when the anticipated maintenance and capital costs are normalized by the pupil place capacity (OTG) of the facilities, Three Bridges Public School comes in at $9,855 per pupil. This is at the higher end of the schools in the review area and when compared to the cost to build new, it becomes clear that the facility is one of the more expensive to maintain, and is in poorer condition overall. TABLE 5: Review Area facility maintenance and capital costs by OTG and as a proportion of new construction costs
School OTG Capacity
Maintenance and Capital
Costs
$ Funded if Built
New
Maintenance and Capital Costs/OTG Capacity
Renewal needs/$ Funded
new Floradale P.S. 322 $0.73 M $6.73 M $2,267 10.8% Linwood P.S. 527 $3.2 M $9.98 M $6,072 32.1% St. Jacobs P.S. 351 $5.4 M $7.13 M $15,385 75.7%
Three Bridges P.S. 69 $0.68 M $1.61 M $9,855 42.2% The continued operation of Three Bridges Public School as a standard elementary facility consumes a disproportionate amount of Board resources for the small student population it serves. Given the fact that there exists ample surplus space in the other review area schools (See Table 2) to accommodate all the existing and projected Three Bridges Public School enrolment, a financial case can be made for the closure of the facility and accommodation of the students at other Review Area schools. Table 6 details the annual site specific costs of operating the facility; including non-teaching staff, and utilities and maintenance. It is anticipated that the closure of Three Bridges Public School would save the Board approximately $350,000 in reduced non-teaching staff, and facility maintenance costs on an annual basis. A decision to close the facility would be consistent with the ARC’s Review Objectives, as well as with previous Board decisions pertaining to small school organizations in an Accommodation Review. TABLE 6: Three Bridges Public School site specific annual operations costs
Site Specific Staffing Costs (salary and benefits) Administrator $127,408 Custodial $57,518 Secretary $56,856 Library $22,857
Facility/Maintenance Costs Hydro (2010) $10,827 Natural Gas (2010) $5,196 Grounds Maintenance (2010) $1,620 Amortized 10 Yr Renewal Costs $68,000
Total Operating Expenses $350,282 While the closure of the facility would save the Board significant annual operational expenses, concerns have been raised by the ARC that a Three Bridges Public closure could lead to a loss of enrolment for the Board. Additional Considerations The rural location and character of the school, along with the ‘mono-culture’ of the school population, have been identified as the main contributing factors that have allowed the Board to make inroads with the local Mennonite community with respect to public education. The closure of the facility is likely to lead to a loss of enrolment as a significant portion of the population is anticipated to exercise their other educational options (parochial schools). The different Mennonite sects comprising the population of Three Bridges Public School have varying degrees of comfort with public education. Through discussions with the community, ARC members, and the review area school administrators, it has been estimated that up to 65% of the schools population could not/would not attend another Board elementary facility should Three Bridges Public School be closed. Further, it has also been suggested that losing the Three Bridges Public School enrolment at the elementary level could translate into a decrease in enrolment at the secondary school level as well, especially
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the Supervised Alternative Learning (SAL) program and associated options connected to the Rural Education Services program under development and implementation by the WRDSB. It is our fundamental belief that these students are best served by the public education system. Since Ministry of Education funding is determined primarily by enrolment through the Grants for Student Needs (GSN), concerns have been raised that the loss of enrolment from the Three Bridges Public School community would translate into reduced funding for the Board. Table 7 details the potential reduction in funding as a result of the loss of Three Bridges Public School enrolment in both the elementary and secondary panels. Revenue losses were calculated for scenarios reflecting a 0%, 35%, 65% and 100% decrease in enrolment from the Three Bridges Public School community. Elementary and secondary ‘Net Regular Grant Contributions’ represent the funding per pupil provided by the GSN less the amount provided for direct classroom related costs (Teacher, Prep. Time, Supplies, SERT). This net amount represents the annual funding that would be lost as a result of the enrolment reduction. Therefore these amounts represent per-pupil funding within the GSN that support the non-classroom activities. Special education funding and teacher costs were excluded from the calculation as these represent revenue that is directly proportional to the enrolment and would be completely offset by the reductions in the amount of teachers required as a result of enrolment loss. TABLE 7: Three Bridges Public School enrolment loss funding impact
Three Bridges P.S. Enrolment Loss Scenario 0% 35% 65% 100% Three Bridges P.S. Enrolment 2013-14 87 87 87 87 Secondary Enrolment 2013-14 (Including SAL) 35 35 35 35 Net Elementary Enrolment Loss (2013-14) 0 30 57 87 Net Secondary Enrolment Loss (2013-14) 0 12 23 35 Elementary Net Regular Grant Contribution(2013-14) $1,908 $1,908 $1,908 $1,908 Secondary Net Regular Grant Contribution(2013-14) $2,362 $2,362 $2,362 $2,362
Total Revenue Loss $0 $85,584 $163,082 $248,666 As Tables 6 and 7 illustrate, even with a loss assumption of 100% of the enrolment derived from the Three Bridges Public School community, the financial savings from the closure of the facility ($350,000) are significantly greater than the revenue loss tied to enrolment ($250,000). Tables 6 and 7 only evaluate the closure of Three Bridges Public School in isolation. While in the review area as a whole, their exists ample surplus spaces to accommodate the Three Bridges Public School enrolment, Scenario 10a would see the majority of the retained students transported to, and accommodated at Floradale Public School. Currently, because of the small population of Three Bridges Public School and its concurrent boundary with St. Jacobs Public School, most students are picked up along with St. Jacobs Public School students and transported to Three Bridges Public School after a stop at St. Jacobs Public School. With reduced enrolment as a result of a Three Bridges Public School closure it is believed that the retained students could be accommodated on the existing routes servicing Floradale Public School. Similarly, under the 65% loss assumption (which the ARC considered most likely) it is believed that the retained portion of the Three Bridges Public School enrolment could be accommodated utilizing surplus space within Floradale Public School. However, should enrolment losses be less than expected from a Three Bridges Public School closure additional transportation and accommodation costs (up to 3 portables in 0% loss scenario) could be incurred. Table 8 illustrates the annual financial savings and enrolment loss funding reductions within the context of the ARC’s Scenario 10a recommendation (Three Bridges Public School Closure).
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TABLE 8: Anticipated annual savings: Three Bridges Public School closure (Scenario 10a) Scenario 10a – Enrolment loss assumptions
Three Bridges P.S. Closure Three Bridges Public School site specific annual operational savings
0% 35% 65% 100%
Site Specific Staffing Costs (salary and benefits) Administrator $127,408 $127,408 $127,408 $127,408 Custodial $57,518 $57,518 $57,518 $57,518 Secretary $56,856 $56,856 $56,856 $56,856 Library $22,857 $22,857 $22,857 $22,857
Facility/Maintenance Costs Hydro (2010)1 $6,327 $7,827 $10,827 $10,827 Natural Gas (2010) $5,196 $5,196 $5,196 $5,196 Grounds Maintenance (2010) $1,620 $1,620 $1,620 $1,620 Amortized 10 Yr Renewal Costs $68,000 $68,000 $68,000 $68,000
Other Transportation (Bus Run) $0 $0 $37,000 $37,000
Sub-Total: Operating Savings $345,782 $347,282 $387,282 $387,282
Three Bridges P.S. Pupil Funding Reduction Three Bridges P.S. Enrolment 2013-14 87 87 87 87 Secondary Enrolment 2013-14 (Including SAL) 35 35 35 35 Net Elementary Enrolment Loss (2013-14) 0 30 57 87 Net Secondary Enrolment Loss (2013-14) 0 12 23 35 Elementary Net Regular Grant Contribution (2013-14)
$1,908 $1,908 $1,908 $1,908
Secondary Net Regular Grant Contribution (2013-14)
$2,362 $2,362 $2,362 $2,362
Sub-Total: Revenue Loss $0 $85,584 $163,082 $248,666 Annual Net Savings/(Loss) $345,782 $261,698 $224,200 $138,616
One time portable costs (Floradale P.S.) $25,000 $20,000 $0 $0 1 Hydro savings costs vary by scenario accounting for the need to power 2 or 3 portables to accommodate a portion of the Three Bridges Public School elementary enrolment under 35%, and 0% loss assumptions respectively.
While the loss of elementary and secondary enrolment would decrease the funding received from the Ministry of Education, Table 8 illustrates that the closure of Three Bridges Public School and the elimination of its site specific costs under each loss assumption would not result in a financial loss for the Board overall. The fact that the actual savings range from $139,000 to $346,000 (depending on the number of students retained) reflects the higher costs of operating small schools. The provincial funding received for school boards does not support the operation of small or underutilized school sites. The supplements required to operate a small school draw financial resources away from the prescribed operations of the Board supporting all students. With respect to the implementation of the facility closure, the provision allowing Three Bridges Public School students enrolled at the school during the 2013/2014 school year the opportunity to choose to attend either Floradale Public School or St. Jacobs Public School until the completion of Grade 8 is logical when one considers the distribution of Three Bridges Public School students and the proposed boundary. As mentioned in the ARC Accommodation Report, the majority of the Three Bridges Public School population residing in the concurrent Three Bridges and St. Jacobs Public Schools boundary occupy the northern most portion of the boundary, to be directed to Floradale P.S under Scenario 10a. Through consultations with the Three Bridges Public School community it was determined that should Three Bridges Public School close, Floradale Public School would be the school the community would be most comfortable with attending. Allowing the option for Three Bridges Public School students who would not reside in the new Floradale Public School boundary to attend either Floradale Public School or St. Jacobs Public School would ease the transition for this community and hopefully increase retention of Three Bridges Public School enrolment.
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In a further effort to increase the retention of Three Bridges Public School enrolment the ARC recommended that the provision of allowing a choice to attend Floradale Public School or St. Jacobs Public School upon the closure of Three Bridges Public School be extended to siblings of students attending the school during the 2013/2014 school year as well. While it may somewhat increase the retention of Three Bridges Public School enrolment, the sibling provision and the requisite transportation of an indeterminate duration needed is in contravention to Board Procedure 4260 - Student Transportation with respect to an end date, and limitation to existing pupils. Section 11 of Board Procedure 4260 referring to grandparenting provisions states;
11.1 In some instances it may be necessary to phase-in the implementation of transportation
changes in order to provide a transition period for the community. The following conditions will be applied when transportation service is grandparented. 11.1.1 A definitive end date must be declared as of the implementation of the change; 11.1.2 The provision of service may only be extended to pupils who are currently enrolled; 11.1.3 Transportation service will be provided in a manner consistent with the distance
guidelines established by the Board. 2. ARC Recommendation #2: Modify the boundary between Floradale Public School and St. Jacobs Public School The closure of Three Bridges Public School provides an opportunity to adjust the boundaries between St. Jacobs and Floradale Public Schools. The ARC has proposed that the current boundary between St. Jacobs Public School and Floradale Public School be moved southward as described in the ARC Accommodation Report. This boundary change would capture the majority of the existing Three Bridges Public School population currently residing in the concurrent Three Bridges and St. Jacobs Public Schools boundary. Community consultations have indicated that the boundary change to Floradale Public School for the Three Bridges Public School families would be considered the least objectionable should Three Bridges Public School close, and would yield the highest retention of Three Bridges Public School students. While the majority of students within the proposed new portion of the Floradale Public Schools boundary attend Three Bridges Public School there are a few students attending St. Jacobs Public School. To accommodate these students the ARC proposed to allow the students in Gr. 7 during the 2013/2014 school year the opportunity to finish out their elementary career at St. Jacobs P.S for Gr. 8 in 2014/2015. The ARC also recommended that any siblings could join them in remaining at St. Jacobs Public School for the 2014/2015 school year; however they would be required to attend Floradale Public School as per the new boundary for the 2015/2016 school year and beyond. In the case of both, 2014/2015 St. Jacobs Public School Gr. 7’s and their siblings, transportation would be provided based on eligibility. The ‘grandparenting’ of the St. Jacobs Public School Gr.7’s and siblings for one year is consistent with previous elementary school boundary change transitions approved by the Board. 3. ARC Recommendation #3: Modify the boundary between Floradale Public School and Linwood Public School As part of its review the ARC also looked at Transportation distances/time in the review area. It was noted by ARC members that there are some areas where a student’s home school is not the closest school. This can, in some instances, lead to bus ride times that are potentially longer than necessary than if the students could attend the closer facility. The boundary between Floradale Public School and Linwood Public School is one such area. The area around Wallenstein is currently the western most area of Floradale Public School boundary. This area, at one time, was directed to Linwood Public School, however when Linwood Public School became overcrowded, the Board approved a boundary change directing this area to Floradale Public School Both Linwood Public School and Floradale Public School currently have surplus capacity (see Table 2). Should Three Bridges Public School be closed and the proposed boundary change between Floradale Public School and St. Jacobs Public School occur, the enrolment at Floradale Public School is expected to increase with the addition of the retained Three Bridges Public School population. This would allow the boundary change between Floradale Public School and Linwood Public School to occur with no net increase or decrease in the enrolment of Floradale Public School as the expected student yield from the two areas are similar. Similar to the boundary change described in recommendation #2, Grade 7 students and their siblings would be offered the opportunity to attend Floradale Public School for the 2014/2015 school year so that the Grade 7’s may avoid a transition prior to graduating to high school. The recommendation that transportation would also be provided for the 2014/2015 school year based on transportation eligibility is consistent with previous elementary boundary changes approved by the Board.
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4. ARC Recommendation #4: Rebuild St. Jacobs Public School In its Accommodation Report the ARC identified St. Jacobs Public School as a facility that is anticipated to require significant capital expenditures as a result of the condition of its existing infrastructure as well as the costs associated with implementing the Full-Day Kindergarten (FDK) program, meeting accessibility requirements, and bringing the library and gym spaces in line with system benchmarks the Board is trying to achieve (See Table 3). When compared to the estimated costs to build a new facility of the same size the ARC felt that there was justification for the Board to consider a rebuild of the St. Jacobs Public School facility. Ryerson Public School and Floradale Public School were rebuilt with the same reasoning utilizing funds available through the Ministry of Educations Prohibitive-to-Repair (PTR) funding initiative (note: this is no longer available). Unlike Ryerson P.S. and Floradale Public School however, St. Jacobs Public School does not have the same large (10+ acre), flat site where the school could be easily reconstructed on a vacant portion of the land while still providing adequate play space until the older facility is demolished, and the land reclaimed. Further complications in a rebuild effort may arise from the fact that the Township of Woolwich recently (June 18, 2013) ‘listed’ St. Jacobs Public School as a property of cultural heritage value. Listing a property on the municipal heritage register provides the property with an interim measure of protection in that owners must provide the council of the municipality at least 60 days’ notice of their intention to demolish or remove a building or structure on the property. This allows the municipality time to decide whether to begin the process to ‘designate’ the building, providing it with more long term protection under the Ontario Heritage Act. While a rebuild of St. Jacobs Public School could provide an efficient remedy to the challenges of the facility identified by the ARC, the costs to do so will be significant. The project will require approval and funding from the Ministry of Education, and will need to be evaluated and prioritized amongst other Board projects on the annually compiled Capital Priorities list. In addition, plans to demolish the existing building could be complicated by the heritage ’listing’. 5. ARC Recommendation # 5: Consider Boundary Study between Floradale and Conestogo Public Schools Conestoga Public School is located approximately 5 kilometres west of St. Jacobs Public School in the settlement of Conestogo. Its boundary, like most rural schools, is large due to the low population density of the area. It extends from just north of Breslau to the northern most edge of the Board’s jurisdiction, adjacent to the Floradale Public School boundary (see Fig. 2 in Appendix I). Conestogo Public School (JK-8) has a capacity of 247 pupil places and had an enrolment of approximately 339 total students during the 2012/2013 school year. To accommodate its enrolment the school utilizes 5 portables. Conestogo Public School was not included in the Woolwich and Wellesley Townships Accommodation Review area, as it was not considered to be able to offer potential solutions to the identified issues that precipitated the review. The physical location of the school was considered too close to St. Jacobs Public School to offer much in the way of boundary change options. Also, while the school accommodates an enrolment above its capacity, the total population of the Conestogo Public School is well below the ideal JK-8 school size identified in Board Policy 3002- Elementary School Size and Configuration. It was felt that any possible boundary adjustments to the northern portion of the boundary in order to better match the school’s enrolment to capacity and to consume some of Floradale Public School surplus spaces would have been to the detriment of the intentions of Board Policy 3002 at Conestogo Public School However, it is recognized that some of the Conestogo Public School boundary is closer to Floradale Public School than to Conestogo Public School, and that a boundary change could result in shorter bus ride times for students living in that area. Summary The largest issue identified by the ARC during this Accommodation Review has been the potential closure of Three Bridges Public School and its impact on the community it serves. The ARC and Board administration have examined the implications of both the Status Quo (operating Three Bridges Public School as is), and its closure as a standard elementary school facility. It is recognized that the closure is consistent with the majority of the review objectives, Board Policy 3002, and mirrors previous Board decisions with respect to small schools. It is also logical from a financial standpoint, owing to the condition, staffing and operational costs, nearby vacant pupil places, and the position of the Board with respect to the $4.6M fiscal review . However, it is also recognized that the school serves a population who may not have the option of attending another Board facility should Three Bridges Public School close, and the Board may experience an enrolment loss as a result. Nonetheless, should this enrolment loss materialize, there remains a net financial savings to the Board.
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The preceding report provided an analysis by Board administration on the Recommendations of the Woolwich and Wellesley Townships Elementary Schools Pupil ARC presented to the Board on March 18, 2013 (Appendix I). The Board is currently in a review of the Rural Education Strategy, and the outcome of this Accommodation Review will inform the options available to the Board, particularly as it relates to the use of the Three Bridges Public School facility. COMMUNICATIONS: To ensure the involvement of an informed local community, the administrative analysis will be presented to the Committee of Whole on September 23, 2013, which is open for members of the public to attend. Notice and details of the meeting were provided to the schools involved in the Review through the school’s administrators as well as ARC members. FINANCIAL IMPLICATIONS: No financial implications. STRATEGIC PLAN: The six strategic directions that are used to guide the work of the Board are:
• Engaging students, families, staff and communities • Fostering wellness and well-being • Pursuing student achievement and success for all • Embracing diversity and inclusion • Championing quality public education • Promoting forward-thinking.
This report relates to the following strategic directions:
• Engaging students, families, staff and communities • Pursuing student achievement and success for all • Championing quality public education • Promoting forward-thinking.
RECOMMENDATION: No recommendation. For information only.
APPENDIX I
March 8, 2013 Linda Fabi Director of Education Ted Martin Chairperson, Board of Trustees Waterloo Region District School Board 51 Ardelt Avenue, Kitchener N2C 2R5
Re: Woolwich and Wellesley Townships Elementary Schools Pupil Accommodation Review – Accommodation Report and Recommendations of the
ARC Dear Director Fabi and Chairperson Martin, We are submitting herewith our Accommodation Report and Recommendations as fulfillment of our role as the Accommodation Review Committee (ARC) for the Woolwich and Wellesley Townships Elementary Schools Pupil Accommodation Review, initiated by the Waterloo Region District School Board (WRDSB) on February 14, 2011. The main purpose of this report is to share the ARC’s findings and recommendations with respect to the accommodation of students in the Woolwich and Wellesley Townships Review area of the WRDSB, which includes Floradale, Linwood, St. Jacobs, and Three Bridges public schools. Throughout the review, the ARC met in Committee meetings a total of 17 times, and held four public meetings, as mandated by Board Policy 4000 (Pupil Accommodation Review), which is consistent with the requirements of the Ontario Ministry of Education Pupil Accommodation Review Guideline published June 26, 2009. In accordance with Board Policy 4000, the ARC was comprised of the school principals and up to two school representatives from each of the four schools in the Review, the Review area Superintendent, staff members from the Planning Departments of Woolwich and Wellesley and Facilities staff. We are pleased to note that the recommendations of the ARC for the Woolwich and Wellesley Townships Elementary Schools Pupil Accommodation Review, were confirmed by the ARC following the fourth public meeting. Concurrently with this submission, the Accommodation Review Committee School Accommodation Report and Recommendations will be posted on the Board’s website for members of the public and trustees to review.
Materials not included in this report as appendices, such as ARC meeting minutes, public meeting minutes, notices, flyers and advertisements, early scenarios considered and relevant reports, data and maps can also be viewed online at: http://www.wrdsb.ca/planning/accommodation-review/woolwich-and-wellesley-townships-elementary-schools-accommodation-review or in hard copy at each of the schools involved in the Accommodation Review and at the WRDSB Education Centre in the Director’s office. We believe we have satisfied the Accommodation Review Committee’s role as set out in Board Policy 4000, and trust that the decision made by the Board of Trustees will be in the best interest of the students in the Review Area and Board. Unless called upon, we consider our work as the Woolwich and Wellesley Townships ARC to be complete. Respectfully submitted, The members of the 2011/12 Woolwich and Wellesley Townships Accommodation Review Committee cc: Executive Committee (Senior Administration)
Woolwich and Wellesley Townships Elementary Schools Pupil Accommodation Review
Accommodation Report and Recommendations of the Accommodation Review Committee
March 8, 2013
Table of Contents
Contents
Introduction .................................................................................................. 1
Background .................................................................................................. 1
Woolwich and Wellesley Townships Review Area ....................................... 1
Woolwich and Wellesley Townships Review Area Schools .................................. 2 Accommodation Review Committee (ARC) ................................................. 2
Membership ............................................................................................................... 2 Timelines and Activities ............................................................................................ 4 Public Information and Access ................................................................................ 5
Rationale for a Pupil Accommodation Review ........................................ 5
Objectives .................................................................................................................. 15 Accommodation Review Committee Recommendations ........................... 17
Status Quo ................................................................................................................. 18 Status Quo – Recommendations ............................................................................... 22 Scenario 10a ............................................................................................................. 22 Scenario 10a – Recommendations ............................................................................ 29
Conclusion................................................................................................ 30
Executive Summary This report is intended to advise and inform the Waterloo Region District School Board (WRDSB) Board of Trustees of the information gathered and consultation conducted by the Woolwich and Wellesley Townships Accommodation Review Committee (ARC) in order to develop the final recommendations provided in this report. A final decision on the outcome of the pupil accommodation review is to be made by the Board of Trustees. Throughout the review process the ARC spent a great deal of time on two subjects; the condition and equity of the St. Jacobs P.S. facility, and the future of Three Bridges P.S. as an elementary school facility in the WRDSB. In the end the ARC could not reconcile the continued operation of Three Bridges P.S. within the context of the Review Objectives and the unique role the school plays in the local conservative Mennonite community. Ultimately the ARC agreed to present two scenarios to Trustees for consideration. One scenario (Status Quo) includes the continued operation of Three Bridges P.S.; while the other (Scenario 10a) does not. The following is a brief outline of the ARC’s recommendations for each Scenario provided in this report: Status Quo
1. To rebuild St. Jacobs P.S. 2. To construct a bus lay-by at Three Bridges P.S. 3. To consider a future boundary study between Floradale P.S. and Conestogo P.S.
Scenario 10a
1. To close Three Bridges P.S. 2. To modify the boundary between St. Jacobs P.S. and Floradale P.S. 3. To modify the boundary between Floradale P.S. and Linwood P.S. 4. To rebuild St. Jacobs P.S. 5. To consider a future boundary study between Floradale P.S. and Conestogo P.S.
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Introduction This report is intended to advise and inform the Waterloo Region District School Board (WRDSB) Board of Trustees of the information gathered and consultation conducted by the Woolwich and Wellesley Townships Accommodation Review Committee (ARC) in order to develop the final recommendations provided in this report.
Background In June 2009, the Ontario Ministry of Education released a revised version of the Pupil Accommodation Review Guideline. The Guideline provides direction to school boards regarding public accommodation reviews undertaken to determine the future of a school or group of schools. The Guideline ensures that where a decision is taken by a school board regarding the future of a school, that decision is made with the full involvement of an informed local community and it is based on a broad range of criteria regarding the quality of learning experience for students. In November 2009, the WRDSB approved its own policy, Board Policy 4000, following the provincial Guideline. This policy establishes the process for undertaking pupil accommodation reviews. On February 14, 2011, a report titled Report on Elementary Boundary Studies and Accommodation Reviews 2010-2011 was presented at the Committee of the Whole Meeting. Based on the recommendations of this report, the WRDSB (Board) approved a motion to initiate a pupil accommodation review in the Woolwich and Wellesley Townships area. The schools identified in the review area include: Floradale, Linwood, St. Jacobs and Three Bridges Public Schools
Woolwich and Wellesley Townships Review Area The Townships of Woolwich and Wellesley consist of a mix of urban and rural areas, serving diverse communities that range from conservative Mennonite to urban residents. The area is mostly rural and agricultural but also contains small settlement areas such as the towns of St. Jacobs, Floradale, Heidelberg, St. Clements, Hawkesville, Wallenstein and Linwood. The Woolwich and Wellesley Townships Accommodation Review area is comprised of the attendance area boundaries of Floradale, Linwood, St. Jacobs, and Three Bridges Public Schools (see figure 1).
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Figure 1: Woolwich and Wellesley Townships Accommodation Review Area
Woolwich and Wellesley Townships Review Area Schools The schools in the review area include:
1. Floradale Public School (JK-8) 2. Linwood Public School (JK-8) 3. St. Jacobs Public School (JK-8) 4. Three Bridges Public School (1-8)
Accommodation Review Committee (ARC) The purpose of the ARC, as outlined in the Terms of Reference, was to conduct a review of the identified Woolwich and Wellesley Townships elementary schools in order to advise and provide recommendations that will inform the Board of Trustees as they determine the pupil accommodation strategy for this community.
Membership The ARC membership was composed of both community members and WRDSB staff as outlined in Board Policy 4000.
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Floradale P.S. Principal: Vlad Kovac Parent Representatives: Christine Shantz, Brenda Martin Linwood P.S. Principal: Geoff Suderman-Gladwell Parent Representatives: Krista Edwards, Cindy Weber St. Jacobs P.S. Principal: Paul Milne Parent Representatives: John Krupicz, Sheila Bauman (until February 2, 2012), Keith Trask (as of February 2, 2012) Three Bridges P.S. Principal: Wayne Dunham Parent Representatives: Elmer Horst, Steven Snyder (alternate representative Andrew Horst) Area Superintendent Superintendent of Education: Diane DeCoene Municipal Representation John Scarfone: Manager of Planning, Township of Woolwich Sarah Peck: Planner, Township of Wellesley Community Representation Susan Martin WRDSB Facilities Staff (Planning) Manager of Planning: Dennis Cuomo Manager of Capital Projects: Ronald Dallan Senior Planners: Nathan Hercanuck, Lauren Manske Recording Secretary: Andrea Kean Other Board Staff (who attended meetings): Vice-Principals: Susan Marchiori (Linwood P.S.) Controller of Facilities: Ian Gaudet Facility Manager: Barry Easter Project Coordinator: Mel Lavoie Manager of Communications: Abigail Dancey Communications Assistant: Lynsey Meikle Manager of Enrolment: Nick Landry
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It is important to note that Board staff were non-voting members of the ARC. Additional representation from the broader community was sought; however, no interest was expressed.
Timelines and Activities The ARC ensured that the minimum timelines as established by both the Ministry of Education Guideline and Board Policy 4000 for the accommodation review process were met. Throughout the review, a total of four public meetings were held to provide opportunity for a wide range of school and community groups to participate in the consultation. Public meetings were advertised in two local area newspapers (the Waterloo Region Record, and the Woolwich Observer), on the WRDSB main website and school websites, the WRDSB twitter feed, in school newsletters/emails and in notices sent home with each student in the review area. Also, a specific effort was made to engage the Mennonite Three Bridges P.S. community by hosting a meeting for that group at the school including a low-German speaking interpreter. The following is a summary of the activities of the ARC prior to submission of this report.
ACTIVITY DATE LOCATION Board approval to commence review
February 14, 2011 Education Centre
ARC Meeting #1 September 22, 2011 St. Jacobs P.S. ARC Meeting #2 October 11, 2011 Three Bridges P.S. Public Meeting #1 October 18, 2011 Elmira District S.S. ARC Meeting #3 October 26, 2011 Linwood P.S. School Tours November 5, 2011 All schools ARC Meeting #4 November 10, 2011 Floradale P.S. ARC Meeting #5 November 23, 2011 St. Jacobs P.S. ARC Meeting #6 December 7, 2011 Three Bridges P.S. ARC Meeting #7 January 18, 2012 Linwood P.S. ARC Meeting #8 February 2, 2012 Floradale P.S. ARC Meeting #9 February 22, 2012 St. Jacobs P.S. ARC Meeting #10 March 6, 2012 Three Bridges P.S. ARC Meeting #11 March 21, 2012 Linwood P.S. Public Meeting #2 April 4, 2012 Elmira District S.S. Three Bridges PS Community Meeting
May 8, 2012 Three Bridges PS
ARC Meeting #12 May 24, 2012 Floradale P.S. ARC Meeting #13 June 6, 2012 Linwood P.S. ARC Meeting #14 September 20, 2012 Floradale P.S.
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ARC Meeting #15 October 3, 2012 St. Jacobs P.S. Public Meeting #3 October 18, 2012 Elmira District S.S. ARC Meeting #16 October 23, 2012 Three Bridges P.S. ARC Meeting #17 November 21, 2012 Linwood P.S. Public Meeting #4 January 24, 2013 Elmira District S.S.
Public Information and Access In addition to the four public meetings, all relevant accommodation review information was posted on the WRDSB website and available in hard copy in binders kept at each of the schools in the review area and at the Education Centre. Minutes of the ARC meetings and public meetings where a formal presentation was conducted were posted on the WRDSB website for public access. Information provided at public meeting open houses and other requested information was also posted on the WRDSB website and made available in hard copy.
Rationale for a Pupil Accommodation Review There were several reasons the WRDSB initiated an accommodation review for the Woolwich and Wellesley Townships area. The ARC focused on the following key issues:
Small school organizations Declining enrolment/surplus space Facility condition and equity
Small school organizations
In June 2010, the WRDSB passed a new policy (Board Policy 3002) related to elementary school size and configuration. This policy references the research presented in the Good Schools Standing Committee Report of the same name dated May 17, 2007, which states that when considering Pupil Accommodation Reviews, the following guiding principles are to be used:
JK-8 facilities will ideally have a built capacity of between 500 and 650 students;
JK-6 facilities will ideally have a built capacity of between 350 and 400 students;
JK-6 facilities will be designed to accommodate future expansion to accommodate a JK-8 configuration where practical;
That planning for elementary school configurations consider the following: o Have at least 2 classes per grade in JK-6 to support professional
learning communities; o Have more than 2 classes per grade in Grades 7 and 8 to support
program;
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o Minimize the number of schools with FTE enrolments over 650 students, including the Full-Day Kindergarten program, wherever possible;
o Be sensitive to the impact on elementary students transitioning between schools
The schools in the Woolwich and Wellesley review area do not meet the majority of these criteria. Table1 outlines the sizes and configuration of each of the facilities.
Table 1: Woolwich Wellesley Review School Size and Configuration
School OTG* Capacity 2012/2013 Enrolment (Total/FTE) Organization
Floradale P.S. 322 (340)** 270/270 JK-8 Linwood P.S. 527 (551)** 429/429 JK-8
St. Jacobs P.S. 351 (406)** 315/282*** JK-8 Three Bridges P.S. 69 83 1-8
Total 1269 (1366)** 1097/1064** *OTG – On The Ground capacity does not include portables/portapacks **Anticipated school capacity after FDK implemented (after Sept. 2014) *** St. Jacobs P.S. FTE enrolment with current Half-Day Kindergarten program
Throughout the process the ARC discussed at length the guiding principles outlined in Board Policy 3002 and their impact/relevance to rural areas and specifically the schools in the Review area. The ARC recognized that larger school organizations, as outlined in the Policy, may have a beneficial impact on student learning by reducing the potential for combined grades in a school organization and increasing the number of teachers teaching a particular grade level; thereby supporting professional learning communities. However, it was also recognized the challenges the geography of rural communities presents in achieving the outcomes outlined in Policy 3002. Aside from a few small suburban pockets of development, rural areas generally lack the population density to practically achieve the recommended school sizes, with transportation distances being the key obstacle. In order to achieve the recommended sizes the boundaries for rural schools would have to be significantly larger than they currently are to capture enough students, leading to either increased bus ride times or more school bus runs picking up fewer students. The ARC therefore felt that given the rural nature of their community it would be challenging to meet the letter of the policy recommendations. However, they could try to achieve the intent of Policy 3002 by balancing the enrolments between the facilities so that each school community might share in the benefits of increased school size (enrolment).
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Declining enrolment/surplus space Over the past 10 years the overall elementary school enrolment in the Review area schools has experienced a decline of approximately 12.5% (see Table 2). While enrolment has increased at Floradale P.S., this has been offset by steeper declines at Linwood P.S., and to a lesser degree Three Bridges P.S. Overall, St. Jacobs P.S. has maintained a stable enrolment. Table 2: Total Enrolment Review Area Schools 2002-2012
School 2002 2004 2006 2008 2010 2012 Change 2002-2012
Floradale P.S. 220 243 283 261 251 270 23% Linwood P.S. 603 588 559 504 469 429 -29%
St. Jacobs P.S. 316 316 318 333 319 315 -0% Three Bridges P.S. 114 107 109 101 83 83 -27%
Total 1253 1254 1269 1199 1122 1097 -12.5% It is important to note that the historical enrolment numbers displayed in Table 2 represent elementary enrolment inclusive of students enrolled in the Supervised Alternative Learning for Excused Pupils (SALEP) program for the years 2002-2006. These students were counted in the enrolments at the school however may not have necessarily been in attendance at the facility. The SALEP program was an option under the Education Act for secondary students (age 14-17) who were not experiencing success in a normal school setting, to be legally excused from attendance at a school. Students in the program would participate in activities responsive to their immediate needs (work, youth program, life skills, volunteer work) intermittently supervised by a Board SALEP Facilitator. In 2007 the WRDSB instituted a change and all SALEP students were counted on the secondary school register. The ARC felt it important to distinguish between the historical elementary enrolments that include SALEP (2002-2006) and the historical enrolments that do not (2008-2012). From 2002 to 2006 overall enrolment in the Review area was stable, although significant increases at Floradale P.S. were offset by declines at Linwood P.S. Post SALEP, overall enrolment in the review Area declined 8.5%, with Linwood P.S. continuing to decline, as well as Three Bridges P.S. Table 3: Total Enrolment Review Area Schools 2002-2012
School 2002 2004 2006 2008 2010 2012 Change 2002-2006
Change 2008-2012
Floradale P.S. 220 243 283 261 251 270 28% 3% Linwood P.S. 603 588 559 504 469 429 -7 -14%
St. Jacobs P.S. 316 316 318 333 319 315 0% -5% Three Bridges P.S. 114 107 109 101 83 83 -4% -18%
Total 1253 1254 1269 1199 1122 1097 1% -8.5%
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This reduction in enrolment has, in some cases, led to surplus space (see Table 4) in some of the facilities in the Review Area, raising the question; can the WRDSB operate with fewer schools in the Review Area?
Table 4: Woolwich Wellesley Review School Size and Enrolments
School OTG* Capacity***
OTG* Capacity w/FDK (2014/2015)
2012/2013 Enrolment (Total/FTE) Portables
Floradale P.S. 322 340 270/270 0 Linwood P.S. 527 551 429/429 0
St. Jacobs P.S. 351 406 315/282** 1 Three Bridges P.S. 69 69 83 3
Total 1269 1366 1097/1064** 4 *OTG – On The Ground capacity does not include portables/portapacks ** St. Jacobs P.S. Full Time Enrolment (FTE) with current Half-Day Kindergarten program *** OTG capacity updated to reflect room types/usages in Ministry of Education School Facilities Inventory System
To answer this question the ARC needed to examine whether this enrolment decline was expected to continue or eventually stabilize. Over the next ten years projections indicate that the elementary enrolment in the review area is expected to stabilize and even increase slightly due to a small pocket of residential development in the town of St. Jacobs (see Table %). However, it is expected that some surplus capacity will continue to exist at Floradale and Linwood Public Schools over the long term.
Table 5: Woolwich and Wellesley Review Area Enrolment projections
School Capacity with FDK 2012 2014 2016 2018 2020
Floradale P.S. 340 270 256 256 251 272 Linwood P.S. 551 429 404 418 425 429
St. Jacobs P.S. 406 315 327 360 368 380 Three Bridges P.S. 69 83 88 96 97 90
Total 1366 1097 1075 1130 1141 1171
Facility condition and equity A key element of the Accommodation Review process is examining the current condition and future maintenance needs/costs of each of the facilities in the review area. To this end in the fall of 2011 the Board engaged a consulting firm to provide a report on the Accommodation Review area schools which the ARC considered in forming their recommendations. Facility condition Floradale P.S. Floradale P.S. is located in the northern portion of the review area in the settlement of Floradale on a generous site of 9.84 acres. In the spring of 2010, students at Floradale P.S. moved into a brand new building on its existing site. The school was rebuilt after the Board obtained funds to reconstruct the facility from the Ministry of Education’s
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Prohibitive to Repair (PTR) school renewal initiative. The new facility now has a built capacity of 322 pupil places. Provision for the Full-Day Kindergarten program (FDK) was made at the time of construction and the school has had the program since the 2010/2011 school year, the first year of the program. The school is single storey and is completely accessible. Linwood P.S. Linwood P.S. is located in the town of Linwood in the western end of the review area. Like Floradale P.S., it sits on a generous site (11.17 acres). The facility is a single storey originally constructed in 1966, with additions in 1988, 2000, and 2011. It is the largest school in the review area with a built capacity of 527 pupil places. The most recent addition (2011) was to accommodate the FDK program at the school which was implemented for the 2012/2013 school year. The school is considered to be 96% accessible with only the stage area in the gymnasium and some storage spaces inaccessible. St. Jacobs P.S. St. Jacobs P.S. is located in the Town of St. Jacobs in the southern portion of the review area. Being located in a more urban setting than some of the other schools in the review it has a small site at 4.65 acres. The original school building was constructed in 1929 as a single storey with a full basement that contains some instructional space. Additions to the facility were completed in 1951, 1961, 1968, and 2000. This year St. Jacobs P.S. added one portable to accommodate an additional class. The school is scheduled for FDK implementation for September 2014. A Capital funding request was made to the Ministry of Education for a two room addition to the facility to accommodate the program. Funding approval is currently on hold pending the outcome of the Accommodation Review. Once the addition is constructed the school will have a built capacity of 406 pupil places. The school is considered to be 66% accessible as the entirety of the original 1929 portion of the building is only accessible by stairs. Three Bridges P.S. Three Bridges P.S. is located in a rural setting just outside of the Town of St. Jacobs. It has a small site at 2.85 acres. The original building was constructed in 1872 as a single storey structure with a full basement. Two additions were constructed adding to the facility, one in 1951, and another 1981. Three portables exist on site to accommodate academic classes and a science and tech facility. The school is one of the two smallest in the Board in terms of its capacity at 69 pupil places.
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The school is not scheduled for FDK implementation as the organization for the school is grades 1 to 8. As the basement level is used as instructional space, the school is considered 81% accessible. Review Area Schools Maintenance Needs The consultant conducted an inspection of each of the facilities and identified the current outstanding maintenance items required. As well, the consultant also projected the facilities future expected maintenance needs based on the current condition of each schools unique building components and the expected theoretical useful life of those components. Table 6 provides a summary of the each schools anticipated five and ten year projected maintenance costs.
Table 6: Review Area Schools Anticipated Maintenance needs
School OTG (current)
Total GFA* (m2)
5yr Renewal needs**
10yr Renewal needs**
Floradale P.S. 322 2785 $0 $0.73 M Linwood P.S. 527 4387 $2.38 M $3.16 M
St. Jacobs P.S. 351 2899 $1.81 M $2.1 M Three Bridges P.S. 69 1206 $0.5 M $0.55 M
* Gross Floor Area ** Sum of 5yr and 10yr renewal needs classed ‘high’ or ‘urgent’ Facility Equity All the schools in the review were constructed/renovated at differing time periods. As their methods and materials of construction vary according to the time period in which they were constructed so to do the educational program spaces vary reflecting the standards of the day. While the ARC felt it important to look at the maintenance costs of the existing building components and educational spaces. It also recognized that those existing spaces may be inequitable with the other schools in the review as well as benchmarks the Board is trying to achieve system-wide. During the Review the ARC requested information from the Board related to the benchmarking of specialized educational program spaces, namely library and gym facilities. Library In 2006 Board Learning Services staff conducted a review of Learning Resource Centre (library) spaces across all the Board’s elementary schools. Each library was evaluated on a number of criteria such a small and large group instructional area, accessibility, shelving, circulation area, and a number of other factors consistent with best practices established by the Canadian Association for School Libraries (CASL). Schools were considered to be ‘below standard’ if they achieved an aggregate score below 20 (out of 30).
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Three schools in the Review area achieved a ‘below standard’ score in the original 2006 evaluation; Three Bridges P.S. (score 13), Floradale P.S. (score 15), St. Jacobs P.S. (score 18). Since the original evaluation the Three Bridges and Floradale P.S. library deficiencies have been resolved. The Three Bridges P.S. library was improved greatly in moving the library out of the basement area of the school into a classroom on the main floor. This necessitated the addition of one of the portables currently on site. The Floradale P.S. library issues were resolved with the construction of the new facility in 2010. However, the issues identified for St. Jacobs P.S. remain, and additional pressure is expected to be exerted on the library instructional space with the implementation of FDK, and the anticipated enrolment expected from the small residential development at the south end of town. Gymnasium Another specialized education space the ARC examined in terms of equity was gymnasiums. Similar to library spaces, the Board also maintains metrics on the relative availability of gym space at its elementary facilities. Gym square footage per pupil place (OTG) is measured across the system and schools are ranked to identify the most pressing needs. Table 7 illustrates the gym space benchmarking of the review area schools. Table 7: Gym square footage/OTG Benchmarking Report - 2011
School OTG Gym (ft2)
Gym spaces
Gym ft2/OTG
Gym ft2/OTG Ranking
All Schools (102)*
Gym ft2/OTG Ranking
JK-8 schools (21)** Floradale P.S. 322 2818 1 8.75 33 8 Linwood P.S. 527 3712 2 7.15 17 2
St. Jacobs P.S. 351 2376 1 6.83 14 1 Three Bridges P.S. 69 1659 1 18.03 93 20
* Out of 102 WRDSB elementary schools (lower score represents higher need) ** Out of 21 WRDSB elementary JK-8 schools (lower score represents higher need) Within the larger context of all the elementary schools in the Board the two review area schools that stand out in terms of gym space need are Linwood P.S. and St. Jacobs P.S. ranked 17 and 14 respectively in terms of need (1 representing the school with the lowest ft2 per constructed pupil place). While the ARC recognized that these two schools were not the Board’s highest priority in terms of lack of gym space it felt that there were additional factors to consider in evaluating gym space at WRDSB elementary facilities; namely the organization of the school and the number of gym programming spaces (single or double gym). The ARC felt that school organization should be considered when evaluating the relative need for gym space. Whether a school has an intermediate program (grade 7-8) has an impact of the ability of the facility’s gymnasium to service the needs of its students. The logic being that the older students require more space as they are larger and faster, and become involved in more inter-school sports (St. Jacobs P.S. has indicated that it cannot host inter-school sports events as a result of its small
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gymnasium). All the schools in the review area are JK-8 (Three Bridges P.S. is 1-8). When the ft2/OTG is ranked among the Board’s JK-8 schools, St. Jacobs P.S. is ranked number 1 in terms of need. Also, the ARC felt it important to consider the number of programmable gym spaces a facility had. Whether a school has a single or double gym is an important factor in determining whether the school has enough facility to provide quality daily physical activity (QDPA) for its students. Having a double gym means that two classes, especially in lower grades, can use the space simultaneously leading to more effective utilization. Considering this, the ARC felt that while Linwood P.S. was relatively high on the list in terms of need for gym space (ft2/OTG), its ability to program two classes simultaneously mitigates the lack of square footage. Of all the Board’s JK-8 facilities, there are only four in the system that lack a double gymnasium; Conestogo P.S., St. Jacobs P.S, Floradale P.S., and Three Bridges P.S. As a rule of thumb when constructing new facilities and renovating existing facilities the Board considers 400 pupil places (OTG) as the threshold to consider a double gymnasium. All of the schools mentioned above are currently constructed for less than 400 pupil places. However, with the addition of the FDK program and its accompanying construction, St. Jacobs P.S. will be the only JK-8 facility in the Board over 400 OTG without a double gymnasium. Bus Lay-by During the Accommodation Review an issue was raised with respect to the bus loading and unloading infrastructure and procedures in place at Three Bridges P.S. Township of Woolwich enforcement staff and Student Transportation Services of Waterloo Region (STSWR) reviewed the bus loading and unloading procedures at the facility after concerns were raised by the school administrator. Currently, because of the small parking area present at Three Bridges P.S., the buses servicing the school must line up along the shoulder of Three Bridges Rd., and then take turns backing up across Three Bridges Rd. into the lot. This is concerning as the posted speed along the road in 80 km/h and Three Bridges P.S. is located at a curve in the road, limiting driver visibility both of the buses parked on the shoulder and when backing up across the road. The Township has requested that the Board consider the construction of a dedicated bus loading/unloading zone at Three Bridges P.S. to alleviate the concerns (See Appendix A). The ARC agrees with the assessment of the Township and STSWR and believes a bus loading zone at Three Bridges P.S. should be taken into consideration with their recommendations.
Other issues raised by ARC In addition to the initial issues raised by staff in recommending an Accommodation Review for the area further issues were raised and explored during the process.
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Distance to school The Woolwich and Wellesley Townships Accommodation Review Area, being primarily rural in nature, relies heavily on bussing to transport students to school. During the review the ARC raised concerns regarding the existing attendance area boundaries and their distance to the home school. In some cases there are portions of a school’s attendance area that are closer to a school other than that attendance area’s designated homeschool. This boundary situation may result in bus ride lengths that are longer than necessary. The ARC does recognize however, the complexity of bus routing and that longer distances to school may not always equate to a longer bus ride time. The ARC identified two areas specifically where the distance to the home school was greater than to the closest school. Currently the southwest portion of the Floradale P.S. attendance area boundary, west of the town of Wallenstein, south of Line 86, and west of the Consetogo River, is closer to Linwood P.S. (see figure 1). This boundary was adjusted a number of years ago to help address an over capacity situation at Linwood P.S. which once had to accommodate over 600 students (see table 1). With Linwood P.S. now under capacity the ARC felt there may be an opportunity to readjust the boundary so that students attend the closest facility. The other boundary area where students may be attending a home school that is not the closest facility is the Three Bridges P.S./St. Jacobs P.S. boundary. The Three Bridges P.S./St. Jacob P.S. boundary is a unique situation in the Board whereby both schools share an attendance area boundary for the same grades (1-8). Three Bridges P.S. effectively operates as a ‘Mennonite’ only school operating with a modified program and curriculum (for example no Kindergarten, no French language instruction). Students who may live closer to Three Bridges P.S. cannot attend the school if they wish to receive the Board’s standard curriculum, resulting in longer transportation distances than necessary. Similarly, students living closer to St. Jacobs P.S. wishing to attend Three Bridges P.S. also may have a further distance to travel. During the course of the Review process the ARC identified an additional area adjacent to the Review Area where students are attending a school which may not necessarily be the closest. The boundary for Conestogo P.S. is immediately east of the boundaries of Floradale P.S. and St. Jacobs/Three Bridges P.S (see Fig. 2). Some portions of the northern Conestogo P.S. boundary are closer to Floradale P.S. Conestoga P.S. is currently over capacity (247 pupil places, 309.5 FTE) and utilizes 5 portables to accommodate it’s students. The ARC feels there may be an opportunity to address this situation and that of surplus space at Floradale P.S. with a future boundary study.
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Figure 2: Woolwich and Wellesley Townships Accommodation Review Area with Conestoga P.S. boundary Three Bridges P.S. As previously mentioned Three Bridges P.S. occupies a unique position within the WRDSB. It is the only elementary school that shares a boundary for the same grades (1-8) with another elementary school (St. Jacobs P.S.). The unique situation at Three Bridges P.S. originated in the 1960’s as the WRDSB was formed from the amalgamation of the multiple smaller school boards in the Region. As Three Bridges P.S. was absorbed into the WRDSB, the school community and the Board agreed upon a number of ‘understandings’ under which the school would operate recognizing the cultural sensitivities of the Mennonite population that the school serves (see appendix B). Throughout the Review process the ARC has recognized the unique nature of the school and the community it serves. In some cases this has involved holding special information sessions specifically for the Three Bridges P.S. community who, generally as a group, do not participate in ‘political’ processes. During these consultations the
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ARC has gained a greater appreciation of how Three Bridges P.S. fits into this community. Three Bridges P.S. serves a diverse Mennonite population, comprised of approximately five different sects; Old Order, Old Colony, David Martin, Markham Conference, and Mid-West Fellowship who attend the school together. As one can imagine with a school originally built in 1872, many families currently attending have a significant historical attachment to the facility. Many parents have indicated that their children attend the school because their parents and grandparents did. Three Bridges P.S. families have also indicated that the rural character of the school and location are also reasons they choose to send their children to the facility. This is a community that for the most part have other educational options in their parochial schools, however choose to attend this facility. As the ARC has proceeded through the process, conversations with the Three Bridges P.S. community have indicated that any change involving Three Bridges P.S. (renovation/rebuild, boundary change, closure, etc.) would likely result in a loss of enrolment for the Board. Depending upon the nature of the change, it is estimated the Board could experience a loss of up to 65% of the existing and future Three Bridges P.S. students to the parochial system.
Objectives After reviewing and discussing the issues identified for the Review Area the ARC set about developing Review Objectives to guide, shape and evaluate the accommodation options it developed.
Ensure equitable student access to a community school by having defined attendance area boundaries that relate geographically to the community it is located in.
With the proposed solution the ARC wanted to ensure students in the Review Area have equal access to educational resources at their community schools and have the attendance area boundaries of those schools be logically organized in relation to their location. As mentioned previously, in some cases the current school boundaries result in students being transported to a home school that is not necessarily the closest school. As well, within the Three Bridges P.S./St. Jacobs P.S. boundary some felt that there is inequitable access to educational resources as those Three Bridges P.S. families wishing to access the Kindergarten program must attend St. Jacobs P.S. as Three Bridges P.S. does not offer the program. The ARC felt that this review may provide an opportunity to address the school boundary issue.
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Where possible organize school attendance boundaries to minimize distance to school (time on bus)
Similar to the last objective this one seeks to address the boundary issues related to transportation distances and its impact on students bus ride length.
Address student transitions where changes proposed. The ARC wanted to ensure that any proposed changes are implemented in such a way as to minimize the impact of change on students.
Have regard for Board policy 3002; Elementary School Size and Configuration, recognizing the challenges of rural areas.
The ARC recognized that the intent of Board Policy 3002 is to improve student learning opportunities. However, given the rural nature of the Review Area it felt that the letter of the policy was unachievable in a practical sense. Instead the ARC felt it could create more equitable student learning opportunities by balancing the enrolment between the facilities.
Support the efficient use of capital and operating resources through the consideration of facility condition, accessibility, and equitable access to educational amenities.
The ARC wanted to ensure that the recommended accommodation option recognized the issues and needs of the facilities in the Review Area while trying to be efficient with the funds the Board has available to it.
Maximize the number of students accommodated in permanent capacity. The ARC wished to reduce the number of students housed in portables.
Maximize the use of existing capacity within facilities
The ARC wished to ensure that the existing (surplus) spaces in the Review Area schools were used effectively.
Recognize the unique needs of communities served by different schools through the reasonable accommodation of cultural differences.
This objective speaks to the ARC’s desire to acknowledge the unique Mennonite community in the area at all the schools but especially Three Bridges P.S., ensuring this community is engaged in the process so that the ARC could find a solution that considers everyone.
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Accommodation Review Committee Recommendations Throughout the Accommodation Review process the ARC consulted with key stakeholders and examined 15 different accommodation options. Three Bridges P.S., and the unique position it holds within the WRDSB and the community it serves, were a key discussion point in all of the scenarios. In almost every scenario examined Three Bridges P.S. was either closed, or significantly modified in either program or structure, leading to the realization of a loss of elementary enrolment for the WRDSB from that community. By ARC meeting #13 it became clear that the ARC could not reconcile the continued operation of the aging and very small facility within the context of the Review Objectives, and the unique role the school plays in the local conservative Mennonite community. The feeling of the ARC is that whether or not Three Bridges P.S. continues to operate under the current conditions is not a decision it has the mandate to make. The ‘understandings’ under which the school operates were reached between the Three Bridges P.S. community and the Board of Trustees, and it should be the Board that decides if they wish to continue with the ‘understandings’. Therefore, the ARC wishes to present as their recommendation to the Board two scenarios; one that includes Three Bridges P.S. operating under the current conditions (Status Quo), and another that closes the facility and implements changes to the other schools in the Review Area (Scenario 10a).
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Status Quo – Description As mentioned, the ARC did not feel comfortable making a recommendation to modify to the conditions under which Three Bridges P.S. operates. The Status Quo is the only option moving forward, that continues the operation of Three Bridges P.S. in accordance with the ‘understandings’ reached in the past with the community. This scenario includes maintaining all the existing established boundaries for the schools in the review area. However the ARC recognizes that maintaining the Status Quo scenario has implications for the Board with respect to some of the identified issues and Review Objectives.
Ensure equitable student access to a community school by having defined attendance area boundaries that relate geographically to the community it is located in. Where possible organize school attendance boundaries to minimize distance to school (time on bus)
The Status Quo scenario does not address the issue/objectives related to having boundaries logically organized around the school locations so students attend the closest facility. A situation will continue to exist where students closer to Linwood P.S. are bussed to Floradale P.S., and where students are closer to Three Bridges P.S. or St. Jacobs P.S. but are transported to the other facility (see figure 3). As well, families attending Three Bridges P.S. wishing to access the FDK program will need to continue to do so at St. Jacobs P.S.
Address student transitions where changes proposed. The Status Quo scenario does not seek to change the boundaries or organizations of any of the review area schools, so no student transitions need to be addressed.
Have regard for Board policy 3002; Elementary School Size and Configuration, recognizing the challenges of rural areas.
The Status Quo scenario keeps Three Bridges P.S. as an organization within the WRDSB. Projections for the Status Quo scenario indicate that Three Bridges P.S. will continue to possess an enrolment well below the school size guidelines recommended in Board Policy 3002 (See Table 8). As well, the enrolments at the facilities in the Review Area remain unbalanced, compromising the ability of these schools to realize the benefits that are achieved when school enrolments are aligned with those in Board Policy 3002.
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Figure 3: Status Quo Scenario Boundaries Table 8: Status Quo Scenario Enrolment projections
School Capacity with FDK 2012 2014 2016 2018 2020
Floradale P.S. 340 270 256 256 251 272 Linwood P.S. 551 429 404 418 425 429
St. Jacobs P.S. 406 315 327 360 368 380 Three Bridges P.S. 69 83 88 96 97 90
Total 1366 1097 1075 1130 1141 1171
Support the efficient use of capital and operating resources through the consideration of facility condition, accessibility, and equitable access to educational amenities.
As part of the Accommodation Review process the ARC examined the condition and maintenance/operating costs of the facilities in the Review Area. In addition to the existing infrastructure of the schools, this review included anticipated expenses that are likely to result from legislated programs/initiatives such as the FDK program, Accessibility legislation and addressing the identified deficiencies in the school’s specialized educational spaces (St. Jacobs P.S. library and gym).
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Table 9 illustrates the anticipated maintenance costs, expected expenses to implement the FDK program, and to meet accessibility targets, as well as to address the deficiencies identified with respect to specialized educational spaces and safety issues at Three Bridges P.S. Table 9: Anticipated Facility Maintenance and Capital Costs Status Quo Scenario
School 10yr
Renewal needs
FDK Accessibility Bus Lay-by Library Gym Total
Floradale P.S. $0.73 M $0 $0 $0 $0 $0 $0.73M Linwood P.S. $3.2 M $0 $0 $0 $0 $0 $3.2 M
St. Jacobs P.S. $2.1 M $1 M $0.5 M $0 $0.3 M $1.5 M $5.4 M Three Bridges P.S. $0.54 M $0 $0.08 M $0.05 M $0 $0 $0.68M
Total $6.57 M $1 M $0.58 M $0.05 M $0.3 M $1.5M $10 M The anticipated future renewal needs for each school were identified and estimated from a cost standpoint by the consulting firm Anderson Building Sciences using methodology consistent with the Ministry of Education’s ReCAPP initiative. For the purposes of this Review costs were calculated for each facility by summing the maintenance/renewal needs classified as ‘high’ or ‘urgent’ anticipated over the next 10 years. Of the four schools in the Review only St. Jacobs P.S. has a future cost associated with it to implement the FDK program (The $1 M cost estimate to implement FDK is based on a 2 classroom addition funded at $465K per room.). Floradale and Linwood Public Schools are already running the program (implemented in September 2010 and 2012 respectively), and Three Bridges P.S. (grades 1-8) does not operate a Kindergarten program. The ARC also looked at the accessibility of the schools in the review area, anticipating the costs to make the facilities accessible as outlined in the Accessibility for Ontarians with Disabilities Act (AODA). Floradale P.S., constructed in 2010, meets all of the accessibility requirements. Linwood P.S. is a single storey facility that will require minimal improvements to meet accessibility requirements. St. Jacobs P.S. and Three Bridges P.S., on the other hand, will require more substantive efforts. Both facilities have educational spaces accessible only by stairs. For Three Bridges P.S., the basement area that was formerly the library is currently used as a resource/withdrawal space. To make this space accessible it is proposed that the space be decommissioned and an additional portable be placed on site to compensate for the loss in educational space. An elevator was considered but ultimately deemed too expensive to access a single room. The estimated one time cost to purchase and install a portable is approximately $80K. To achieve accessibility at St. Jacobs P.S. an elevator installation will be required to access the educational spaces of the original 1929 building. Currently stairs are required to access both the main floor and lower level of the original building from grade
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level. WRDSB Facilities staff estimate the cost to install an elevating device at the facility to be approximately $0.5 M. To address the Three Bridges P.S. bus pick-up/drop-off safety concerns raised by the Township and STSWR the Board engaged an architect to design a bus lay-by feature at the school. The cost to construct such a feature was estimated to be approximately $ 50K. As previously mentioned, both the library and gym educational spaces of St. Jacobs P.S. have been identified as below WRDSB system benchmarks, and concerns were expressed over the lack of small educational program spaces in the older facility. To address the concerns the ARC has expressed with these spaces the addition of a double gym, and a library renovation have been proposed. The addition of a double gym to the facility is expected to cost approximately $1.5 M (based on recent WRDSB comparable projects), and a renovation to the library about $300 K. Including projected maintenance and renewal items over the next 10 years as well as addressing legislative requirements and facility deficiencies, the costs for maintaining the Status Quo scenario in the review area is estimated to be approximately $10 M. Of that amount $5.4 M is attributed to St. Jacobs P.S. Recognizing the disproportionate costs associated with maintaining and bringing this particular facility up to a certain standard the ARC wished to examine the costs associated with a rebuild of the school. Table 10 illustrates the funding the Ministry of Education would provide to build schools of the same size as those existing in the Review Area.
Table 10: Capital Funding Benchmarks* – New Construction
School OTG Capacity m
2/ Student $/m
2 Funded
$ Funded if Built New
Floradale P.S. 322 11.32 1847.53 $6.73 M Linwood P.S. 527 10.25 1847.53 $9.98 M
St. Jacobs P.S. 351 10.99 1847.53 $7.13 M Three Bridges P.S. 69 13.87 1847.53 $1.61 M
*From Ministry of Education Memorandum 2011:B6 “Revised Capital Funding Benchmarks”. At $5.4M in anticipated costs for St. Jacobs P.S. over the next 10 years the Board would be investing the equivalent of 75% of the cost of building a new facility. Based on this information, the ARC believes that there is a strong case to be made for a rebuild of St. Jacobs P.S. While the project may seem logical on the surface the ARC did also discuss some of the challenges of a rebuild of St. Jacobs P.S namely; the small site (4.5 acres), potential heritage designation of the original building, and the uncertainty of Ministry of Education approval and funding.
Maximize the number of students accommodated in permanent capacity.
The Status Quo Scenario would continue the requirement of portables to accommodate some Review Area students. Enrolment projections (see Table 7) indicate that St.
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Jacobs P.S. would likely require up to two portables in the longer term as its enrolment approaches the building’s capacity. Portables would also continue to be used at Three Bridges P.S. Currently the school utilizes 3 portables and would require a fourth sometime in the future to meet accessibility guidelines.
Maximize the use of existing capacity within facilities Enrolment projections indicate that there will exist surplus capacity in the Review Area (see Table 7). Both Floradale P.S. and Linwood P.S. are expected to have excess capacity over the next ten years, while St. Jacobs P.S. and Three Bridges P.S. are expected to be fully utilized.
Recognize the unique needs of communities served by different schools through the reasonable accommodation of cultural differences.
Under the Status Quo Scenario Three Bridges P.S. continues to serve the conservative Mennonite community of the area whom, in general, have not been as comfortable with public education as other communities in the Board. However, it should also be noted that the continued operation of Three Bridges P.S., and the involvement of this community, is premised on the ‘understandings’ that have guided the curriculum and operation of the school since amalgamation.
Status Quo – Recommendations For the implementation of the Status Quo Scenario the Woolwich and Wellesley Townships ARC recommends to the WRDSB that; Recommendation #1: Rebuild St. Jacobs P.S. Given the expected estimated costs at St. Jacobs P.S. over the next 10 years the WRDSB consider a rebuild of the facility (estimated at $7.2 M), including a double gymnasium, on its existing site. Recommendation # 2: Construct Three Bridges P.S. Bus Lay-By. The WRDSB complete the proposed bus lay-by at Three Bridges P.S. to improve student and community safety. Recommendation # 3: Consider Boundary Study between Floradale P.S. and Conestogo P.S. Given the fact that some areas of the Conestogo P.S. attendance boundary are closer to Floradale P.S. and the existing and projected surplus space at Floradale P.S., the WRDSB consider a boundary study between Floradale P.S. and Conestogo P.S.
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Scenario 10a - Description Scenario 10a would see the closure of Three Bridges P.S. and boundary changes between Floradale P.S. and Linwood P.S. and between Floradale P.S. and St. Jacobs P.S. (see figure 3). The ARC believes that this accommodation option would help the Board in reducing surplus capacity and eliminating the long term maintenance costs on a small and aging facility. Staffing costs would also be reduced, as one less facility would need to be staffed with an administrator, and secretarial, library and custodial hours. However, this option may also lead to an overall reduction in enrolment in the Review Area as not all of the current Three Bridges P.S. students are expected to attend the other schools should a change be implemented. With the closure of Three Bridges P.S. school attendance areas would need to be changed to accommodate one less facility. As has been mentioned Three Bridges P.S. shares a boundary with St. Jacobs P.S. While the ARC did consider leaving the existing boundary in place and just have the Three Bridges/St. Jacobs Public School boundary become just the St. Jacobs P.S. boundary, enrolment and facility pressures at St. Jacobs P.S. and the nature of the Three Bridges P.S. community led the ARC to recommend a boundary change between St. Jacobs P.S. and Floradale P.S. The Floradale P.S. boundary would be extended south approximately to Hawkesville Rd. With the closure of Three Bridges P.S. it would be necessary to accommodate the displaced school population elsewhere. St. Jacobs P.S. is fully utilized, experiencing facility pressures and is expected to increase its enrolment slightly with the small residential development in the south end of the town. Floradale P.S. has the available capacity to accommodate the additional enrolment expected from the boundary change. The current Three Bridges/St. Jacobs Public School boundary contains a mix of Three Bridges/St. Jacobs Public School students throughout the boundary although not evenly distributed. The northern portion of the boundary contains a greater proportion of Three Bridges P.S. families while the southern portion has more St. Jacobs P.S. families. Consultations with the Three Bridges P.S. community have indicated that if required to attend another facility, Floradale P.S. would be the one they are most comfortable with, as that facility has a similar rural setting, and student composition. The proposed boundary change would direct more Three Bridges P.S. families to Floradale P.S. The addition of Three Bridges P.S. enrolment to Floradale P.S. would also allow for a small boundary change between Linwood P.S. and Floradale P.S. Distance to schools was an issue the ARC wanted to explore as it was brought up that there were some areas in the review that were closer to a school other than their home school. The Linwood/Floradale Public School boundary near Wallenstein (see figure 4 – area A) is one of those situations. The ARC proposes a boundary change between the two schools so that students who live closer to Linwood P.S. will attend that facility.
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Table 11: Scenario 10a Enrolment Projections
School Capacity with FDK 2012 2014 2016 2018 2020
Floradale P.S. 340 270 273 268 261 277 Linwood P.S. 551 429 427 444 451 455
St. Jacobs P.S. 406 315 322 360 368 382 Three Bridges P.S. 69 0 0 0 0 0
Total 1297 1014 1022 1072 1080 1114 Overall the ARC felt that Scenario 10a was the best with respect to the issues and objectives raised by the Board, ARC and broader community.
Ensure equitable student access to a community school by having defined attendance area boundaries that relate geographically to the community it is located in. Where possible organize school attendance boundaries to minimize distance to school (time on bus)
Scenario 10a would see some improvement in distance to home school issues between Linwood P.S. and Floradale P.S. (see figure 4), however the Floradale/St. Jacobs Public School boundary change would increase distance to homeschool for some families. The ARC recognized this challenge with this particular scenario but felt the accommodation of the Three Bridges P.S. families was paramount.
Address student transitions where changes proposed.
Scenario 10a would introduce significant change to the Review Area with the closure of Three Bridges P.S. and associated attendance area boundary changes. The ARC recognizes the disruption this change would cause specifically to the Three Bridges P.S. community and discussed strategies to gently implement the change. Since Three Bridges P.S. and St. Jacobs P.S. share an attendance area boundary the closure of Three Bridges P.S. would default the attendance area boundary to St. Jacobs P.S. For many of the Three Bridges P.S. families living in this area, attending St. Jacobs P.S. is a not an option due to the more ‘urban’ setting of the facility. Consultations with the Three Bridges P.S. community have indicated that at least some of the families would be more comfortable sending their children to Floradale P.S., if they had to change. For this reason the ARC proposes to move the boundary between Floradale P.S. and St. Jacobs P.S. south to Hawkesville Rd. as previously mentioned. However this boundary change may still leave some Three Bridges P.S. families (who remain in the new St. Jacobs P.S. boundary) with no choice but to attend St. Jacobs P.S. or switch to a parochial school.
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To address this the ARC proposes that a grandparenting option, with transportation, be extended to all the existing Three Bridges P.S. students (students enrolled at Three Bridges P.S. the year prior to the school closure) and any siblings not yet in the system to attend either Floradale P.S. or St. Jacobs P.S. As well, because Three Bridges P.S. does not have a Kindergarten program and families use St. Jacobs P.S. for that program, the ARC would like to extend this grandparenting option to those students enrolled in the Kindergarten program at St. Jacobs P.S. who would otherwise attend Three Bridges P.S. upon entering grade 1 and any siblings not yet in the system. Also, because a very small number of existing St. Jacobs P.S. students would be in the new Floradale P.S. boundary, the ARC proposes that a grandparenting option, with transportation, be extended to those students so they could finish out elementary school at St. Jacobs P.S. All new students registering after the closure of Three Bridges P.S. would then be directed to their home school as dictated by the new attendance area boundaries. It should be noted that the ARC recognizes the extension of the grandparenting option to siblings of existing students who may not be in the system when the boundary changes is in contravention of Board Procedure 4260 : Student Transportation. Procedure Section 11, which states;
11. Grandparenting Provision
11.1. In some instances it may be necessary to phase-in the implementation of transportation changes in order to provide a transition period for the community. The following conditions will be applied when transportation service is grandparented.
11.1.1. A definitive end date must be declared as of the implementation of the change; 11.1.2. The provision of service may only be extended to pupils who are currently enrolled; 11.1.3. Transportation service will be provided in a manner consistent with the distance guidelines established by the Board.
The extension of grandparenting to siblings not yet in the system is being recommended by the ARC because it was felt that limiting the grandparenting option to only existing students could have a negative impact in the student retention the Board sees from the existing Three Bridges P.S. families. The ARC believes limiting grandparenting will force some families to either choose to split up their children across two schools or keep their children all together in the parochial school system. The ARC therefore requests the Board grant a special exemption in this circumstance.
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With regard to the Floradale/Linwood Public Schools boundary change, the ARC proposes extending a grandparenting option to those affected students in grade 7 students the year before the boundary change, so that they may avoid having to change schools the year before the transition to secondary school. Also, the ARC would like to offer the grandparenting option, with transportation, to any sibling(s) of the aforementioned grade 7 students, to remain at Floradale P.S. with their older sibling, with the understanding that the next year they would be required to attend Linwood P.S. regardless of their grade level.
Have regard for Board Policy 3002; Elementary School Size and Configuration, recognizing the challenges of rural areas.
This scenario offers little improvement to the enrolment at the retained facilities with respect to the objective relating to school size and Board Policy 3002. Little change over the Status Quo scenario is expected at Floradale, Linwood, and St. Jacobs Public Schools as only 35% of the existing Three Bridges P.S. enrolment is expected to be retained to redistribute between the three facilities. However, the Board would meet some of the intent of the Policy by eliminating a very small school organization.
Support the efficient use of capital and operating resources through the consideration of facility condition, accessibility, and equitable access to educational amenities.
Scenario 10a would see an improvement to the maintenance and operating costs expected to be incurred by the Board over the next 10 years. The ARC believes the Board would realize savings from the closure of Three Bridges P.S. of approximately $680K attributed to the projected maintenance, accessibility, and bus layby. Total projected maintenance and capital costs for Scenario 10a are shown in Table 12. While Scenario 10a is expected to eliminate the facility maintenance and capital costs associated with Three Bridges P.S., the ARC recognizes the facility equity and condition issues remain at St. Jacobs P.S. Table 12: Anticipated Facility Maintenance and Capital Costs Scenario 10a
School 10yr
Renewal needs
FDK Accessibility Bus Lay-by Library Gym Total
Floradale P.S. $0.73 M $0 $0 $0 $0 $0 $0.73M Linwood P.S. $3.2 M $0 $0 $0 $0 $0 $3.2 M
St. Jacobs P.S. $2.1 M $1 M $0.5 M $0 $0.3 M $1.5 M $5.4 M Three Bridges P.S. $0.54 M $0 $0.08 M $0.05 M $0 $0 $0.68M
Total $6.03 M $1 M $0.5 M $0.0 $0.3 M $1.5M $9.32 M The ARC also discussed the staffing implications that one less facility would have across the Review Area. It is anticipated that consolidating facilities in the Review Area would lead to reduced staffing needs on whole. Table 12 compares the estimated administrative, secretarial, custodial, library and teaching staffing levels required between the Status Quo, and Scenario 10a. Estimates indicate that the costs of one
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administrator, as well as custodial, secretarial, and library clerk hours could be saved or reallocated through the system. It should be noted, that while Table 13 indicates a reduction in teaching staff necessary with Scenario 10a, this is primarily due to the estimated loss of enrolment from the Three Bridges P.S. community. Table 13: Staffing comparison*: Status Quo v. Scenario 10a
School Administrator Custodian (40 hrs) Teacher ECE
(FDK) Library
(hrs) Secretary
(35hrs)
Stat
us
Quo
Floradale P.S. 1 2 12 1 21 1 Linwood P.S. 1.5 2.75 19 3 21 1.4
St. Jacobs P.S. 1 2 16 3 25 1 Three Bridges P.S. 1 1 5 0 17.5 1
Total 4.5 7.75 52 7 84.5 4.4
Scen
ario
10
a
Floradale P.S. 1 2 12 1 21 1 Linwood P.S. 1.5 2.75 19 3 25 1.4
St. Jacobs P.S. 1 2 16 3 21 1 Total 3.5 6.75 47 7 67 3.4
* Staffing levels estimated using enrolment projections for 2016 for both scenarios.
Maximize the number of students accommodated in permanent capacity.
As mentioned previously Scenario 10a would see a reduction in the number of portables necessary to accommodate students. Portables would not be necessary at any of the facilities save for perhaps St. Jacobs P.S. in the longer term.
Maximize the use of existing capacity within facilities
Scenario 10a would see a slight improvement to the utilizations of existing capacity in the retained facilities. The boundary change between Linwood P.S. and Floradale P.S. would see more effective utilization of Linwood P.S., than the Status Quo Scenario (See Table 10).
Recognize the unique needs of communities served by different schools through the reasonable accommodation of cultural differences.
The closure of Three Bridges P.S. would be a significant change for the unique community that the school serves. The ARC recognizes this impact and has proposed measures that seek to lessen the impact of the change; namely the modification of the Floradale/St. Jacobs P.S. boundary to include more existing Three Bridges P.S. families, and the provision of an extended grandparenting option to those existing Three Bridges P.S. students who fall outside the new Floradale P.S. boundary.
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Scenario 10a – Recommendations For the implementation of Scenario 10a the Woolwich and Wellesley Townships ARC recommends to the WRDSB that; Recommendation #1: Close Three Bridges P.S. Three Bridges P.S. be closed effective July 1, 2014; and that Students enrolled at Three Bridges P.S. during the 2013/2014 school year and their siblings be given the opportunity to attend either St. Jacobs P.S. or Floradale P.S. starting the 2014/2015 school year until completion of grade 8; and that Students enrolled in Kindergarten at St. Jacobs P.S. during the 2013/2014 school year who would otherwise attend Three Bridges P.S. upon graduation to grade 1 be given the opportunity to attend either St. Jacobs P.S. or Floradale P.S. starting the 2014/2015 school year until completion of grade 8; and that Transportation be extended to those Three Bridges P.S. and St. Jacobs P.S. students and siblings based on transportation eligibility. Recommendation #2: Modify the boundary between Floradale P.S. and St. Jacobs P.S. The Floradale P.S. and St. Jacobs P.S. boundary be modified as illustrated in figure 3; and that Affected Grade 7 students, and their siblings, attending St. Jacobs P.S. during the 2013/2014 school year be given the opportunity to attend St. Jacobs P.S. or Floradale P.S. for the 2014/2015 school year; The Floradale P.S. and St. Jacobs P.S. boundary be modified as illustrated in figure 3; and that Transportation be extended to those Grade 7 students and their siblings, for the duration of the 2014/2015 school year based on transportation eligibility. Recommendation #3: Modify the boundary between Floradale P.S. and Linwood P.S. The Floradale P.S. and Linwood P.S. boundary be modified as illustrated in figure 4; and that Grade 7 students, and their siblings, attending Floradale P.S. during the 2013/2014 school year be given the opportunity to attend Floradale P.S. or Linwood P.S. for the 2014/2015 school year; and that
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Transportation be extended to those Grade 7 students and their siblings, for the duration of the 2014/2015 school year based on transportation eligibility. Recommendation #4: Rebuild St. Jacobs P.S. Given the expected estimated costs at St. Jacobs P.S. over the next 10 years the WRDSB consider a rebuild of the facility, including a double gymnasium, on its existing site. Recommendation # 5: Consider Boundary Study between Floradale P.S. and Conestogo P.S. Given the fact that some areas of the Conestogo P.S. attendance boundary are closer to Floradale P.S. and the existing and projected surplus space at Floradale P.S., the WRDSB consider a boundary study between Floradale P.S. and Conestogo P.S.
Conclusion After fourteen months of stakeholder consultations, discussion and careful consideration of the issues present in the Review Area the Woolwich and Wellesley Townships ARC has outlined two paths the WRDSB can use to move forward. Both include recommendations to address issues of facility equity, safety, and access to educational amenities (most notably at St. Jacobs P.S.). The difference between the two options is the continued operation of Three Bridges P.S. as a WRDSB facility. The option that moves forward maintaining Three Bridges P.S. allows the Board to continue to support an historical agreement accommodating the unique cultural needs of a specific community. This accommodation, however may limit the Board in their ability to address some of the maintenance and operational efficiency issues raised by the community, and identified in the ARC Terms of Reference. The option that would see the closure of Three Bridges P.S. would allow the Board to address some of the maintenance and operational efficiency issues often associated with small school organizations, but may not as well serve the cultural needs of that community. The Board could also experience a loss of enrolment as some of the Three Bridges P.S. existing and future students migrate to the parochial school system. The ARC did not feel that it was their mandate to decide if the Board should continue to support its historical agreement with the Three Bridges P.S. community so it has provided what it believes to be its best recommendations whichever path the Board chooses. The ARC recognizes that it is a difficult decision for Trustees and hopes the information discovered throughout the review process and provided in this report help inform a decision that is in the best interests of all the students in the Review Area and the Board as a whole.
Woolwich and Wellesley Townships Accommodation Review Committee Accommodation Report
31
In closing, the ARC would like to thank the parents and community members who attended the public meetings and expressed their concerns and provided input and feedback throughout the accommodation review process.
THE TOWNSHIP OF
WOOLWICHlOX 158 24 CHURCH St WElMIRA. ONTARIO N3E 216TEL 519 669-164? / 646 E’ 519 ‘564-2613COIJNCILJCAO/CLEFII<S Fp5( 519-669-1820PLANNING/ENGINEER1NG/SIUILDING FAX 519-669 4669
NANCEJFSCMEATION/FACIIJTIES FAX 519-889-9348
July 3001, 2012
By Fax: 519664-3025
Principal Wayne DunhamThree Bridges School2043 Three Bridges RoadSt. Jacobs, ON NOB 2N0
Dear Prindpal Dunham:
Re: Three Bridges Public School
Following our conversation I asked my Enforcement Staff to investigate the issues you raised regardingthe speed of vehicles and concerns of motorists expressing frustration regarding the buses loading andunloading students at the school.
It has come to my attention through this investigation that the way that school buses load and unloadstudents at Three Bridges Public School creates a safety hazard for motorists and students. The safetyconcern involves the 10 minutes morning and afternoon when buses wait on the road and then reverseonto the school property to load or unload students.
The speed limit on Three Bridges Road is currently 80 km/hr. The road has curves in it on both sides ofthe school that negatively impact the sight lines of bus drivers and oncoming motorists. While busesare parked on the road waiting to back in, motorists approach the school with reduced sightlines andlittle warning of the parked buses, then have a hard time seeing around the buses to pass them. Thereis the risk of a bus pulling out in front of a vehicle by accident.
The school buses also take turns reversing into the school front yard. I am concerned that this is asafety issue for motorists when the buses are backing onto the school property, and for students thatare getting on or off the buses.
I am requesting that consideration be given to the creation of a proper bus loading zone in front of theschool or somewhere on the school property to eliminate safety concerns for motorists and students. Ihave provided information to our Engineering Department to assess the possibility of changing theSchool Zone signs and reducing the speed in this area.
If I can be of any further assistance please contact me. I will request that Township Staff try to upgradethe signs prior to the start of school. With current workloads this may not be possible but I will contactyou to keep you informed regarding the signs and speed limit.
Yours truly
stineroughnDirector, Council and Information Services
cc: Tanya Greig, Enforcement ServicesDan Kennaley, Director of Engineering and Planning Services
“Proudly remembering our past; Confidently embracing our future.
THREE BRIDGES PUBLIC SCHOOLRR # 1,St. JacobsNOB 2N0664-2931 November 30, 1988
WHAT WAS PROMISED?
Discussion at a recent Parent1s Coffee Hour briefly focusedon the agreement made between the Board and the community in1969. This was the date when the County Board came intoexistence.
It appears that promises were made by the Board to ensurethe unique nature of Three Bridges. However, no writtenrecord exists and few of our current parents were involved.The committee representing the community was made up ofAden Sauder, Amos Martin and Oman Martin. I have spentsome very interesting time with these gentlemen recollectingwhat occurred in 1968-69.The three committee members agreed that they asked for fivepoints and were granted four. These are the points as theyremember them.
1. A personnel change was requested. (granted)
2. Compulsory sex education was not to be included in thecurriculum. (granted)3. Compulsory French education was not to be included inthe curriculum. (granted)4. Tranportation to all those within reasonable distanceswas to be provided. Three Bridges was not to have fixedboundaries. It was requested that students not be movedout of the school for different grades or for certainsubjects. (granted)5. Film education was to be eliminated from the school.(not granted) Mr. Sauder remembers that filrs werealready a part of this school and throughout the county.Therefore, the Board would not grant this request.
This happened twenty years ago and memories are not infallible.However, this is an accurate account of what we can rememberof these discussions.
Mr. Aden Sauder
Amos Martin
Mr. Oman Martin
Rcx’ised: iVoxcinbr 26. 2002
School Modification by Parent Council
How the educational programs have been modified at Three Bridges School to attempt tomeet the wishes of the parents. Agreements presented were made in consultation of Mr.Root, principal of Three Bridges School.
1. Bible Reading and Lord’s Prayer daily.
2. Emphasis on Reading, \Vriting and Arithmetic.
3. Careful selection of books fur library.
4. Careful selection of textbooks for classroom use.
5. Limited use of audio-visual equipment - tape recorder, radio, overhead projector, filmstrip projector,
movie projector, computer. Use of films only as a last resort to teach a concept, or review a concept.
Never used for entertainment. No television.
6. Removal of French from our curriculum.
7. Oniy children of Mennonite faith are enrolled at the school.
8. We don’t teach topics which conflict with religious beliefs — eg. Evolution.
Jh 9. Courses are as practical as the Ministry of Education allows. ie. We endeavour to show how the topics
relate to the everyday life of the children where possible.
10. Some children are bused to Three Bridges when they are closer to other schools.
11. Evening and daytime programs offered when parents may visit the school to observe or take part in
activities.
12. Program changes are explained to the parents before they are begun. (eg. Electives)
13. Careful selection of excursions or trips to increase the children’s learning experiences.
14. We try to avoid homework assignments so the children will be available for duties at home.
15. We offer remedial assistance in our school for children who are weak or behind in some subject areas
for various reasons, such as illness. absence. etc.
16. Following report cards, an opportunity is provided for interviews regarding the progress of the children.
17. If a child is needed at home to work for a day, we accept this with understanding.
18. lany children leave school at the age of 14 to work at home. We realize you are training them there,
hence no legal action has been taken.
1 9 S poi icti iti ne not undcrt ken i th other sh o I 1 h ani L p1 n a toi our tudL11ts onl\ Fy
B ishii1 oll h ill I LkL\
December 2010 Page 1 of 3
Board Policy 1012
FAITH AND RELIGIOUS ACCOMMODATIONS Legal References: Canadian Charter of Rights and Freedoms (Section 15); Ontario Human Rights Code (The Code); The Education Act. Related References: Policy 1008 – Equity and Inclusion; PPM No. 108, “Opening or Closing Exercises in Public Elementary and
Secondary Schools”; PPM No. 112, “Education about Religion in the Public Elementary and
Secondary Schools”; PPM No. 119, “Developing and Implementing Equity and Inclusive Education
Policies in Ontario Schools”. The Multifaith Information Manual (4th edition)- Ontario Multifaith Council Effective Date: December 13, 2010 Revisions: Reviewed: 1. Preamble
1.1 The Waterloo Region District School Board acknowledges each individual’s right to follow or not to follow religious beliefs and practices free from discriminatory or harassing behaviours based on faith or religion. The Board is committed to taking all reasonable steps to provide religious accommodations to staff and to students.
1.2 The Waterloo Region District School Board understands that staff and students from
diverse faith communities need a safe and respectful environment to succeed academically. The Faith and Religious Accommodation Policy supports academic achievement by eliminating discrimination and harassment related to creed. The policy requires continuous integration and evaluation of new knowledge and innovative approaches. The Board believes that the process of accommodation and partnership with members of its community will help build an environment of mutual respect and understanding.
1.3 The Board acknowledges the presence of students and staff who study and work in the
school system not having religious affiliations. The Board assures these members that religious accommodation guidelines and procedures will not interfere or compromise their rights and privileges.
1.4 It should also be noted that respect for faith diversity is considered to be a shared
responsibility. While the Board works to ensure that students and staff are able to observe the tenets of their faith in school environments free from discrimination, it is also the responsibility of the students and community to help the schools by highlighting and providing understanding of the needs of religious and secular communities.
1.5 The Board does not support the primacy of one faith, religious or secular belief over
another. 1.6 For many students and staff in Waterloo Region schools, there are a number of areas
where the practice of their religion may result in a request for accommodation on the part of the school and/or Board. These areas may include, but are not limited to: 1.6.1 Observance of major religious holy days and celebrations
Policy 1012
December 2010 Page 2 of 3 Policy 1012
1.6.2 Prayer and rituals 1.6.3 Dietary requirements and fasting 1.6.4 Religious attire 1.6.5 Participation in school curriculum, co-curricular and extra-curricular activities
2. Definitions
The Ontario Human Rights Commission’s Policy on Creed and the Accommodation of Religious Observances define “accommodation” as a duty corresponding to the right to be free from discrimination.
The Code provides the right to be free from discrimination, and there is a general corresponding duty to protect the right: the “duty to accommodate.” The duty arises when a person’s religious beliefs conflict with a requirement, qualification or practice. The Code imposes a duty to accommodate based on the needs of the group of which the person making the request is a member. Accommodation may modify a rule or make an exception to all or part of it for the person requesting accommodation.
(Policy on Creed and the Accommodation of Religious Observances, Ontario Human Rights Commission, October 20, 1996, pg. 5)
The duty to accommodate is an obligation that arises when requirements, factors, or qualifications, which are imposed in good faith, have an adverse impact on, or provide an unfair preference for, a group of persons based on a protected ground under the Code. The duty to accommodate must be provided to the point of undue hardship. In determining whether there is undue hardship, section 24(2) of the Code states that reference should be made to the cost of accommodation, outside sources of funding, if any, and health and safety requirements. 2.1 Accommodation: The Waterloo Region District School Board defines faith based
accommodation as the obligation to meet the diverse needs of individuals or groups when religious beliefs conflict with a Board requirement, qualification or practice in accordance with the Ontario Human Rights Code to the point of undue hardship.
2.2 Creed: The Ontario Human Rights Commission defines creed as a professed system and
confession of faith, including practices, beliefs, and observances that are part of a religion. Religion is broadly accepted to include non-deistic bodies of faith, such as the spiritual faiths/practices of Aboriginal cultures. The existence of religious beliefs and practices are both necessary and sufficient to the meaning of creed, if the beliefs and practices are sincerely held and/or observed. According to the Ontario Human Rights Commission, every person has the right to be free from discrimination or harassing behaviour that is based on religion or where the person who is the target of the behaviour does not share the same faith. Atheists and agnostics are also protected under the Code. Creed does not include secular, moral beliefs, ethical beliefs or political convictions. This policy does not extend to religions that incite hatred or violence against other individuals or groups, or to practices and observances that profess to have a religious basis that contravene international human rights standards or criminal law (Policy on Creed and the Accommodation of Religious Observances, Ontario Human Rights Commission, October 20, 1996, pg. 2).
2.3 Undue Hardship: Accommodation will be provided to the point of undue hardship, as defined by the OHRC (for example in the Policy and Guidelines on Disability and the Duty to Accommodate). A determination regarding undue hardship will be based on an assessment of costs, outside sources of funding, and health and safety. It will be based on objective evidence. Where a determination is made that an accommodation would create undue hardship, the person requesting accommodation will be given written notice, including the reasons for the decision and the objective evidence that was depended upon. The accommodation seeker shall be informed of his or her recourse under the Board’s Equity
December 2010 Page 3 of 3 Policy 1012
and Inclusive Education Policy and Anti-Discrimination Policy and Procedure, and under the Ontario Human Rights Code. Where a determination has been made that an accommodation would cause undue hardship, the Board will proceed to implement the next best accommodation short of undue hardship, or will consider phasing in the requested accommodation.
APPENDIX C Scenario 10a, Grandparenting/Implementation by Affected Area
Affected Area: Three Bridges/St. Jacobs P.S. boundary Students enrolled at Three Bridges P.S. 2014/2015
All students enrolled at Three Bridges P.S. during the 2013/1014 school year, as well as those students in Kindergarten at St. Jacobs P.S. who would attend Three Bridges P.S. upon graduation to Gr.1, are offered the choice to attend either St. Jacobs P.S. or Floradale P.S. until completion of Gr. 8.
o Transportation provided to St. Jacobs P.S. or Floradale P.S. according to eligibility based on Board Policy 4009 – Student Transportation, until completion of Gr. 8.
Students enrolled at St. Jacobs P.S residing in the portion of the existing boundary to be directed to Floradale P.S. in 2014/2015 2014/2015
Gr. 7 students enrolled at St. Jacobs P.S. during the 2013/1014 school year and siblings, are offered the option of remaining at St. Jacobs P.S. for the 2014/2015 school year. Siblings will be required to attend Floradale P.S. for the 2015/2016 school year and beyond.
o Transportation provided to St. Jacobs P.S. according to eligibility based on Board Policy 4009 – Student Transportation.
Affected Area: Floradale P.S. boundary Students enrolled at Floradale P.S residing in the portion of the existing boundary to be directed to Linwood P.S. in 2014/2015 2014/2015
Gr. 7 students enrolled at Floradale P.S. during the 2013/1014 school year and siblings are offered the option of remaining at Floradale P.S. for the 2014/2015 school year. Siblings will be required to attend Linwood P.S. for the 2015/2016 school year and beyond.
o Transportation provided to St. Jacobs P.S. according to eligibility based on Board Policy 4009 – Student Transportation.
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