SD 50 Masset Schools:

Preliminary Report to the Board

(submitted by Superintendent Day, January 23, 2018)


Introduction:

The Board of Education of School District No. 50 (Haida Gwaii) is dedicated to delivering
educational programs that place a high value on education, that foster excellence in all
participants, that support the achievement of each student’s full potential and promote a
healthy caring environment.

To ensure that we are focused on the path to excellence for all members of the school
community, it is essential that we examine the use of our resources to ensure that we are using
such resources efficiently and with a strong focus on providing opportunities for students and
for learning. For some time, the district has examined the future of Masset schools. It is
evident that there are ways of restructuring the schools so that more resources can be made
available to enhance student learning. One such way of restructuring the schools is to move
students currently attending school at the existing Tahayghen site to Gudangaay Tlaats’gaa
Naay. This report provides information that will inform a decision on the future of the two
schools. It also takes into account much of the information requested by members of the
public, parents, teachers and others in previous discussions.

Background:

SD 50 operates one elementary school and one secondary school in Masset. The closest
elementary school operated by the district is in Port Clements which is 90 km from Tahayghen
Elementary School. The nearest secondary school to Gudangaay Tlaats’gaa Naay (GTN) is in
Queen Charlotte which is approximately 226 km from Gudangaay Tlaats’gaa Naay.

The district has, for several years, sought funding for the reconfiguration of the two Masset
schools through annual capital plan submissions to the Ministry of Education. To date, the
ministry has not supported our capital plan submission, however, several factors have surfaced
that address the need to make a decision on the future of the two schools, in particular, the
need to consider closing Tahayghen Elementary School.

We are currently in a position where the continued operation of both schools limits our ability
to support the best programs possible. If we continue discussions regarding the future of the
two schools, we delay the ability to improve opportunities for students, either by putting
dollars into expensive operational matters or by adding to an environment of uncertainty. Such
an environment changes the way that new initiatives or ideas on the part of teachers and
school staff are dealt with. We have heard teachers talk about the benefits of smooth
transitions, and access for all students to “specialist” teachers in subject areas such as music,
physical education, Haida language and culture and technology.

In addition, plans must begin regarding the building of a Masset Childcare Facility. Recently,
the Ministry of Child and Family Development’s announcement through MLA Jennifer Rice,
advised that SD 50 will receive funding to provide a daycare facility in Masset. In an effort to
ensure long term success of the daycare, the board will need to determine its location prior to
construction. Failure to make a decision regarding the future of Tahayghen now may impact
the success of the daycare. If we were to construct the daycare at the existing Tahayghen site
and there is a future need to reconsider the closing of Tahayghen, moving the daycare will be
disruptive to the daycare programs. In addition, the district will need to incur additional costs
to move the daycare to a new site.

The district has not yet received official notice of this grant from the Ministry of Child and
Family Development, however, the success of the district bid for funding has been announced
to the public. Pending the development of contracts and other documents, this daycare is
expected to be fully functional by the fall of 2018.

Much work needs to happen prior to the official daycare opening. This includes determining
where it is to be located. Current facilities exist on Gudangaay Tlaats’gaa Naay Secondary
School property that can easily be converted into daycare facilities. It is recommended that the
existing music building be converted into the day care. This would require some restoration to
the existing building, the creation of a playground, installation of privacy fencing, and an
addition to the existing building. There are also recent changes to curriculum, and thus a
greater opportunity to examine current teaching assignments and align such assignments
differently than in the past. Other factors are discussed throughout the report, including but
not limited to setting priorities for funding, facilities conditions, enrolment projections, and
student success.

As per board policy C.8 (Appendix A) the closing of Tahayghen would meet the following criteria
in Section B of the policy:

• A school may be considered for closure when there is sufficient space to accommodate
the students in neighboring schools.
• the present and three to five-year enrolment projection;
• the operating cost per student;
• the condition of the facility and the need for capital expenditures to keep the building
operational;
• cost of mothballing the facility for up to five years

Purpose:

The purpose of this preliminary report is to present information that will assist the Board in its
decision respecting the future of Tahayghen Elementary School. Although the board will be
solely responsible for making the decision to close Tahayghen, School District 50 (Haida Gwaii)
Policy C.8 School Closure directs the board to provide a sixty (60) day consultation period prior
to making its final decision to close a school.

This report provides information respecting each of the above criteria to assist in discussions
and decision making. Public consultation will also be considered during the sixty (60) day public
consultation period. Questions raised by the Masset Schools Committee as per the
committee’s submission to Trustee Williams are addressed throughout this report.

A. Sufficient Space

Tahayghen Elementary School has a capacity for 450 students while Guudangaay Tlaats’gaa
Naay has a capacity for 350 students.

Currently, there are approximately 62 students enrolled in Tahayghen Elementary School 93
students enrolled in Gudangaay Tlaats’gaa Naay Secondary School.

In addition to capacity, Gudangaay Tlats’gaa Naay is located on a very large property (Figure 1
Page 4), much of which is currently underutilized. This would allow for future innovative
developments of the property to support unique outdoor learning opportunities.

Gudangaay Tlats’gaa Naay Secondary School’s current classroom complement allows for
sufficient physical space for both an elementary section of the existing structure and separate
secondary section without limiting any “specialty areas” such as gymnasiums, kitchens,
washrooms, offices and technology shops. Figure 2 (page 5) illustrates a very preliminary
suggested design for the combined elementary and secondary facility.

Figure 1: Satellite View of Gudangaay Tlats’gaa Naay Property:

Based on public input obtained to date, it is highly recommended that the current Gudangaay
Tlaats’gaa Naay building have two separate wings, one for Grades K through 7 and another for
Grades 8 through 12. In the proposed design the K-7 wing of the building is separated by closed
doors. A new entryway will be built to ensure safe access to each wing. Also, the district will
build a privacy fence around the proposed daycare and will also fence the elementary school
playgrounds. The existing library at Gudangaay Tlaats’gaa Naay will become the primary
gymnasium. Both panels will have separate kitchens, washroom facilities, and quiet areas.

The initial design takes many factors into consideration that address concerns expressed by the
public. This includes ensuring that the elementary and secondary wings of the combined
facility are separated. Students will not be able to move freely from one panel to the other.
The new grand office, however will be combined but accessible through separate entrances for
elementary and secondary visitors and students. This design is certainly not final and subject to
much further review and consultation with staff, students, parents and members of the local
communities.

Figure 2: Proposed Design for a Combined Facility

Photo Information:
• Blue – Secondary
• Green – Elementary
• Black – General
• Light Green – Greenhouse and Garden Space
• Brown – Fencing

B. Present and Projected Enrolment

Over the past several years, SD 50 has experienced a significant decline in enrolment. This
decline has had a significant impact on the efficient utilization of the two schools given that
their capacity is highly underutilized.

The following table depicts enrolment forecasts for both schools over the next 10 years.


Table 1: Enrolment Projections for Tahayghen and Gudangaay Tlaats’gaa Naay Schools

School Year Enrolment Forecast Enrolment Forecast Combined Enrolment
Tahayghen Gudangaay
Tlaats’gaa Naay
2017 62 93 155
2018 51 93 144
2019 52 86 138
2020 53 91 144
2021 53 94 147
2022 53 103 156
2023 54 107 161
2024 54 113 167
2025 53 114 168
2026 51 114 165
2027 46 116 162

Enrolment projections were calculated by considering the shift of current enrolment to the next
grade. In addition, we examine average kindergarten enrolment from the past 10 years at
Tahayghen and we take 50% of the grade 7 students at Port Clements as enrolling in Grade 8
and Chief Matthews students who transition to Gudangaay Tlaats’gaa Naay.

It is important to note that the enrolment projections presented do not factor in the movement
of students to other non-SD 50 schools.

C. Operating Cost

Operating costs are based on current expenditures including salaries and benefits, supplies,
insurance, utilities, and telephone.

The approximate cost for operating Tahayghen Elementary School for the 17.18 academic year
at its current site is $1,303,000.

The approximate cost for operating Gudangaay Tlaats’gaa Naay Secondary School for the 17.18
academic year is $1,770,000.

The district estimates savings in the amount of $300,000 per year including reduction in
staffing, goods and services and utilities. Savings based on operating costs would be provided
to the school for the next five years at which time the budget adjustment would be reviewed.

D. Condition of the Facility and Capital Expenditures

The Ministry of Education regularly evaluates/audits the condition of the facility. Information
gathered in the audit of the building results in the determination of what is termed a “Facilities
Condition Index”.

The purpose of the facility condition audit is to determine the equivalent age and condition of
each school building. The condition includes reviews of structural, architectural, mechanical,
electrical, plumbing, fire protection, equipment and furnishings and life safety structures. The
audit determines what resources will be required over the coming years to maintain or replace
aging facility systems.

Each school is given a rating called the Facility Condition Index (FCI). The FCI is expressed as a
decimal percentage of the cost to bring existing less than satisfactory systems up to current
standards. In the case of Tahayghen, the building with an FCI of 0.7 would require at a
minimum, 70% of the cost to replace all systems in the school. This factor only takes into
account materials for such replacements and does not factor in additional labour and other
costs for work to be done to make any necessary repairs, to bring it up to excellent or good
condition. The actual cost for replacing poor systems would, in reality be much greater when
labour and other costs are considered.

For practical purposes, the FCI ratings have the following meaning:

0.0 to 0.05 – Excellent (Near new condition. Meets present and future requirements)

0.05 to 0.15 – Good (Good condition. Meets all present requirements)

0.15 to 0.30 – Average (Has significant deficiencies, but meets minimum requirements.
Some significant building system components nearing the end of their
normal life cycle)

0.30 to 0.60 – Poor (Does not meet requirements. Immediate attention required to some
significant building systems). Prior to any major renovations, Gudangaay
Tlaats’gaa Naay fell into this category. Since the school has undergone
recent extensive renovations, it is expected the next audit will result in a
lower rating. In addition, renovations that will occur at Gudangaay
Tlaats’gaa Naay for the reconfiguring will further reduce the FCI.

0.60 and above – Very Poor (does not meet requirements. Most building systems are at
the end of their life cycle. High risk of failure of some systems)

The ministry has currently allocated an FCI rating of 0.7 to Tahayghen and an FCI of 0.51 to
Gudangaay Tlaats'gaa Naay. It is important to note that the FCI of 0.51 for Gudangaay
Tlaats’gaa Naay is likely much lower. This rating does not take into account many upgrades that
the school has undergone in the last 2-3 years. When these upgrades are considered in the
determination of the FCI by the ministry, it is expected that the FCI will decrease greatly and
have a rating more in line with excellent to good condition.

Because Tahayghen has a significantly high FCI rating, the board will have to put significant
monies in place to repair and upgrade Tahayghen. Requests to the Ministry for the additional
capital funding necessary to upgrade Tahayghen will likely be denied.

The Ministry of Education provides funds to School Districts through Annual Operations grants
that are largely based on pupil enrolment. At times, school districts may receive additional
grants for special capital projects or programs, however, these special project grants are not
always available or accessible to all districts and are considered on a case by case basis.

It is estimated that it will cost more than four (4) million dollars to ensure that Tahayghen
Elementary School facilities remain safe and reliable for the student learning environment. Of
note, seismic upgrades are not included in the calculation of the FCI. Currently, Tahayghen
does not meet seismic standards.

E. The Future of Tahayghen Site:

The actual building is currently owned by the district. The land is owned by the crown. Should
the board move to close Tahayghen, the following options are available to the board:

1. The land can be reverted back to the crown and the district can demolish the school.
Or
2. The district may be able to sell the building to another publicly funded academic
institute and apply to transfer the land to the purchaser.
Or
3. The district may apply to the ministry to buy the land and then sell the building and
property at fair market value. This can be a very lengthy process.

These options are all subject to Ministry and Board approval.

F: Cost of moving Tahayghen to Gudangaay Tlaats’gaa Naay

An initial review of proposed renovations to Gudangaay Tlaats’gaa Naay suggests that costs of
the renovations necessary to ensure that the school is ready for the transition would be

approximately Two (2) million dollars. Funds for the renovations will come from the Annual
Facilities Grant, School Enhancement Projects Grant and Capital Programs Grant.
It is anticipated that the cost of moving equipment, furniture and school supplies over to
Gudangaay Tlaats’gaa Naay will be approximately $10,000.
IT costs will be minor as there is already significant IT infrastructure in Gudangaay Tlaats’gaa
Naay.
Costs incurred to move Tahayghen can be recouped in the next five years from the savings and
other district wide efficiencies and the Annual Facilities Grant.
G: Staffing
We anticipate minimal staff reductions. Despite the one-time reductions, there will be
opportunities to redirect funds to new positions that have a direct impact on student
achievement, for example, a dedicated music teacher.
H: Anticipated Benefits of Closing Tahayghen Elementary School

Several school districts in British Columbia have faced declining enrolment. Some school
districts have made the difficult choice to close schools. School districts dealt with this issue
through various ways. These include bussing students to other schools and/or reconfiguring
elementary and secondary schools.

SD 50 prides itself on its top priority, that of putting the educational needs of students first.
The district has conducted a review to ensure that any reconfiguration decision is based on
positive outcomes for students. The information below is based on conversations with
Superintendents from BC school districts that have been through the amalgamation process
and extensive research on the impact of amalgamation on student learning and ultimately
student success.

Three years ago, the elementary and secondary schools in Ashcroft BC (School District 74 Gold
Trial) were combined into one facility. Superintendent Day spoke at length with SD 74 to seek
feedback on the process and subsequent outcomes of the reconfiguration. It was learned that
many of the concerns that have been presented to SD 50 staff and trustees were also presented
to SD 74 staff and trustees. Concerns were reflective of student safety, particularly with an
anticipation that young student access to older students would lead to negative behaviours and
choices on the part of the younger students. As such, the initial configuration in SD 74 was to
have completely separate schools under one roof based on public input. The facility was
designed to ensure that the elementary students did not interact with secondary students.
The reconfiguration, according to SD 74 Superintendent, Teresa Downs, has resulted in
extremely positive results exceeding original expectations. For example, although the shop
classes were only available to secondary students immediately following the reconfiguration,
the school now operates combined shop classes that involve students from Grades 4 though 12.
The school has also been able to enhance its music program for all students. The secondary

students have developed a strong sense of the importance of positive role modelling for
younger students.
Superintendent Downs reported that, although, the intent was to keep students separate, the
students played a significant role in promoting programs that brought students together. The
school staff have really come together as well. Now, the staff work as a single unit. This has
proven to be of great value to improving student achievement, smoother transitions from
elementary to secondary grades, a more in-depth understanding of individual student needs
and ultimately improved attitudes and sense of belonging for all members of the school and
school community. One strategy to enhance student learning is through inquiry. SD 74 has
provided a video link to demonstrate how students at the junior and intermediate levels work
together on inquiry based projects. The video can be found at:
https://www.academia.edu/29164934/Working_Together_to_Create_Student-
Driven_Interdisciplinary_Learning_Desert_Sands_Community_School
In addition to SD 74, School District 60 (Peace River North) operates a K-12 school (Hudson’s
Hope Elementary-Secondary School). The staff report that benefits of a K-12 school include:
• increased retention of skills
• decreased anxiety of transitions from elementary to high school
• a greater feeling of community
• positive relationships between older and younger students
• K-12 students learning together about leadership, mentoring and social responsibility in
authentic and meaningful ways
www.Hudson.prn.bc.ca
Much of the research on K-12 schools supports the thesis that operating a K-12 school has
extensive benefits and recommends that school districts should consider a K-12 structure when
attempting to restructure schools.
If Tahayghen and Gudangaay Tlaats’gaa Naay were under one roof, in addition to the
opportunity to create a soundproof music room and recording studio with instruments
available, all students will have access to programs such as cooking classes, shop classes, use of
a modern home economics room. Students will also benefit from potential access to a modern
Science laboratory, strengthened access to specialty teachers, and mentoring programs. The
school grounds can be designed to create an exemplary outdoor education area that focusses
on connections to the land and traditions of the Haida people.
I: Student Safety

SD 50 has held meetings with the public and staff of Masset schools to talk about the future of
both Tahayghen and Gudangaay Tlaats’gaa Naay schools. In those meetings, the district heard
several concerns respecting the reconfiguration. Such matters include the safety of students,
the security of staff, parents and visitors to the school and other community members.

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Should the board determine that its best interest is to close Tahayghen, school leaders will
work with their PACs to ensure that safety planning and the implementation of socially
responsible programs and extracurricular events are in place. Much of this will also be
supported by the newly appointed Child and Youth Wellness Support Worker.

The district will ensure that in the development of final plans for the structure of the
reconfigured common facility, safety will be strongly addressed. For example, currently,
Gudangaay Tlaats’gaa Naay has 16 cameras in and around the school. The district would
increase this number to 32, thus doubling the ability to monitor activities in the entire facility
and grounds.

The new main entrance will improve secure access to the building for all visitors, staff and
students.

J. Community Partnerships

Currently School District 50 leases space in Tahayghen Elementary School to Northwest
Community College and to Haida Gwaii Rec. Should the board move to begin public
consultation regarding a potential closure of Tahayghen Elementary School, the district would
meet with the affected organizations.

K. Future Use of Gudangaay Tlaats’gaa Naay Land

The grounds around Gudangaay Tlaats’gaa Naay are of a significant size. The district will
continue to examine how to optimize the space in future plans. By pooling funds allocated to
improve the grounds of one site, we anticipate the creation of a more useable, safe, and
learner friendly outdoor environment.

In addition, the district will move the greenhouse and ensure that there is dedicated ample
space for large school and community gardens.

L. The Consultation Period

During the consultation period, staff from the district office intend to seek input from all
stakeholders through multiple avenues. The district will set up a feedback link on the board
website to allow for continued feedback. In addition, senior staff will attend PAC meetings,
meet with students, attend staff meetings and hold a face to face meeting during the 60 days.
Schools will also collect written feedback.


RECOMMENDATION TO THE BOARD

It is recommended that the Board of Education pass a motion to begin the 60-day public
consultation requirement to close Tahayghen Elementary School.

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APPENDIX A:

SCHOOL DISTRICT 50 POLICY C:8 SCHOOL CLOSURES

Policy C.8 (Formerly 6030)

Policy Subject: SCHOOL CLOSURE
Date Passed: January 2004
Date Approved: January, 2004
Policy: SCHOOL CLOSURE

POLICY
The Board of Education is responsible under the School Act for the effective and efficient operation of
schools in the school district. To this end, the Board has the authority to close a school for reasons which
result in the school being deemed surplus to the districts educational needs.

The permanent closure of a school is a significant issue of public concern and therefore the Board will
follow a process that provides for sufficient consultation with those whom will be affected prior to any
decision being made.

PROCEDURE
A. Public Board Meeting:
Any proposed closure of a school shall first be raised at a regular open meeting of the Board.

B. Criteria for considering school closure:

A school may be considered for closure when there is sufficient space to accommodate the students in
neighbouring schools. In addition the following factors need to be considered:
a. the present and three to five year enrolment projection;
b. the number of the children in the catchment area that do not attend the school;
c. the number of the children attending the school from outside the catchment area;
d. the operating cost per student;
e. the condition of the facility and the need for capital expenditures to keep the building operational;
f. the limitations of the facility that restrict appropriate education programming;

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g. the total enrolment of a school;

h. effects of closure on length of school bus runs;
i. availability of alternate local facilities for community recreation and education;
j. cost of mothballing the facility for up to five years;

C. Opportunities for Students Displaced by School Closure:

The district will ensure that all district students displaced by a school closure will have opportunities to
receive an appropriate educational experience in another school in the district. The registration of displaced
students will be subject to the guidelines contained in School Choice Policy and School Act.

D. Public Consultation:
1. The process of consultation for school closure shall require at least sixty (60) days commencing from the
time when the Board provides public notice as to which specific school(s) are being considered for closure.
2. The process of consultation shall provide an opportunity for those who will be affected by a proposed
closure to participate in the process. Such participation should include trustees, parents, Band Councils,
Haida Education Council, community members, district staff, and school staff.
3. Public consultation shall be undertaken by the Board prior to making a final decision on any proposed
closure of a school.
4. The Board shall make available, in writing, a full disclosure of all facts with respect to any proposed
school closure, including:
i. detailed reasons for the proposed school closure;
ii. specific school(s) being considered for closure;
iii. the general effect on surrounding schools;
iv. the number of students affected at both the closed school(s) and surrounding schools;
v. the effect of proposed closures on student transportation;
vi. educational program implications for the affected students;
vii. the proposed date of the closure(s);
viii. financial considerations;
ix. impact on the Board's capital plan;
x. proposed use of the closed school(s);

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5. The Board shall provide an adequate opportunity for affected persons to submit a written response to
any proposed school closure. Written responses may be referred to at subsequent public forums respecting
the closure.
6. The Board shall hold at least one public meeting to discuss the proposed closure, summarize written
submissions, and listen to community concerns and proposed options;
7. The Board shall maintain records of all consultation meetings.

E. Public Meeting:
The time and place of the public meeting shall be appropriately advertised to ensure adequate advance
notification to affected persons in the community.

Generally, this will mean a letter to students and parents of students currently attending the school, and a
clearly visible notice in the community newspaper.

Discussions shall include a full disclosure of all facts with respect to any proposed school closure,
including:
a. implications of the closure;
b. implementation plans, including timing of the closure;
c. options that the Board considered as alternatives to closure;
d. possible future community growth in the area of the school;
e. contents of written submissions presented to the Board by members of the community.

Following the public meeting, the Board shall give fair consideration to all public input prior to making its
final decision with respect to any proposed school closures.

F. Notification to the Minister:

If the Board decides to permanently close a school under Section 73 of the School Act, the Board must,
without delay, provide the Minister with written notification of the decision containing the following
information:
a. the school's name
b. the school's facility number

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c. the school's address, and

d. the date on which the school will close.

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