Grassland School Viability Study - Prepared for Aspen View School Division by: Consultants from Edmonton Public Schools Infrastructure Planning ...
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Grassland School Viability Study
Prepared for Aspen View School Division by:
Consultants from
Edmonton Public Schools
Infrastructure Planning
January 16th, 2020
Page 1 of 16
Table of Contents
1.0 Executive Summary ................................................................................................................................. 3
2.0 Guiding Principles ................................................................................................................................... 4
2.1 Alignment with AVPS Foundational Statements ................................................................................. 4
2.2 Alignment with AVPS Policy 15 – School Closure ............................................................................... 5
3.0 Attendance Area and Facility Data ......................................................................................................... 6
3.1 How the closure would affect the attendance area defined for Grassland School ............................ 6
3.2 Facility Condition Data ........................................................................................................................ 6
4.0 Sector Review.......................................................................................................................................... 8
5.0 Grassland Enrolment and Class Configuration........................................................................................ 8
5.1 How the closure would affect the attendance area at other schools ................................................ 9
5.1 Grassland School Enrolment ............................................................................................................... 9
5.2 How the closure would affect other schools .................................................................................... 10
5.3 The number of students who would need to be relocated as a result of the closure...................... 10
5.4 The need for and extent of busing .................................................................................................... 10
6.0 Student Programming ........................................................................................................................... 11
6.1 Program implications for other schools and for the students when they are attending other
schools. ................................................................................................................................................... 11
7.0 Educational and Fiscal Implications ...................................................................................................... 11
7.1 Educational and Financial Impact of Closing Grassland School (Operational Costs and Capital
Implications)............................................................................................................................................ 11
7.2 Educational and Financial impact if the school were to remain open.............................................. 12
7.3 The capital needs of the schools that may have increased enrolment as a result of the closure. ... 13
8.0 Alternative Facility Use ......................................................................................................................... 13
8.1 Proposed Use of the School Building if the Entire School were closed ............................................ 13
9.0 Conclusion ............................................................................................................................................. 13
10.0 Appendices .......................................................................................................................................... 14
i. Grassland and Boyle Schools 10 Year Enrolment Projections.............................................................. 14
ii. Attendance Area Maps for Grassland and Boyle Schools ................................................................... 15
iii. Grassland School Walkthrough .......................................................................................................... 16
Page 2 of 16
1.0 Executive Summary
On November 7, 2019, The Board of Trustees of the Aspen View Public School Division (AVPS) passed a
motion to “direct Administration to conduct a viability study on Grassland School in accordance with
Policy 15.” On November 15, 2019, Edmonton Public School Division (EPSB) was contracted to conduct a
viability study for Grassland K–12 School. Planners from EPSB visited the school on December 2, 2019, to
observe the day‐to‐day operations and programming within the school as well as to assess the overall
condition of the building. In addition, facility data from Alberta Infrastructure was collected and
analyzed and an economic scan of the greater Athabasca region was done as part of this study.
In an effort to ensure equitable access to the highest quality education for all students within the
Division, the recommendation of this report is to formally close Grassland School and re‐designate
students to Boyle School.
Five‐year historical enrolment statistics were used to create 10 year enrolment projections up to and
including the 2029/2030 school year. These projections indicate a steady enrolment for the next decade
at between 60 and 67 students. Elementary grades (K–6) are projected to peak at 41 students in
2021/2022 and then gradually decline to 31 students by 2029/2030; below the viability threshold of 40
students. Junior high students are projected to remain below the viability threshold of 30 students for
the next ten years, peaking at 21 students by 2024/2025. High school enrolment is also projected to
remain significantly below the viability threshold of 30 students, peaking at 18 students by 2027/2028.
Grassland School has a capacity of 251 student spaces. Based on the current enrolment, utilization is
calculated at 24%.
Grassland School September 30 Enrolment 1 Year 5 Year 10 Year
Year 2015/14 2016/17 2017/18 2018/19 2019/20 2020/21 2024/25 2029/30
Est. Adj. Enrolment 95 92 81.5 61 62 64 66 62
Total Headcount 95 91 81 62 60 62 64 60
Capacity 251
Utilization 24%
The next nearest school is Boyle, located approximately 20 minutes south of Grassland. Boyle School has
a capacity of 540 student spaces. Based on the current enrolment, utilization is calculated at 50%. The
school has sufficient space to accommodate students from Grassland and is able to offer a wider variety
of educational and extra‐curricular programming due its larger student population.
Boyle School September 30 Enrolment 1 Year 5 Year 10 Year
Year 2015/14 2016/17 2017/18 2018/19 2019/20 2020/21 2024/25 2029/30
Est. Adj. Enrolment 245.5 224 212.5 224.5 233 234 260.5 287
Total Headcount 251 228 221 233 239 241 269 294
Capacity 540
Utilization 50%
Transportation times were also considered as part of this viability study. Based on the existing pick‐up
times for the four buses servicing Grassland school, ride times would increase by approximately 20
minutes one‐way.
Page 3 of 16
2.0 Guiding Principles
This viability study aligns with AVPS Division principles and policies and is consistent with Provincial
regulations as identified in section 62 Closure of Schools in the Province of Alberta Education Act.
62(1) A board may, only by resolution, permanently or temporarily
(a) close a school, or
(b) transfer students from one school building to another school building.
(2) A board shall establish, implement and make publicly available policies respecting the
actions referred to in subsection (1).
(3) A policy established pursuant to subsection (2) must be consistent with any
regulations made by the Minister under this section.
(4) Where a board is considering an action referred to in subsection (1), the board shall,
in writing, notify
(a) the parents of every student enrolled in the school that may be affected by
the action considered under subsection (1), and
(b) any other person, municipality or community organization who, in the
opinion of the board, may be significantly affected.
2.1 Alignment with AVPS Foundational Statements
In keeping with the Division’s foundational statements, this viability study aims to ensure alignment with
the following Division commitments:
Student Learning: Inspire to engage in relevant learning experiences in an inclusive environment that
leads to academic student success.
The Grassland School viability study takes into consideration the importance of providing all
students within the division an opportunity to enrich their academic experience.
Staff Learning: Support staff members to be reflective, life‐long learners, continually striving to improve
their practice.
The Grassland School viability study is an important tool that evaluates the efficacy of staff
professional development by ensuring staff has sufficient opportunity to learn through
collaboration, co‐planning, lesson sharing and/or debriefing.
Communication: Engage in open, active, ongoing and honest communication with students, staff
parents and community.
Page 4 of 16
This viability study provides the necessary components for an open discussion and honest
evaluation of a school’s learning and teaching environment while balancing the fiscal realities of
the Division.
Culture and Climate: Promote teamwork and modeling welcoming, caring, respectful, safe and inclusive
schools that demonstrate diversity.
This viability study recognizes the importance of each of these elements in a learning
environment, and identifies components that work well and those that that may be improved
for the benefit of students, teachers and families.
Social Emotional Needs: Encourage all students to develop self‐awareness and decision‐making skills to
achieve personal and interpersonal fulfillment.
This viability study helps to identify the components needed to ensure a school contributes to
well‐rounded academic fulfilment which includes social and emotional needs.
Physical Needs: Promote and model active and healthy lifestyle choices. Every student within AVPS
should have opportunities to be active either individually or through organized team sports.
The Grassland School Viability Study assesses the available curricular and extracurricular
opportunities for students within the Grassland attendance area.
Entrepreneurial Spirit: Equip students with skills in areas of innovation, technology, literacy and
numeracy; enabling them to adapt and thrive in an ever‐changing world.
Recommendations resulting from data collected in this study recognize the importance of this
priority especially within the current economic environment where changes in future
employment opportunities remain fluid.
2.2 Alignment with AVPS Policy 15 – School Closure
The Grassland Viability Study follows the requirements set out in Policy 15 AVPS Board Policy Handbook.
Article 3 identifies that “The Board may consider closure of a school or grade division when any one or
more of the following conditions exists” and specifically Section 3.6 reads as follows:
The student enrolment at the particular school or portion thereof has declined below the following levels:
3.6.1 Elementary – 40 students in grades 1 to 6, or 20 students in any three consecutive
grades.
o The Grassland School September 30th enrolment count for the 2019/2020
school year is 36 students in grades 1 to 6.
Page 5 of 16
3.6.2 Junior High – 30 students in grades 7 to 9, or 20 students in schools with two
grades in junior high school.
o The Grassland School September 30th enrolment count for the 2019/2020
school year is 10 students in grades 7 to 9.
3.6.3 High School – 30 students in grades 10 to 12.
o The September 30, enrolment count for the 2019/2020 school year is 9
students in grades 10 and 11. Five grade 12 students are currently attending
Boyle School this year.
3.0 Attendance Area and Facility Data
3.1 How the closure would affect the attendance area defined for Grassland School
The Hamlet of Grassland is located along Highway 63 between Edmonton and Fort McMurray. According
to Statistics Canada, the 2016 population count was 68 residents. This is down 27.7% from 2011. The
total number of school aged children (5–19) living within the census area is listed as 151 as of 2016.
The Grassland school attendance area consists of the communities of Grassland, Atmore, Frains and
Spruce Valley along with the surrounding rural farmland. It borders onto the attendance areas for
Athabasca to the west, Boyle to the South and the Northern Lights School Division to the North and East.
If Grassland school were to close, the Aspen View Public School Division would need to re‐designate
students to either Boyle or Athabasca based on the student’s relative proximity to either school.
3.2 Facility Condition Data
Grassland Community School is a single‐storey, concrete masonry and wood framed structure, originally
built in 1957. It has a total floor area of approximately 2,546 m². A small addition was built on the north
side of the school in 1975 to house a main office, having a total floor area of approximately 9 m².
Another small addition was built on the south side of the gymnasium in 1977 that included an exterior
storage area and has a floor area of approximately 29 m². In 2002, a third addition was built on the east
side of the building to contain the library and is approximately 180 m². This brings the total floor area of
the building to 2,764 m².
The exterior stucco of the building was replaced in 1985. This stucco cladding has localized cracks,
stained surfaces and prior patching repairs. Exterior windows are original aluminum frame with
integrated blinds between single‐pane glass. Entry doors are painted metal that are hinge‐mounted in
pressed steel frames.
Interior walls are generally painted concrete masonry or painted gypsum board. Wood wall paneling is
installed in the principal’s office, workroom and storage room off of the infirmary. Wood acoustic panels
are installed on the upper half of the gymnasium walls. Ceramic wall tiles are installed in both the boys
1
https://www12.statcan.gc.ca/census‐recensement/2016/dp‐
pd/prof/details/page.cfm?B1=All&Code1=480090&Code2=48&Data=Count&Geo1=DPL&Geo2=PR&Lang=E&SearchPR=01&SearchText=Grassla
nd&SearchType=Begins&TABID=1
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and girls bathrooms. Brick veneer is installed in the entrance vestibules and on the east wall of the
gymnasium.
Most floor surfaces in the building have been upgraded to vinyl composite tiles except in rooms three,
five and six. The floors in Rooms three and five appear to be shifting as evident by cracks at the doorway
thresholds. The library contains carpet as do a couple of small offices in the northeast classroom pod
(converted from Room 16). The main office, principal’s office, staff room and infirmary contain sheet
vinyl plank flooring. Ceramic floor tiles are installed in both bathrooms. The gym flooring has been
upgraded to hardwood strip flooring and appears to have been installed over the previous flooring;
evident in the step‐up into the gym.
The ceiling is finished primarily with a suspended metal t‐bar grid and the acoustic ceiling tile
throughout the building was upgraded in 1985. Lighting is surface mounted and contains newer T8
ballasts. Small classroom storage closets contain original ceilings with perforated MDF panels and no
lighting.
The school has an intrusion detection system complete with motion sensors. There is swipe card access
installed for all exterior doors. There is also a fire panel with an annunciator panel, bells, strobes, smoke
detectors and pull stations installed throughout the school. There are emergency lighting packs installed
as well and LED exit lighting.
There are 23 natural gas fired forced air furnaces located within classrooms, the library and externally
accessed mechanical rooms. Building controls consist of wall mounted thermostats for all heating. Most
furnaces were installed between 2009 and 2011. There are two furnaces in the south mechanical room
that provide heat to the common and administrative areas and are estimated to have been installed in
2016. The gymnasium has its own furnaces as well, installed earlier this year. There is an air handling
unit installed in the server/electrical room and an AC unit installed in the kitchen.
The front parking lot is paved and powered. There is a brand new playground installed at the southeast
corner of the building. The school indicated that there are plans for a concrete play pad directly south of
the building and for the restoration of the hockey rink.
Alberta Infrastructure measures the relative condition of a facility by considering the cost of deferred
maintenance, repairs and the value of a facility within a five‐year window. The five‐year window
includes requirements that are deferred in the current fiscal year plus the next four fiscal years. FCI is
calculated by dividing the Maintenance Cost by the Replacement Value. Typically, Alberta Infrastructure
audits government facilities on a five‐year cycle.
Overall, the major building components have been well maintained. Despite some dated interior finishes
and aging windows, Alberta Infrastructure rates the building’s FCI as 15.21%. A building with an FCI of
15% to 40% is considered to be in fair condition.
5 Yr Maintenance Cost Replacement Value
School Current FCI
(Mar‐31‐2019) (Mar‐31‐2019)
Grassland School $ 1,787,336.00 $ 11,747,916.00 15.21%
Page 7 of 16
4.0 Sector Review
As part of an economic scan of the area affected by any potential closures, this study included a review
of municipal plans and statutory documents pertaining to growth patterns, land use and industrial
activity that may impact future student growth.
The Alberta Energy Corridor identifies the Hamlet of Grassland as an amenity‐access point for traffic
traveling on Highway 63 between Edmonton and Fort McMurray. Future land use planning within the
Hamlet is guided by the 2012 Community Plan. The plan was completed as part of the Alberta Energy
Land Use Strategy which includes Athabasca County, the Village of Boyle and a range of other private
partners. Since the Community Plan was adopted in 2012, the population of Grassland has shown a
steep decline; averaging approximately ‐5.5% per year. This is, in part, due to the decline in Alberta’s oil
and gas industry. Despite the recent downturn, other industrial projects in the region have managed to
continue operating and expanding in some cases.
Alberta Pacific Forest Industries Inc.
Alberta‐Pacific is located in northeast Alberta, approximately 200 kilometres north of Edmonton and 20
minutes north of Grassland. The pulp mill is a leading manufacturer of bleached kraft pulp with an
annual production of approximately 640,000 tonnes. Al‐Pac has been operating since 1993 and
continually invests in new technology to remain internationally competitive and environmentally
responsible. The Mill employs 385 full time workers and 800 contractors2. Most of the mill’s employees
live in the nearby communities of Lac La Biche, Boyle, Plamondon and Athabasca.
Athabasca Minerals Inc. Pear Lake Proppant Sand Project
The proposed project includes a pit (mining of sand) connected by a slurry line to a sand washing,
sorting, drying, and storage facility to produce proppant for oil & gas customers in Alberta and British
Columbia. The facility will be located approximately 8 km south‐east of the Town of Athabasca. If
approved, the mine will take approximately one year to construct and will result in 30 to 50 full‐time
jobs3. Future mine operations are not anticipated to have a significant impact on student enrolment at
Grassland School.
5.0 Grassland Enrolment and Class Configuration
The following section examines the projected enrolment at both Grassland and Boyle Schools.
Enrolment projections are determined by using the previous five years of data as provided by the
Division (appendix i) and projecting these number ten years forward. Adjustments are made to account
for anomalies and program changes.
2
Source: Conversation with Alberta Pacific Public Relations
3
Source: Conversation with Athabasca Minerals Public Relations
Page 8 of 16
5.1 How the closure would affect the attendance area at other schools
As of September 30, 2019, student enrolment at Grassland School was recorded as follows:
Grade K 1 2 3 4 5 6 7 8 9 10 11 12 Total
# of Students 4 8 8 6 8 3 3 4 2 5 6 3 1* 61
*One student returned from the Boyle pilot program.
The students are grouped into five classes for teaching as indicated by the principal: K and 1, 2 and 3, 4,
5 and 6, 7, 8 and 9, 10 and 11. The high school students have been participating in a three year pilot for
the Knowledge and Employability program facilitated at Boyle School. The current school year is the last
year of this pilot so the grade 10 and 11 students have returned to Grassland School and the grade 12
students will finish out this year at Boyle.
5.1 Grassland School Enrolment
Enrolment at Grassland School has demonstrated
a steady decrease for the past five years. Since
2015, enrolment has dropped by 35 students or
roughly 37%. The majority of students live
outside the Hamlet of Grassland. Total
headcount is projected to remain steady for the
next 10 years mainly due to relatively large K–6
cohort currently enrolled in the school.
The K–6 program is projected to continue to be
below the Division’s viability criteria of 40
students until the 2022/2023 school year.
The 7–9 cohort is currently 19 students below
the viability criteria but is projected to peak at 21
students in 2024/2025; still 9 students under the
viability benchmark of 30 students in junior high.
The 10–12 cohort is also projected to remain
below the viability criteria, peaking at 18
students in 2027/2028, which is still 12 students
below the viability benchmark of 30 students.
Alberta Infrastructure calculates the capacity of
Grassland School to be 251 students. Based on
the enrolment projections, the school will
continue to have a surplus of student spaces,
between 184 (current) and 191 (peak), over the
next ten years. Underused space within the
Page 9 of 16
school will continue to incur utility and operating expenses which must be covered from a limited plant
operation and maintenance (PO&M) funds (received per pupil). Any surplus student space will continue
to require access to scarce Infrastructure Maintenance Renewal (IMR) capital.
5.2 How the closure would affect other schools
Boyle School is the next school, by closest
geographic location, to majority of the
students within the Grassland attendance
area. As such, Boyle School is included in this
viability study to assess the efficacy of
accommodating students from Grassland
School for the foreseeable future; should
the Board pursue a full or partial closure.
Grade K 1 2 3 4 5 6 7 8 9 10 11 12 Total
# of Students 20 23 28 14 20 20 17 19 14 14 15 14 21 239
Boyle School currently has 239 K–12 students enrolled as of September 30, 2019. The school has a
capacity of 540 students. Enrolment at the school is projected to increase gradually over the next 10
years; peaking at 294 students by 2029/2030. At the current enrolment, the building is 50% utilized.
Despite the projected enrolment increase over the next decade, the utilization rate will peak at 53%.
The school is projected to have sufficient space to accommodate growth and potential student
redirection for all students currently enrolled at Grassland School for the foreseeable future, as well as
accommodate any growth in either the Grassland or Boyle communities should that occur.
Alberta Infrastructure lists the Facility Condition Index (FCI) at 13.87%. Schools within the range of 0‐
15% are considered to be in good condition.
5 Yr Maintenance Cost Replacement Value
School Current FCI
(Mar‐31‐2019) (Mar‐31‐2019)
Boyle School $ 2,867,085.00 $ 20,667,398.00 13.87%
5.3 The number of students who would need to be relocated as a result of the closure
If Grassland school were to close, 61 students would need to be relocated. These students would need
to be re‐designated to either Boyle School or another grade appropriate school in Athabasca.
5.4 The need for and extent of busing.
Page 10 of 16For the students who currently attend Grassland School, there are four designated bus routes. The
earliest pickup time is approximately 7:23am with a one‐way trip time of 1 hour and 27 minutes. If these
students are re‐designated to Boyle School, there would be an additional 20 minutes of commuting time
from Grassland to Boyle making the total trip approximately 1 hour and 47 minutes one way. Further
travel‐time analysis should be conducted to determine if busing to schools in Athabasca may be better
suited for some student living west and northwest of Grassland.
6.0 Student Programming
6.1 Program implications for other schools and for the students when they are attending
other schools.
If the high school program at Grassland School were to close, the approximately 61 students that would
be designated to Boyle School would have access to regular programming at Boyle School for both
university and trade admittance, a fine arts program, diverse career & technology studies and a wide
variety of sports programming. Students would have access to CTS programs including Drama, Art,
Foods, Cosmetology, Carpentry, Welding, Psychology, Tourism & International Cuisine, Leadership and
Work Experience with new courses offered each semester. Team sports includes volleyball, basketball,
golf, curling, house leagues and tournaments. Boyle has a strong focus on literacy with leveled literacy
interventions, reading and writing workshops and an in‐house tutoring program. Boyle School also has a
number of important support services for students including an in‐house playschool program,
Knowledge and Employability program, Community Awareness group, School Council and Student and
Career Counselling services.
7.0 Educational and Fiscal Implications
7.1 Educational and Financial Impact of Closing Grassland School (Operational Costs and
Capital Implications)
Educational Impact
Program choice is an important component in a high school setting. Consolidating the senior high
programming to Boyle would provide students with a more rounded experience by providing a larger
array of program and extracurricular options. A larger school can offer a selection of second languages,
Career and Technology Studies modules, Fine Arts Options and other opportunities that a smaller school
cannot offer because of limited staffing. A larger school environment also allows for better teacher
collaboration and opportunities for peer‐to‐peer learning and support. As a result, students are exposed
to a broader diversity of teacher skills, knowledge and subject matter strengths. Furthermore, students
are introduced to a more diverse student population which encourages an exploration of a variety of
clubs and social activities while enhancing their social development.
Financial Impact
Based on Alberta Infrastructure’s Facility Condition Audit conducted on February 27, 2019, the 5‐Year
Maintenance needs total $1,778,336.00. Closure of the school would mean that these repairs and
upgrades would no longer be required. Furthermore, the utility costs of keeping the building open
would be significantly reduced.
Page 11 of 16The 2019/2020 budget for Grassland school is as follows:
2019/20 Fall 2018/19 Grade Number of FTE
Grassland School
Update Budget Staff
Certificated Staff
Salary and Benefits $630,617 $666,068 Pre K 1 0.5
Support Staff
Salary and Benefits $160,531 $143,460 K/1 1 1.0
Service, Contracts & Supplies
Advertising 200 ‐ 2/3 1 1.0
Professional Services 3,400 3,000
Contract Services/ R & M 5,000 7,500 4/5/6 1 1.0
Travel & Subsistence 900 3,268
Student & Staff Recognition 800 ‐ 7/8/9 1 1.0
Photocopy Charges 8,500 17,800
Postage 108 112 10/11 1 1.0
Registration Fees 3,140 2,975
Telephone 1,500 2,400 Principal 1 1.0
Library Resource 775 ‐
Supplies 26,900 26,370 Admin Support 2 0.5
Textbooks 1,500 2,500
Equipment < $5000 1,425 2,460
Sub Total $54,148 $69,160 Educational 4 1.0
Capital & Debt Services Assistants
Amortization Expense 7,836 750
Sub Total $7,836 $750 Custodial 2 1.0
TOTALS $ 853,132.00 $ 879,439.00
If Grassland School were to close, the above budgeted funds, including the education administrative and
support costs, would be available for redirection to other schools.
7.2 Educational and Financial impact if the school were to remain open.
Educational Impact
If Grassland School were to remain
open, educational programming would
remain the same. Teaching cohorts may
change to accommodate a smaller
number of students in each grade.
Students would have significantly
smaller class sizes and may not have
the same programming and
extracurricular choices as would be
available in a larger school. The amount
of surplus student spaces would remain
relatively consistent at between 184
(current) and 191 (peak) over the next ten years.
Page 12 of 167.3 The capital needs of the schools that may have increased enrolment as a result of the
closure.
The addition of approximately 60 students would have a limited impact on the capital requirements of
Boyle School. The School is currently 50% utilized and has sufficient space to accommodate student
reallocations. Increasing the utilization of the school may help build a case for capital funds to
modernize the building and would improve the operating cost per student ratio at Boyle School.
8.0 Alternative Facility Use
8.1 Proposed Use of the School Building if the Entire School were closed
If the entire school at Grassland is to be closed, the school building could be used in a number of
different ways. The current daycare could expand into the southeast wing for closer access to the
playground. The gymnasium could be rented out for sports or community events. The classrooms could
also be rented out to local groups and used for a number of different ventures, ie: Book clubs, Pottery
groups, 4‐H classes etc. The local Fire Hall could potentially use the school for training exercises.
Alternatively, the building could be transferred to the Hamlet of Grassland or another health‐related
entity to be retrofitted for Seniors Housing since each classroom has individual furnaces and the school
features an onsite kitchen.
9.0 Conclusion
The viability of a school is typically measured by its ability to provide the educational opportunities
afforded to students in the Division and the cost of providing such opportunities. It is clear that the
teachers and administration are responsible for an excellent delivery of service under the current
condition. However, as a response to the education funding realities in Alberta, and in an effort to
ensure the best educational outcomes of all students at Grassland School, the recommendation of this
study is to close Grassland School and redirect most or all students to Boyle School.
Page 13 of 1610.0 Appendices
i. Grassland and Boyle Schools 10 Year Enrolment Projections
Page 14 of 16ii. Attendance Area Maps for Grassland and Boyle Schools
Page 15 of 16iii. Grassland School Walkthrough
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