PROPOSAL

GEORGIA SCHOOL SECURITY REFORM: ACCESS CONTROL AND EMERGENCY PLAN ENHANCEMENTS

By: Michael Butler

CONTENTS
Abstract............................................................. 3 Related Research Summary .............................. 4 Summary ................................................................................................................................................. 4 U.S. Mass shooting prevalence ............................................................................................................... 4 Firearms Legislation ................................................................................................................................ 4 Firearms .................................................................................................................................................. 5 Violent Death .......................................................................................................................................... 6 Schools .................................................................................................................................................... 6 School Safety Indicators .......................................................................................................................... 6 Indicators of mental health ..................................................................................................................... 7 Proposed Reforms ............................................ 9 Objectives ................................................................................................................................................ 9 Proposed Legislative Actions ................................................................................................................... 9 Proposed Improvement Methods ........................................................................................................... 9 Exterior locks and School Lockdowns Proximity Card Access Control System Accces ContRol Security Vestibules Window Security Upgrades ..... 11 Fiscal Implications ........................................... 13 Disclaimer .............................................................................................................................................. 13 Estimated Cost ...................................................................................................................................... 13 Sources of Funding ................................................................................................................................ 13 Grants ...................................... 13 Works Cited..................................................... 17 9 10 11

ABSTRACT
On December 14th of 2012 the United States experienced a tragedy of which proportions had not been seen before. At 9:35 am Adam Lanza entered Sandy Hook Elementary School in Newtown Connecticut. Lanza gained entry into the school by shooting through a locked glass door in the front of the school. He was immediately confronted by the schools principle and psychologist who he killed. A third staff member entered a meeting room and closed the door at which time Lanza shot through it and wounded said staff member. Lanza then entered a first-grade classroom where he shot and killed the teacher and all but one student who reportedly played dead. Next Lanza entered another firstgrade classroom where he shot and killed a number of students and the teacher. The teacher was reportedly attempting to hide the children when Lanza arrived. Reports indicate that upon entering the room Lanza was informed by the teacher that the student were in the auditorium. When a number of students exposed themselves in an attempt to run for safety they were killed as was the teacher. Lanza then entered a specialneeds classroom where he shot and killed two teachers aides and a student. Reports indicate that the two teachers aides had used their bodies in an attempt to shield their students from gunfire. Sometime after, Lanza reportedly entered the nurses office, stood for a few moments and exited. The nurse was hiding under her desk and was unharmed. Lanza reportedly bypassed a thirdgrade classroom containing a teacher and fourteen students. The bypassed classroom reportedly had followed school lockdown procedure in that the children were quite inside, the door was closed and black construction paper covered the classroom doors window. Lanza failed to gain entry into a fourth-grade classroom were inside fourteen students and one teacher were barricaded in a supply closet. Lanza reportedly arrived eventually at the door, banged on it repeatedly and yelled Let me in. In the schools library eighteen students were barricade in the bathroom and were told to remain quiet.

The students and librarian were unharmed. Lanza stopped shooting around 9:47 am. There were twenty students killed who were ages six or seven. There were also six staff members killed. Upon realizing he had had been spotted by responding law enforcement, Lanza retreated to the second first-grade room he had entered and shot himself in the head. Every victim was shot at least twice. There are thought to have been 155 shots fired. There are statistical indications that Georgia could very well be at and increased level risk for gun violence, gun violence amongst ages zero to nineteen, school related gun violence and incidences involving the mentally ill. The plan outlined in this report targets the prevention of hostile intruders from gaining access into schools, minimizing casualties in cases of breach and enhancing the preparedness of school students, staff, and administrators in cases of breach by hostile intruders. The objectives asserted above can be accomplished by: Improving access control in Georgia schools Mandating one entrance during the school day Installing access control security vestibules Installing access control systems Installing window film and restrictors Improving school non-fire emergency procedures Regulating school emergency plans Requiring school lockdown drills

This report provides a summary of related research, outlines a recommended courses of action and estimates the fiscal implications associated with those actions. Amid great dispute President Obama has proposed a comprehensive reform of firearm legislation. Should his proposition succeed or fail, this report provides Georgia with an alternative solution. In a conservative state such as Georgia, it is important to note that the plan outline here does not seek to modify second amendment rights.

RELATED RESEARCH SUMMARY

SUMMARY
The United States has a culture that is far more tolerant of firearm ownership than many other nations. Arguably, this translates to higher levels firearm ownership and murder by firearm. Compared to the nation as a whole, Georgia is more tolerant of firearm ownership. This is illustrated by less restrictive firearm legislation, elevated levels of firearm ownership and elevated levels of gun use in murder. Georgia has elevated levels of per capita murder, death by firearm rates, rates of violent deaths of the young1 and firearms deaths rates of the young. Estimations regarding populations of the seriously mental ill are currently below or in line with national averages. When using social security benefit data to establish estimates of the seriously mentally and comparing that population to state mental health expenditures, the most recent data ranks Georgia as the thirteenth lowest. When using Department of Health and Human Services survey data to estimate the number of the severely mentally ill against state expenditures for mental health, it becomes apparent that Georgia is severely underfunding its mental health program. Georgia actually ranks 45thnationside in this regard. Consequently, a statistical inference can be drawn that Georgia has a higher susceptibly to incidences involving the mentally ill as the states mentally ill population is most likely not being adequately cared for. There are approximately 1,718,318 people who go into Georgia schools expecting a safe learning environment each day. Unfortunatley, federally recognized indicators of school safety indicate that Georgia may have higher susceptibility to school related violence.

The United States has the highest firearm ownership per capita worldwide (Small Arms Survey, 2007). Also, the United States has a relatively high homicide rate compared to other countries with similar socio-economic levels (United Nations Office of Drugs and Crime, 2011). Also relative to countries with similar socioeconomic levels, the United States has a much higher rate of firearm ownership and per capita deaths by firearm (Alpers, 2013).The United States has a disproportionately higher rate of instances of school shootings. In fact, Columbine in 1999, there have been 31 schools shootings in the U.S. while internationally there have only been 14 (Fragassi, 2013). From 1979 to 2011, there were at least 280 fatalities and 472 injuries from the result of a school shooting. Said fatalities and injuries occurred during more than 142 separate incidents. Though school related violent deaths were in decline from 1993 to 2009, the number of school related shootings has increased every ten years from 1978 to 2008.In fact, in 2006, 2007, 2008, 2009, 2010 and 2011 there were more school shootings than there were in any year from at least. (Klein, 2012).

FIREARMS LEGISLATION
Geaorgia has lest strict firearm legisltaion than many of the states in the union. Georgia has no required permit to purchase or own a firearm. There is no permit needed to carry a concealed long firearm or unconcealed handgun within the boundaries of the owners home, motor vehicle or place of business. Beyond those boundaries a permit to carry a conceled handgun is required (O.C.G.A. 16-11-126). Possesing a firearm in the state is prohibited for any person under 21 years of age, convicted felons, persons in preceding for a felony, fugitives, unlawful user of or addicted to any controlled substance, who has been adjudicated as a mental defective or who has been committed to a mental institution, illegal aliens, persons who have renounce their U.S. Citizenship, any person who has been convicted of a firearm related crime, any 4

U.S. MASS SHOOTING PREVALENCE

Ages zero to nineteen

person who has been convicted of the manufacturing or distribution of a controlled substance/dangerous drug (O.C.G.A. 16-11-129). It is illegal in the state solicit, persuade, encourage, or entice any dealer to transfer or otherwise convey a firearm other than to the actual buyer (O.C.G.A. 16-11-113). Background checks are mandatory when purchasing firearms from federally licensed dealers (O.C.G.A. 16-11172). Gun sales between private citizens, for instance at a gunshow, does not currently require a background check in Georgia. There are 27 such gun shows scheduled for 2013 (Georgia Gun Shows, 2013). Threre are no state laws that require the registration of firearms. There are however two federal laws that do.

lost or stolen firearms in the state as there were in 2008 and nearly five times as many as in 2009 (U.S. Department of Justice: Bureau of Alcohol, Tobacco, Firearms and Explosives, 2012).Although Georgia supplies guns to criminals all over the country there are still many guns unaccounted for that remain in or find their way to the state. In 2011 Georgia law enforcement traced and recovered 11,307 firearms that were used in criminal acts within the state. Among them there were 1348 rifles, 1075 shotguns and 19 machine guns. The origins of these firearms were 48 different states. Expectedly however, most of those firearms did originate in Georgia (U.S. Department of Justice: Bureau of Alcohol Tobacco, Firearms and Explosives, 2012).
25000 20000 15000 10000 5000 0 Georgia National

FIREARMS
A 2004 national survey of inmates in state prisons found that only 11% had bought there guns from a federally licensened gun dealer (Webster & Vernick, 2007). Furthmore, according to 2007 research done by the Johns Hopkins Center for Gun Policy: Typically, [..], the individuals who use firearms to commit violent crimes are not the initial lawful purchasers, but have instead obtained firearms through an illicit market. The secondary market in firearmswhich includes guns acquired from private individuals both legally and illegallyis largely unregulated, making it difficult to hold people who supply guns to criminals accountable for their actions (Webster & Vernick, 2007). Georgia was the largest supplier of guns involved in crime in states that they had not originated in 2006, 2007, 2008 and 20092 (Mayors Against Illegal Guns, 2010). From 2008 to 2010, Georgia had the second highest amount (3051) of lost or lost or stolen firearms in the nation. This trend was increasing. In 2010 there were twice as many
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FIGURE 1: GEORGIA REGISTED GUN OWNERSHIP

Data acquired for The National Firearms Act of 1934, indicates that Georgia out paces the national average in overall gun ownership in three of the four classifications of firearm. Per capita, Georgia ranks fourteenth in gun ownership. The state ranks fifth in shotgun ownership, forteenth in machingun ownership, twenty-third in short barreled rifle ownership and twentyeight in handgun ownership. Georgia surpasses the national weighted average for machingun ownership by 5683 weapons and suppased the national weighted average of short barreled shotguns ownership by 4,422 weapons. (U.S. Department of Justice: Bureau of Alcohol, 5

More recent data is not publically available

Tobacco, Firearms and Explosives, 2012) (U.S. Department of Commerce :Census Bureau, 2012)

VIOLENT DEATH
4.5 4 3.5 3 2.5 2 1.5 1 0.5 0 2010 Georgia 2011 National

FIGURE 2: FIREARM DEATHS PER 100,000

In 2010, with 527 murders, Georgia ranked twelvth in per captita murders. There were 22% more murders in Georgia, per capita, than there were nationwide. In about 70% of the total murders in Georgia, a firearm was used . Georgia had the ninth most murders by firearm, per capita, nation wide. There were 29% more murders by gun per capita in Georgia than in the national as a whole3. (U.S. Department of Justice: Federal Bureau of Investigation, 2011) (U.S. Department of Commerce : Cencus Bureau, 2012) In 2011 Georgia had 522 murders. Per capita, the state had the eleventh most murders nationwide. Nearly 71 % of those murders where by firearem. Again the state ranked ninth highest in firearm murders per capita. Murder by firearm was 21.21% more likely in Georgia than in nation as a whole4. (U.S. Department of Justice: Bureau of Alcohol, Tobacco, Firearms and Explosives, 2012) (U.S. Department of Commerce :Census Bureau, 2012)

Statistically, Georgia is more dangerous for people ages zero to nineteen than is the country is as a whole. From 2005 to 2010, Geoorgia had higher death rates and death by firearm rates for those from zero to nineteen years old. From 2005 to 2010, If killed in Georgia, people ages zero to nineteen were 31% less likely to have killed by a firearn in Georgia. However, during that same time, the same age group was about three and a half times more likely to have been killed. From 2005 to 2010, among ages zero to nineteen, per 100,000 people there were about 3 murders nationally and about 10 murders in Georgia. Annually, among ages zero to nineteen, from 2005 to 2010, per 100,000 people, there were about 2 murders by firearms nationally as opposed to about 4 murders by firearm in Georgia. From 2005 to 2010, the compound aggregate decline rate for murders victims age nineteen and below, was approximately 3% per annum nationally as opposed to approximately a 7% increase per annum in Georgia. From 2005 to 2010, when using a compound aggregate growth rate, murders by firearm amongst ages nineteen and below declined about 3% each year nationally and grew about 3% each year in Georgia (Center for Desease Control: National Violent Death Reporting System, 2013).

SCHOOLS
There are 3,251 schools in Georgia. 2,275 of those schools are oned by the state. In the public schools there are 1,506 technology specialist, 2,289 school principles, 2,613 subject specialist, 2,645 assitant principles, 3,230 school counselors, 3,277 school secretaries, 104,542 teachers and most importantly 1,702,758 students. It cost the state $14,181,925,178 in 2012 to provide those students with an education.

SCHOOL SAFETY INDICATORS

A national survey sourced from public school students and teachers provides federal agencies with indications of school safety. Statisics for

3 4

Florida was ommitted in the 2010 data Alabama and Florida were ommitted in the 2011 data

Georgia are only available in 1993 and every two years from 2003 to 2011. The percentage of students that reported being threatened or injured by a weapon on school property in the last 30 days was higher in Georgia than the national average, four of the five times the survey was administered. Georgias average percentage of affirmative answeres for this question from 2003 to 2011 was 8.9% while the national average was 8%. From 1993 to 2011, the compound annnual growth rate in Georgia for such incidences was 3% ,as opposed to the national average wich had not significantly changed. When students were asked if they had carried a weapon on school property, Georgias average percentage of replies in the affirmative, for surveys between 2003 and 2011, was 6.48% while the nationally the average for that time was 5.9%. The largest difference in percentages of answeres in the affirmative between Georgia and the national average was in 2011. That year, Georgia students answered in the affirmative 8.6% of the time while only 5.4% of student answered in the affirmative nationally. Affirmative replies have been in decline for this question in each survey since 1993, however, the decline was about 33% slower in Georgia. When students were asked if they carried a weapon anywhere in the last 30 days, for surveys conducted between 2003 and 2011, Georgia students answered in the affirmative 20.4% while nationally answers in the affirmative averaged 17.5%. The largest deviation from the national averages percentage of affirmitive answers during the 2003 to 2011 timspan was in 2009. That year Georgia students answered in the affirmative 22.8% compared to 16.6% nationally. When students were asked if they had carried a gun on school property in the last 30 days, for surveys conducted between 2003 to 20095. Georgia students answered in the affirmative on average 7.2% of the time while nationally students answered in the affirmative on average 5.7% of the time. From 2003 to 2011, both the
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national and Georgian compound average annualized decline rate was 5%. When school teachers were asked if they had been threatened with a weapon at school in the last 30 days, Georgia had a lower percentage of affirmtive answers in 1999, 2003 and 2007. The compound average annual decline rate from 1993 to 2007 for Georgia was 6.1% as opposed to a decline rate of 3.22% natioally. (Center for Desease Control, 2013)

INDICATORS OF MENTAL HEALTH

$160.00 $140.00 $120.00 $100.00 $80.00 $60.00 $40.00 $20.00 $0.00 2004 2005 2006 2007 2008 2009 2010

Georgia National

FIGURE 3: ESTIMATE PER CAPITA MENTAL HEALTH CARE EXPENDITURES

2011 responses were not available for Georgia

As the chart above illustrates,estimates indicate that Georgia has consistently spent less per capita providing mental healthcare than the estimated national weighted average for fiscal years 2004 to 2010. When examininmg fiscal year population estimates againts reported state mental health expeniditures it becomes evident that Georgia expenditutres for mental health have remained fairly consitant although its population had grown. Ranking per capita estimates by state reveal that from 2004 to 2010 Georgia ranked among the lowest 13 states consitantly for per capita state mental health care expenditures. Furthermore that trend seems to be increasing. From 2007 to 2010 it was among the bottom 4 states. Georgias state mental health expenditures were only .033% larger in 2010 than they were in 2004. The highest of the two times that state mental health expenditures exceeded the 2004 to 2010 average 7

was in 2005. In that peak year, Georgia spent 21.9% more than average. In 2006 however, state mental health expenditures declined 26%. (National Association of State Mental Health Program Directors Research Institute, Inc, 2004 through 2010) (U.S. Department of Commerce: Census Bureau) (U.S. Department of Commerce : Cencus Bureau, 2012). It is quite possible that Georgia had lower state mental health care expenditures than the most of the nation because it more adequately managed cost. This would however be contradictory to trends in the states total health care cost. Total health care cost, both public and private, grew on average 6.6% annually from 1991 to 2009. Publicly funded health care from 2004 to 2009 grew and esimated 5.5% annually (Centers for Medicare & Medicaid Services). Available data also seems to indicate that Georgia has had a higher than average amount of adults reporting serious mental illness but recently population estimates for the mentlly ill have either come in line with or has fallen behind the natinal average. In 2003, available data indicates that 9.79% of adults reported mental illness in Georgia as opposed to a national average of 8.76% . In 2004, 10.81% of adults in Georgia reported serious mental as opposed to 9.63% nationally. In 2005, Georgia was nearly in line with the national average. 11.51% of Georgia adults reported mental illness while the national average was only slightly higher at 11.63%. Georgia again lead the national average in 2007 with 11.81% of adults reporting serious mental illness while the national average was close by at 11.29%. In 2009, 11.81% of adults repotedly suffered from a serious mental illness as opposed to a national average of 11.29%. In 2009, nationaly 4.6% adults reportedly had a serious mental illness nationwide as opposed to 4.12% in Georgia. (Google Public Data). A recent telephone survey conducted from the begining of 2010 to the end of 2011, found that 4.5% of telephone interviewees in Georgia, who were 18 or older, reported having having serious mental illness in the past year.This placed Goeorgia in the 44th position, among the lowest.

(U.S. Department of Health and Human Service: Substance Abuse and Mental Heath Administration) For further indications of the states menatally ill population Social Security benefit information was examined. 1,777,248 people recieved Social Secutiry benefits for mood disorders, schitzophenia or other psychotic mental conditions in the United States in 2010. 43,619 of them were in the state of Georgia. Georgia ranked well below the weighted national average of 71,765 per state. In a side by side comparison by state Georgia was 40th. (U.S. Social Security Adminstration, 2010) (U.S. Department of Commerce :Census Bureau, 2011). In 2011, 1,829,252 citizens received Social Security benefits for the afore mentioned selected conditions. 45,538 of them were in Georgia. Again, Georgia was well below the nation weighted averge, which was 74,965 in 2011. In a side by side comparison Georgia was ranked 40th. (U.S. Social Security Administration, 2011) (U.S. Department of Commerce : Cencus Bureau, 2012)

PROPOSED REFORMS
OBJECTIVES
Prevent hostile intruders from gaining access to Georgia schools Minimize casualties in cases of breach by hostile intruder in Georgia schools Enhance the preparedness of Georgia school students, staff and administrators for violent attacks by hostile intruders on Georgia schools

2. 3.

4.

PROPOSED LEGISLATIVE ACTIONS

It is proposed that the state legislature examines possible courses of action to accomplish the objectives listed above. Then, contingent upon the findings of the legislature, it is proposed that funding and implementation be authorized for applicable reforms. Enacting legislation that will improve the preparedness of Georgia schools for intrusions by hostile individuals would increase school safety and would necessarily require the expenditure of public funds. Specifically legislatures could: 1. Authorize for the Georgia Emergency Management Agency or an alternative agency to regulate school emergency preparedness plans 2. Require school emergency action plans to have school lockdown procedures as well as to include alternative plans for hostile intruders. 3. Restrict Georgia schools from using multiple entry points during the school day Though not cost free, to further reforms targeted at school security and access control improvements legislatures could: 1. Authorize the creation of a Joint Special Committee on School Safety and School Access Control that undertakes a study and analysis of the current status of Georgia school building vulnerability, enhancements to building security,

5. 6.

7.

occupant safety, access control and nonfire emergency preparedness; conducts a comprehensive analysis of state's strategic needs for enhancements in school access controls, safety and nonfire emergency preparedness including without limitation the identification of creative financing options for enhancements and timelines for implementation. Authorize SPLOST referendums Authorize the creation of a statewide special districts for a School Security Reform SPLOST Authorize revenue bonds for school security and access control improvements Appropriate funds for school security and access control improvements Modify law to allow for school security and access control improvement funding to be disseminated based on security needs rather than population size. Authorize implementation of school security and access control improvements

PROPOSED IMPROVEMENT METHODS

Implementing changes in school emergency plans to account for hostile intruders would heighten the preparedness of school students, staff and administrators. Specific methods for accomplishing the objectives above include installing and requiring exterior locks, school lockdowns procedures, access control systems, access control security vestibules, and window security enhancements.

EXTERIOR LOCKS AND SCHOOL LOCKDOWNS

By requiring that schools lock exterior doors and restrict use to only one entrance during school hours, a first line of defense is created against unwanted visitors. To create a second line of defense, one suggested course of action is to require school lockdown action plans and drills that directly prepare for cases of hostile intruders.

A school lock down is a type of non-fire emergency action plan. In school lockdowns once a hostile intruder has breached, an alarm is sounded informing building occupants. At that time occupants are to immediately enter the nearest classroom or secured place. Teachers are then to lock the doors, turn off the lights and cover door windows. Next teachers are to mover there students to a safe corner6, take attendance, and instruct students to stay calm and quiet. During the lockdown students and teachers are to ignore evacuation procedures if a fire alarm is sounded and ignore knocks on the doors three minutes into the lockdown. When the threat has ended school administrators are to end lockdown by using a codeword over the public announcement system. To ensure the efficient execution of lockdown procedure, multiple drills during the school year would is ideal. States that already have school lockdown legislation include North Dakota (NDCC 15.1-06-12), Rhode Island (RIGR 16-21-4), Michigan (2006 PA 187, 2006 PA 337) and New Jersey (N.J.S. 18A:41-1).

short electronic beeps, a red light flashes and the door remains locked. If the credentials are authorized, there is one beep, a green light flashes and the door is unlocked. Once the locked door has been opened it usually automatically locked upon closing; however, longer door unlocked times maybe set. The time it takes for the information to be sent electronically to determine authorization takes less than a second. Locks can be set to automatically unlock in case of fire and the like. Cards can also be enabled and disabled instantly and remotely. In proximity card access control systems entry is usually controlled and not exiting. Cards may be set to expire as well as be printed on. Proximity cards may even be used as identification cards, payment systems for school lunches and to track time and attendance. To protect school occupants, access points could be placed on classroom doors, corridor entrances or a wide range of alternative strategic locations. With the use of a complete proximity card access control system administrators could automatically lock exterior doors, classroom doors and school corridor doors during school lockdowns. In an attack on a school by a hostile intruder, those without authorized proxy cards would be unable to enter the building. If by some means the hostile intruder gained entry into the building they would be unable successfully traverse the facility. If hostile intruders did somehow acquire an authorized proximity card, with the hostile intruders location, the card used could be quickly identified and disabled remotely. Cards can be used as access and or identification cards for any combination of teachers, administrators, staff, students and or visitors. Many schools, government facilities and a wide range of private facilities across the nation and world have used proximity cards access control systems with success. Some examples of U.S. schools or school districts that have successfully used proximity cards include Colleyville Independent School District, St. Tammany Parish Public School, San Francisco School District, and Fargo School District, Haltom High School, Painesville City Local School District, Maine School Districts, Fargo School District and DC Public Schools. 10

PROXIMITY CARD ACCESS CONTROL SYSTEM

For school building occupant safety it is proposed that proximity card access systems be installed in Georgia public schools. A proximity card is a smart card that can be read without inserting it into a reader. For the card to be read it must only be held near a reader. Passive proximity cards are most often used for access control. Access points are usually doors equipped with electric magnet locks. Proximity card readers are placed very near to the access point. To engage the lock, operators hold proximity cards near the proximity card reader. Determination of the cards credentials and authorization is either done at the reader or most commonly at a central database. When card identification information is sent to a central computer, it then determines if the credentials on the card are on the access list for that access point. If it is determined that the credentials read are not authorized, there are two
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Low visibility portion of the room

ACCCES CONTROL SECURITY VESTIBULES

For school building occupant safety it is proposed that access controlled security vestibules be installed in Georgia public schools. The installation of access controlled security vestibules would help schools from allowing entry to armed individuals. Access controlled security vestibules are chambers or hallways at the entrance of a building, that through a system of metal detectors, infrared sensor, interlocking doors, magnetic locks and bullet proof/resistant glass, aid in the detection of individuals with firearms who enter a facility and prevents them from doing so. When the chamber has no one in it the doors to the outside of the facility are unlocked. When someone enters into the chamber infrared sensors recognized that there is an entrant. As the entrant progresses toward the interior door metal detectors located within the chamber scan for firearms. If a firearm is detected a violation will occur and the door granting entry into the facility remains locked. If no metal or too small an amount of metal is detected the interior door unlocks and allows entry into the facility. When visitors are exiting the facility, as the visitor makes their way to the exterior door, the interior door closes. The closing of the interior door allows the opening of the exterior door. Authorized individuals within the facility are able to override locks and violations. Security access control vestibules may be equipped with proximity card readers, two way communication systems, and video surveillance systems. If there is a system wide malfunction or something of the like, vestibules fail in the unlocked position. Also, vestibules may be made to fit a wide range entrances and adhere to U.S. fire code and Americans with Disabilities Act standards. Access control security vestibules have been used in a wide range of commercial facilities for many years. Just recently however they have begun to be used in schools. There are a plethora of schools and school districts that are currently considering implementation. Schools or school districts that are currently in the process of installing or have

installed security access control vestibules include Spring Independent School District, Bibb County School District, Houston County Schools, Rockingham County School District, South Middleton School District, Birdville Independent School District, the Council Rock School District and Miamisburg City School District among others.

WINDOW SECURITY UPGRADES

A range of products could be used to increase window security. For school building occupant safety it is proposed that window restrictors and window security films are installed in Georgia public schools. Security film and window restrictions are cost effective ways of making it more difficult for hostile intruders to enter through windows. The purpose of window film is to make it more difficult penetrate a window. Window security film is created by applying multiple layers of polyester film to a window. Window security film is made to be tear and penetration resistant. The film works to hold the window together if it is broken as well as making the window more difficult to break. With a traditional window, once the window is shattered, glass is easily cleared to allow entry. Security film can be made to be impenetrable up to 420 lb/inch. For a hostile intruder to enter through a locked or restricted window that has been equipped with security film, they would have to break the window, then meticulously break away small pieces of glass until there is a hole large enough to enter through. Another option for hostile intruders wishing to gain entry through an equipped window would be to peel away each layer of film both on the inside and outside of the window allowing for the glass to shatter. Hostile intruders would have to dedicate a substantially longer period of time to gain entry. Increasing the amount of time it takes for the threat to gain entry increases the possibility that they are detected before doing so. A byproduct of installing window security film is an increase in energy efficiency whish would lower heating and cooling cost as well as a

11

decrease in cancer causing infrared light and glare. Window restrictions are devices fit to windows that limit the amount the window may be opened. There are a plethora of designs applicable to different types of windows and that can be disengaged from the inside in case of fire. Restrictors add safety as they prevent hostile intruders to enter from the outside by merely opening and unlocked window wide enough to enter. Additionally, traditional security bars may also be used to thwart the efforts of unauthorized entrants. There are a range of key-less quick release security bars that may be installed to windows. Keyless quick release security bars are equipped with simple pull safety releases that allow for the bars to swing open in cases of emergency.

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FISCAL IMPLICATIONS
DISCLAIMER
There would be considerable cost associated with a project of this magnitude. A completely accurate assessment of price would require profession expertise and specific information that is not readily available to the public; for example the number of windows in Georgia public schools buildings.

every student and staff member in the Georgia public school system is estimated to be $3,536,348.19. This value also nearly ignores economies of scale.

SOURCES OF FUNDING
Because the cost associated with such a large scale project quite large as well, it is proposed that funding be acquired through multiple sources. The following section outlines few specific options for funding. They are grants and a special-purpose local-option sales tax. Grants from the federal government for school security have become scarcer recently as President Obama and congress has eliminated many of the grants designed to fund school safety initiatives from the federal budget. There are still funds available as other federal grants may be used to enhance school safety. Also grants to improve school safety may be made more available in the near future. President Obamas plan to protect our children and our communities by reducing gun violence urges congress to increase funding for school safety through the use of Comprehensive School Safety Grants (The Whitehouse, 2013). With regards to Georgia school safety reform to president indicates that the grants may be used to invest in a wide array of strategies to make our schools safer.

ESTIMATED COST
The estimated cost for access control security vestibules, proximity card access control systems on classroom doors, and proxy cards for students and staff, is $271,056,648. The estimate for access control vestibule cost was generated by calculating the average per student cost for security vestibules from Birdville Independent School District and North Hills Schools District. This was done to more accurately spread specific job cost and to obtain a transferrable value. Estimated cost per student was found to be $70.64 .Georgia public schools have 1,702,758 students. Therefore, implementation of school security access controlled vestibules in Georgia public schools is estimated at $120,289,330. The estimate cost of an access control security system per door is $1,374 (2009 Security Sales and Integration Installation Business Report, 2009). Also, the report noted that cost per door does decrease depending on the number of doors to be used in the system. Assuming that there is at least one classroom per teacher and subject specialist, there are at least 107,155 classrooms in Georgia public schools. Ignoring economies of scale, and using the aforementioned values estimated cost for proximity card access control instillation on each classroom doors comes to a total of $147,231,094. A single proxy card cost about $1.94 when purchasing a quantity of 100 (IDWholesaler). Cost for purchasing one card for

GRANTS
STATE HOMELAND SECURITY PROGRAM (SHSP) SHSP supports the implementation of state Homeland Security strategies to address identified planning, organization, equipment, training, and exercise needs to prevent, protect against, mitigate, respond to, and recover from acts of terrorism and other catastrophic events. SHSP also provides funding to implement initiatives in the State Preparedness Report. Awards are usually around $23,420,000. (U.S. Department of Homeland Security : Federal Emergency Management Agency, 2012) 13

Grant usage could be justified in that Georgia school security reform will lessen the likelihood of a catastrophic event by preventing, protecting against, mitigating and responding to hostile intruders, whose successful attack could cause mass casualties and affect the national morale. A catastrophic event is defined as is any natural or manmade incident, including terrorism that results in extraordinary levels of mass casualties, damage, or disruption severely affecting the population, infrastructure, environment, economy, national morale, and/or government functions (U.S. Department of Homeland Security : Federal Emergency Management Agency, 2008). A mass casualty incident is defined as large number of casualties produced in a relatively short period of time, usually as the result of a single incident such as a military aircraft accident, hurricane, flood, earthquake, or armed attack that exceeds local logistic support capabilities (U.S. Department of Defense, 2011). The SHSP can provide funding for the purchase of equipment explicitly including, locking devices and entry systems for control of physical access to facilities, systems for positive identification of personnel as a prerequisite for entering restricted areas or accessing information systems, reinforced doors and gates with increased resistance to external impact for increased physical security, wireless radio frequency devices7, camera-based security systems, software/hardware system designed primarily to monitor , control remote sensors and actuators8 and alert/notification equipment that allows for real-time dissemination of information and intelligence among responders (U.S. Department of Homeland Security: Federal Emergency Management Agency, 2013). The SHSP is also authorized to provide funding for developing school preparedness plans, preparedness plans for child congregate care facilities, including group residential facilities, juvenile detention facilities, and public/private
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child care facilities; plans to educate youth on disaster and catastrophic event preparedness and ; conducting assessments and exercising existing catastrophic incident response and recovery plans and capabilities to identify critical gaps that cannot be met by existing local, regional, and state resources. Also, grants from the SHSP have the authority to fund training that promotes individual, family, or community safety and preparedness with regards to school preparedness; to design safe school projects in case of terrorist attacks and school shootings and to provide guidance for engineers, architects, building officials, and property owners to design shelters and safe rooms in buildings (U.S. Department of Homeland Security : Federal Emergency Management Agency, 2012). EARMARKS According to congressional record, an earmark is defined as provision or report language included primarily at the request of a Member, Delegate, Resident Commissioner, or Senator providing, authorizing or recommending a specific amount of discretionary budget authority, credit authority, or other spending authority for a contract, loan, loan guarantee, grant, loan authority, or other expenditure with or to an entity, or targeted to a specific State, locality or congressional district, other than through a statutory or administrative formula driven or competitive award process (Lynch, 2009). There were nearly $15 billion in earmarks given in 2010. $772 million was for Labor Human Services and or Education. $273 million was for Homeland Security. In 2010 Georgia received $149 million by way of 171 separate earmarks (Taxpayers for Common Sense, 2012). The justification for the pursuit of earmarked funds includes that the funding would be dedicated to a project that supports multiple federal objectives. Georgia school security reform supports multiple U.S. Department of Homeland Security objectives in that its implementation would reduce the vulnerability of terrorism in schools and minimizing damage should an attack occur. It supports multiple U.S. Department of 14

Such as proximity cards May be used for access control

Education objectives in that it increases the safety of students who are in elementary and secondary education as well as could strengthen statewide longitudinal data systems with the use of proxy card identification systems. CAPITAL OUTLAY FOR PUBLIC SCHOOLS FACILITIES CONSTRUCTION Each year the Georgia assembly authorizes funds from the state treasury to be awarded to school systems for new construction, renovation, improvement and modification of public school facilities though funded on matching bases. Authority for such funding is explicitly stated in the Georgia law (OCGA 20-2-260). The maximum amount awarded is dependent on project cost estimates. Total yearly award amounts are at the discretion if the assembly (Georgia Department of Community Affairs, 2002). In the fiscal year 2012 Georgia school systems received $185.9 million from the capital outlay program (Georgia Department of Education: State Education Finance Study Commission, 2011). If these funds were temporarily reassigned to school safety reform for two just under two years, initial estimates for implementation would be met. SSR-SPLOST A Special Purpose Local Option Tax could be used to fund Georgia school security reform. The Special Purpose Local Option Tax (SPLOST) is a special district sales and use tax authorized by the Georgia assembly within a special district. The tax imposed increases the sales tax on motor fuels, food, food ingredients, and alcoholic beverages by 1%. Before the tax may be imposed, among other things, is must be approved by at least one half of the voting public in referendum. Once approved the tax revenue generated may be used on a wide range of capital outlay projects within or outside of the special district as well as be dedicated to retiring the general obligation debt of the special district or those municipalities/governingauthorities within. The SPLOST may not last longer than one year.

Capital outlays are defined as major, permanent, or long-lived improvements or betterments, such as land and structures, such as would be properly chargeable to a capital asset account and as distinguished from current expenditures and ordinary maintenance expenses (OCGA 48-8110). Capital assets are defined as are real or personal property that have a value equal to or greater than the capitalization threshold for the particular classification of the asset and have an estimated life of greater than one year and include Land and land improvements, Building and building improvements, facilities and other improvements, infrastructure, construction in progress, leasehold improvements and personal property such as software developed or obtained for internal use (University System of Georgia, 2013). Projects may be undertaken under the authority of intergovernmental agreements. Intergovernmental agreements are defined as contracts entered into between a county and one or more qualified municipalities located within the special district containing a combined total of no less than 50 percent of the aggregate municipal population located within the special district (GA Const. art. IX, 3, 1). Also, according to the Georgia constitution the General Assembly may create special districts by law GA Const. art. IX, 2, VI). In 2011, the Georgia assembly authorized for fiscal economists to provide revenue estimations for the approaching referendum on TSPLOST. The implementation of TSPLOST and the process by which tax revenue would have been collected is similar to a possible course to implement a SSRSPLOST. In the 2011, state economist took into account a wide range of available information to estimate revenue. Information considered includes economic cycle, consumer spending growth, proximity in time to the financial collapse, employment and income growth. Methodology to for revenue projection can be summarized in the following four points:

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Data analysisMeasured the historical relationship between sales tax revenue growth and personal income growth. Personal Income Forecasts Developed forecast of Georgia personal income. Forecasts are taken from Moodys Analytics. Allocate forecasted Georgia personal income to planning regions based on relative historical performance and REMI model forecasts provided by the Atlanta Regional Commission. The REMI forecasts were for the Atlanta Region, surrounding counties and the rest of the state. Developed Forecasts for Exemptions Adjust forecasts for exemptions specified in House Bill 277 Develop Forecasts of RevenueApply historical relationship(s) between sales tax revenue growth and income growth

to forecast(s) of personal income growth. (Georgia Municipal Association, 2011) The final product forecasts revenue by year and region in nominal and in inflation adjusted dollars. For the TSPLOST there were 12 regional special districts. Conservative estimates for revenue generation from 2013 to 2016 are summarized in inflation adjusted dollars in the chart below. As illustrated according to state economist, more than a billion dollars of additional tax revenue is possible with a Special Local Option Tax. SPLOST usage could be justified in that revenues would be used within each special district and authorized through intergovernmental agreements to purchase capital asset that will be use to renovate state owned educational facilities for the purpose of improving school safety.

Region Northwest Georgia Mountains Atlanta Regional Commission Three Rivers Northeast Middle Central Savannah River Area River Valley Heart of Georgia Southwest Southern Coastal Total

2013 104,978,472 81,223,584 617,540,786 64,125,082 65,817,831 67,382,660 65,053,586 46,457,214 30,431,982 41,662,411 50,362,676 110,444,356 1,345,480,640

2014 105,225,996 82,093,666 617,020,436 64,526,395 66,320,236 67,008,538 64,663,317 46,127,978 30,279,847 41,341,380 50,193,326 111,014,817 1,345,815,932

2015 107,326,679 84,772,304 626,315,659 66,199,165 68,177,619 67,539,171 65,131,236 46,384,705 30,545,379 41,536,760 50,758,824 113,708,001 1,368,395,502

2016 111,652,710 89,782,014 646,964,904 69,457,487 71,743,726 69,049,348 66,521,115 47,258,060 31,267,454 42,273,260 52,147,993 119,022,818 1,417,140,889

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