PHLC_Finding Space to Play_2012.pdf

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A Policy Options BriefApril 2012

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S P:Legal and Policy Issues Impacting CommunityRecreational Use of School Property


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A Policy Options BriefApril 2012

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S P:Legal and Policy Issues Impacting CommunityRecreational Use of School Property


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Finding Space to Play: Legal and Policy Issues Impacting Community Recreational Use o School Property (0).

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Table o Contents

Overview 1

Part I: Community Recreational Use o School Property 2K C R R U S P . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Dening recreational use o school property 2

Common terms relating to community use o school property 2

Community members and groups using school property 4

Joint development o school property 4

Joint use agreements vs shared use agreements 4

Impact o community use o school property on obesity rates 5

Benets associated with community recreational use o school property 6

National eorts to promote recreational use o school property 6Liability as a barrier to community recreational use o school property 7

Impact o sovereign immunity on recreational use o school property by communities 9

State laws that protect schools rom liability 9

Liability as a perceived barrier 10

Current research needs 11

ools schools can use to minimize liability risks rom recreational activities 12

Part II: Policy Initiatives Promoting Recreational Use o School Propertyto Increase Physical Activity and Reduce Obesity 13

P E L S L P H Oz . . . . . . . . . . . . . 3Local policy eorts currently being pursued 13

State policy eorts currently being pursued 14

Public health organizations working on this issue 15

Gaps in the current policy discussions 16

S u m m a r y 1 6

Annotated List o Key Recreational Use Resources 17Active Living Research, Robert Wood Johnson Foundation 17

American Heart Association 17Bridging the Gap 18

Caliornia Pan-Ethnic Health Network 18

Center or Cities and Schools, University o Caliornia Berkeley

in collaboration with the 21st Century School Fund 18

Public Health Law Center 18

Public Health Law & Policy 19

Prevention Institute 19

Endnotes 20


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Overview

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Part I: Community Recreational Use o School Property

Key Concepts Relating to Recreational Use o School Property

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Dening recreational use o school property

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Community members and groups using school property

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Joint development o school property

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Joint use agreements vs shared use agreements*

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Impact o community use o school property on obesity rates

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When a school yard in New Orleans remained open and supervised ater school andon weekends, the number o children who were outside and active in the interventionneighborhood and schoolyard was 84 percent higher than in a comparison neighborhoodwith an older playground that did not have ongoing adult supervision Children in theintervention neighborhood also reported reduced time spent watching television or playing

video games relative to children in the comparison community

Benets associated with community recreational use o school property

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National eforts to promote recreational use o school property

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WHAT IS LIABILITY?

Liability is a legal responsibility or injury, death, or damages. The standards or holding someoneliable dier depending on what and who caused the injury. Typically, to be held liable or someoneelses injuries, the injured person must prove that:

1. The person causing the harm had a legal responsibility to protect the injured person rom harm(otherwise known as a duty o care).

2. The person causing the harm ailed to protect the injured person rom the harm.

3. The person harmed was injured in a way that was oreseeable. 0

The obligation someone has to protect someone else rom harm depends on the situation. Thegeneral expectation is that people act reasonably toward others given the circumstances.Someone ailing to act with as much care as an ordinary, reasonable person in a given situationthat causes harm or injury is then considered to be negligent. However, there are situationswhere the law holds a person or entity to a higher or lower legal responsibility to protect another

rom harm. The ailure to protect a person rom harm as required by law that results in an injuryand can lead to a civil lawsuit is called a tort.

WHAT IS IMMUNITY?

Immunity is a legal doctrine that exempts a certain individual or entity rom duties that the lawgenerally requires other citizens or entities to meet. The duty an individual or entity has to meetis defned by law. I an individual or entity has immunity rom a certain legal requirement, thisimmunity can be used as a deense against a lawsuit and provide a basis to have the lawsuitdismissed by a court.

DO GOVERNMENTS HAVE IMMUNITY?

Governmental entities oten have immunity provided under the doctrine o sovereign immunity.Sovereign immunity* is a legal doctrine providing governments with immunity rom being sued unlessotherwise specifed by statute. Sovereign immunity is [a] governments immunity rom being suedin its own courts without its consent.3 This doctrine bars holding the government, its politicalsubdivisions, or the actions o its employees operating in their ofcial capacities liable or torts unlesssuch immunity is expressly waived by statute or by necessary inerence rom legislative enactment.

The extent o the immunity granted and the specifc governmental entities covered by immunityare determined by each state. Sovereign immunity is not necessarily limited to state governmentalactors and can also apply to municipalities. Many states recognize public school districts asgovernmental entities which have sovereign or governmental immunity.

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Impact o sovereign immunity onrecreational use o school propertyby communities

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State laws that protect schoolsrom liability

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CASE STUDY

Jane, an adult, injured hersel when she participatedin an ACME (a local non-proft) wellness eventat a school. ACME sponsored an obstacle course

that involved swinging on a rope rom a log overan imaginary pit o bare dirt to another log on theother side. The rope hung a oot and a hal abovethe center o the imaginary pit. Jane swung over thepit, and ell to the ground ater losing her grip. Sheinjured her ankle and sued ACME and the school.She claimed ACME and the school were negligentand claimed the ollowing elements o liability.

Duty: ACME and the school owed Jane a duty to useshock-absorbing material and a duty to provide more

supervision o the rope swing.

Failure of the Duty: ACME and the school ailedto use shock-absorbing material and to providesupervision.

The Failure Caused the Injury in a Way thatwas Foreseeable: Because ACME and the schoolailed to use shock-absorbing material and to providethe appropriate supervision, Jane was injured in away that ACME and the school should have beenable to oresee.


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Liability as a perceived barrier

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FEAR OF LIABILITY IS A BARRIER TO COMMUNITY

RECREATIONAL USE OF SCHOOL PROPERTY

There are at least three studies that have identifed liability as a key barrier to communityrecreational use o school property. The frst, rom 2004, provided a case study o our communities,and ound that saety, insurance, and liability concerns are barriers that needed to be addressedwith schools beore indoor and outdoor acilities can be made available to the public.1 In 2007,another study ound that recreational user statutes ailed to adequately provide liability protectionor school districts opening property or community recreational use. These researchers ound that[r]ecreational user statutes should be revised or greater applicability to the public school settingwhen school acilities are used outside o the regular school hours or purpose o recreation andphysical activity.2

Finally, in a study released in October 2011, researchers completed a national survey o schooladministrators in underserved communities and assessed liability perceptions in the context ocommunity access. The study ound that 83 percent o the respondents had concerns about theirschools liability risk should someone be injured on school property during non-school hours whileengaged in a recreational activity. Among those administrators that did not allow or communityaccess, 91 percent reported liability concerns and 86 percent believed stronger legislation was

needed to protect schools rom liability or recreational activities during non-school hours.The researchers concluded that [l]iability concerns are prevalent among this group o schooladministrators, particularly i they had been involved in prior litigation, and even i they indicatedthey were aware o laws that provide liability protection where use occurs ater hours. Reducingthese concerns will be important i schools are to become locations or recreational programs thatpromote physical activity outside o regular school hours.3

1 Kelly R. Evenson & Aileen P. McGinn, Availability of School Physical Activity Facilities to the Public in Four U.S. Communities,18 Am. J. of HeAltH Promotion 243 (2004).

2 John O. Spengler et al., Policies to Promote the Community Use of Schools: A Review of State Recreational User Statutes, 39Am. J. Prev. med. 81, 86 (2010).

3

John O. Spengler et al., Liability Concerns and Shared Use of School Recreational Facilities in Underserved Communities, 41Am. J. Prev. med. 415 (2011), available at http://www.ajpmonline.org/article/S0749-3797(11)00448-X/abstract (last visitedMarch 21, 2012).
http://www.ajpmonline.org/article/S0749http://www.ajpmonline.org/article/S0749


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FEAR OF LIABILITY SHOULD NOT BE A BARRIER TO

COMMUNITY RECREATIONAL USE OF SCHOOL PROPERTY

Other groups believe that the actual risk o liability rom schools opening their property or

community recreational use is smaller than believed and that liability should not deter schoolsrom opening their property to the community. For example, the National Policy & Legal AnalysisNetwork to Prevent Childhood Obesity (NPLAN), a program o Public Health Law and Policy(PHLP), commissioned a 50-state review o the topic o liability with community use o schoolproperty. As a result o this review, NPLAN determined that the legal rules that would apply totort claims arising out o the ater-hours recreational use o school acilities are generally no moreonerous than those that apply during the school day and that tort liability risk is much lesssevere than commonly believed.1 These researchers then determined that the risk o liabilityto schools should not be a deterrent to recreational use activities by community members. WhileNPLAN agrees that some real liability risks to schools rom the recreational use by communitieso school property exist, this 50-state survey led to the conclusion that these risks are unlikely

to be substantial enough to justiy denying recreational access to children who are at risk oobesity.2 Additionally, NPLAN concluded that increasing liability protections or schools could putinjured children and their amilies at greater risk or physical injuries and fnancial harm, especiallyor children whose amilies have inadequate or no insurance.3

1 Tom Baker et al., Liability Risks for After-Hours Use of Public School Property to Reduce Obesity: a Fifty-State Survey, nAtlPoly & legAl AnAlysis networkto Prevent CHildHood obesity 2, 3, 13 (2008), available at http://www.phlpnet.org/system/fles/Overview_JointUse_Final_20100713.pd.

2 Tom Baker & H. Massud, Liability risks for after-hours use of school property to reduce obesity: A 50-state survey, 80 J. sCH.HeAltH508 (2010), available at http://onlinelibrary.wiley.com/doi/10.1111/j.1746-1561.2010.00535.x/pd.

3 Sara Zimmerman & Manel Kappagoda, Immunity Hazards: The Risk of New Liability Laws to Schools and Students, nPlAn.org, (Mar. 2012), http://www.nplanonline.org/nplan/immunity-hazards.

Current research needs

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Tools schools can use to minimize liability risks rom recreational activities

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Part II: Policy InitiativesPromoting RecreationalUse o School Property to

Increase Physical Activityand Reduce Obesity

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Policy Eforts at the Local and State Levelsand by Public Health Organizations

Local policy eforts currently being pursued

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State policy eforts currently being pursued

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Gaps in the current policy discussions

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Annotated List o Key Recreational Use Resources

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Active Living Research, Robert Wood Johnson Foundation

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Te Potential o Sae, Secure and Accessible Playground to Increase Childrens Physical Activity(0).

Do All Children Have Places to be Active? Disparities in Access to Physical ActivityEnvironments in Racial and Ethnic Minority and Lower-Income Communities(0).

Schools as a Community Resource or Physical Activity: Legal Considerations or DecisionMakers(007).

E, K. R. A. P. MG,Availability o school physical activity acilities to thepublic in our US communities, 8 A. J. H P 350 (00).

Promoting Physical Activity through the Shared Use o School and Community RecreationalResources(0).

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American Heart Association

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Joint Use Agreements: Sharing School Recreational Facilities with the Community, A H A F S (0).

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As discussed in urther detail, below, the AHA developed policy guidance related to recreational use oschool acilities in conjunction with Public Health Law Center
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Bridging the Gap

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Caliornia Pan-Ethnic Health Network

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Center or Cities and Schools, University o Caliornia Berkeleyin collaboration with the 21st Century School Fund

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Public Health Law & Policy

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Endnotes

Lw H. K .,American Cancer Society Guidelines on Nutrition and Physical Activity or Cancer Preven-tion: Reducing the Risk o Cancer With Healthy Food Choices and Physical Activity, 62 Cancer J. Clinicians 30 (0),available at://.w.//0.33/.00/; W L. Hk ., Physical Activity andPublic Health: Updated Recommendation or Adults rom the American College o Sports Medicine and the American Heart

Association, J. of the Am. Heart Assn., 08 (A. , 007), ://.j.///9/08... K ., supra , 3; Solving the Problem o Childhood Obesity within a Generation: White House ask Force on

Childhood Obesity Report to the President, LetM.G, 88, 97 (M 00), ://www..//-.//kF__C_O_M00_FR..

3 J F. S .,Environmental Interventions or Eating and Physical Activity: A Randomized Controlled rial inMiddle Schools, 24 Am. J. Preventative Med. 09, 090, 5 (003), available at://w.j..//j/079-3797/PIIS07937970003..

See generallyM F .,Joint Use o Public Schools: A Framework or a New Social Contract, Center for Cities& Schools, (00), ://8.8.0.///9.

5 Id M w / k Joint Use o Public Schools: A Frame-work or a New Social Contract.

Id .7 Id 8; J M. V, Partnerships or Joint Use: Expanding the Use o Public School Inrastructure to Benet Students

and Communities, Center for Cities & Schools, 5 (00), ://.k.//P-_JU_A00..

8 F ., supra , .

9 Id .

0 Id 3.

Eliminating Barriers or Community Recreational Use o School Property: Policy Guidance on Liability and Shared Use, P-HLwC., ( J. 3, 0), available at://w./////-----0.[ E B].

Id

3 What is a Joint Agreement? A Fact Sheet or Parents, Students, and Community Members, NPLANO., (M009), ://www..//.//JU_FS_FINAL_U_008..

J O. S ., Schools as a Community Resource or Physical Activity: Legal Considerations or Decision Makers, Am. J. Health Promotion 390, 3909 (00);Joint Use Agreements: Sharing School Recreational Facilities with theCommunity, Am. Heart Assoc. , (0), ://www..///-/@w/@//w/_3809..

5 SeeN D ., Relation o School Environment and Policy to Adolescent Physical Activity, 79 J. Sch. Health53, 5 (009); L A. Bk .,Infuence o Schoolyard Renovations on Childrens Physical Activity: Te LearningLandscapes Program, 00 Am. J. Pub. Health 7, 778 (00), available at://j..///0.05/AJPH.009.78939 ( M , 0); T A. F ., Sae Place Spaces to Pro-mote Physical Activity in Inner-City Children: Results rom a Pilot Study o an Environmental Intervention , 97 Am. J. Pub.Health 53 (007); J E. Mk .,Increasing Sae Places or Physical Activity through a Joint Use Agreement:

A Case Study in Urban Honolulu, Natl Center for Biotech. Information (M 008), ://www....///PMC83555//PCD53A9..

Designing or Active Living among Adults,ALR., , 7 (S 008), ://www.-.//A_A..
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.Environmental Interventions or Eating and Physical Activity: A Randomized Controlled rial in Middle Schools, Am.J. Preventative Med. 09 (003) ( w ); J O. S ., Schools as a Community Resource or Physical Activity: Legal Considerations or Decision

Makers, Am. J. Health Promotion 390, 395 (00) (T - w .); L M. Pw .,Availabilityo Physical Activity-Related Facilities and Neighborhood Demographic and Social Economic Characteristics: A National Study,9 Am. J. Public Health 7, 7 (00), available at://www....///PMC559//097.(Lk , , w w k.).

8 D J. H ., Potential Strategies to Eliminate Built Environment Disparities or Disadvantaged and VulnerableCommunities, 0 Am. J. Public Health 587 (0).

9 SeeL C .,Engaging School Governance Leaders to Infuence Physical Activity Policies, CPjL., (0), ://www.j.//JPAH_00.( w- ).

0 Id

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F ., supra 5, 53.

5 Healthy Schools, Healthy Communities and Youth Obesity, LFHC., 9 (A. 007),www..///_..

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9 E L ., Collaborative School Planning and Active Schools: A Case Study o Lee County, Florida, 33 J. HealthPol., Poly & L. 595, 07. (008), available at://j.kj.//33/3/595..+.

30 F ., supra , 5.

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3 Healthy People 2020 Summary o Objectives, HP., ://www../00/j-00//PA.( M. , 0).

33 SeeA A P,Active healthy living: Prevention o Childhood Obesity Trough Increased PhysicalActivity, 7 Pediatrics 83, 83 (00), available at://..//7/5/83..+ ( w ).

3 SeeLocal Government Actions to Prevent Childhood Obesity, Inst. of Med., 7 (S. 009), ://www..//_/IOM.#R%0P%0A.

35 Education: Strategy 6, (00), National Physical Activity Plan, ://www../_..

3 Facts: Shared Use Agreements: Sharing Recreational Facilities with the Community, Am. Heart Assn, ://www..///-/@w/@//w/_3809.

37 Unlocking the Playground: Achieving Equity in Physical Activity Spaces, California Pan-Ethnic Health Netor, 5(S 009), ://www..//J%0U%0B.; F ., supra , 0.

38 SeeS ., supra , 3909; K R. E .,National Study o Changes in Prevalence and Com-munity Access to School Physical Activity Facilities: Te School Health Policies and Programs Study, 7 J. Physical ActivityHealth S0 (00), available at://.w./j/D/E_J.; K R.E A P. MG,Availability o School Physical Activity Facilities to the Public in Four US Communities, 8

Am. J. Health Promotion 3, 350 (00); J O. S ., Liability Concerns and Shared Use o SchoolRecreational Facilities in Underserved Communities, Am. J. Preventative Med. 5, 50 (0).

39 S E. J ., Healthy and Sae School Environment, Part I: Results From the School Health Policies and ProgramsStudy 2006, 77 J. Sch. Health. 5, 53 (007), available at://www.w.///JOSH_007/

j77_8_j_5..

0 Restatement (hird) of orts: Liab. Phys. & Emotional Harm 7 (00).

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q .).3 Blacs La Dictionary (8 . 005).

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5 J O. S,Policies to Promote the Community Use o Schools: A Review o State Recreational Users, 39 Am. J. Pre-ventative Med. 8, 888 (00).

Fla. Stat. 3.0085 (0).

7 Nev. Rev. Stat. .50 (0).T w. Id

8 SeeBlacs La Dictionary 37 (8 . 005) (A w w .).

9 Id 3 ( w [] q ).

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53 Id 303.

5 See generallyR Z, Analysis of the Joint Use of Public School Facilities: Report to the Legislature, St.of Wash.: Off. of Superintendent of Pub. Instruction ( J. 00), ://www.k.w./SF//

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58 Minn. Stat. .03, . 3 (0).

59 N.D. Cent. Code 53-08-03 (0).

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