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sufficient public school capacity in the county system (Orange County Schools) and the city system (Chapel HilI-Carrboro Schools) to support expected new residential growth and development. A draft impact fee ordinance was presented to the county commissioners in the spring of 1992 but was not adopted. During the same period in which impact fees and impact taxes were being debated, the need for additional revenue to finance capital improvements for the county's two public school systems had been evident. Deferred renovation and facility upgrading, particularly in the county system, and the prospect of rapidly increasing enrollment, particularly in the city system, resulted in unmet capital needs in both school units. Voters responded in 1988 by approving a $30 million bond referendum that included $22 million for public schools. However, a long-range plan prepared for the Chapel HilI-Carrboro Schools in 1990 reported the need for four additional new schools before the end of the decade,lo It also found that state projections had significantly underestimated student enrollment growth in recent years.~ In 1991 the School Capital Needs Committee, which had been appointed by the Orange County Board of Commissioners, reported that of the $156.6 million for capital improvements requested by the county's two school boards for the period 1992-93 through 1998-99, revenue sources were sufficient to fund only $11.8 m. Long-Range Facility Plan for the Nineties, prepared by the Long-Range Facilities Planning Committee, Chapel Hill-Carrboro City Schools, Nov. 14, 1990, p. iii. 11. Id. at 1. Actual enrollment figures later revealed that during the period 1988-92 average daily membership in the city system alone grew a tolal of 18.5 percent. Actual and Projected Average Daily Membership (ADM) in 129 North Carolina School Units, .N.C. Department of Public instruction, Jan. 1994, p. 84. 33 · 28