The Equal Access Act of 1984 was drafted to implement access for religious clubs to public secondary schools, but with constitutionally protected safeguards to preclude entanglement of church and state. A number of challenges were made on the constitutional grounds of excessive entanglement of church and state, as well as what the definition of "limited open forum" would be. The case that the Supreme Court chose to hear, "Board of Education of Westside Community Schools v. Mergens," contained both elements and was decided in 1990. Now school administrators must face the dilemma of creating, maintaining, and protecting "limited open forums" within schools. Ohio County Schools, which include the schools in Wheeling, West Virginia, are a microcosm of American society with a student population of 6,500 K-12 students from rural, suburban, and urban backgrounds. Policy and regulations to govern the formation and operation of extracurricular clubs and activities were provided in draft form to school administrators, employees, parents, religious and legal groups and were placed on public comment prior to review and adoption by the board of education. The appendixes contain the text of the Equal Access Act and the regulations adopted by the board. (9 references) (MLF)