School Building Assistance Program - Policies on the Re-Use and Renovation of Existing School Buildings

I have been asked by several superintendents, legislators, and municipal officials to explain the policies of the Department's school building assistance (SBA) program regarding the re-use and renovation of existing school buildings. These policies are based on the SBA enabling statute (Chapter 645 of the Acts of 1948, as amended) and the program regulations adopted by the Board of Education (603 CMR 38.00). If you are planning a capital construction project in the near future, I would ask you to share this information with your school committee and appropriate municipal officials.

Our basic policy is set forth in 603 CMR 38.03(10):

Projects calling for new school construction shall be approved and funded only where the feasibility and cost of renovating an existing school building, or of acquiring an existing building or buildings which are structurally sound, available within the community, and adaptable for school purposes, has been studied and the applicant demonstrates that the proposed new construction is the best available alternative to meet the projected need based upon the educational program to be housed, total cost effectiveness, and the public interest.

In short, our preference is to re-use and renovate existing buildings whenever it is cost efficient to do so and can meet the educational needs of the district. Of the 58 capital construction grants awarded in FY99, only 13 involved the replacement of an existing building with a new building.

Our expectation is that state-funded school construction projects will have a useful life of 50 years, meet all applicable building codes and accessibility requirements, provide for current and future technology needs, and include adequate space for classrooms and other support functions as defined in 603 CMR 38.05. We are always willing to consider minor deviations from these published requirements, particularly if they are needed to allow the re-use of an existing building. However, it would be unfair to the students who will use the building, and the taxpayers who will pay for it, if the proposed deviations are so substantial that the result is an inadequate facility.

With respect to costs, renovation projects qualify for the same reimbursements, and are subject to the same cost limits, as new construction. Often the actual costs of a renovation project far exceed the initial estimates, due to unforeseen construction problems. For planning purposes, we often use a 50% guideline: if the estimated cost of a renovation project is less than 50% of the allowable cost limit, it clearly makes economic sense. Above 50%, the likelihood of construction cost overruns and higher lifetime maintenance costs makes the economic case for renovation less clear. But again, the cost limit for state reimbursement for renovation projects is the same as that for new construction projects, and is based on the costs per square foot set forth in 603 CMR 38.06. If the actual cost exceeds the SBA cost limit, the district can still undertake the project, but the state will not provide any reimbursement for costs in excess of the limit.

Many older school buildings, particularly those built in the early 1900's, have unique architectural qualities, but they often cannot be renovated into 21^st century schools at a reasonable cost. In these cases, communities should consider alternative sites for a new school building and allow the existing building to be re-used for other purposes. Old school buildings have been successfully recycled as administrative offices, early childhood education centers, recreation facilities, and even housing.

An ancillary issue which often arises when studying the possible renovation of existing buildings is the size of the site. The program regulations (603 CMR 38.04) are fairly broad, stating that the site "will meet the educational need and minimize any possible adverse educational, environmental, social, or economic impact on the community." Ideally, a school building site should have adequate space for the proposed building and any planned future additions; playgrounds and playing fields; and parking, bus turnaround, and truck delivery areas. The following site sizes are recommended but not required:

Elementary site: 10 acres plus 1 acre for each 100 seats

Middle/junior high site: 15 acres plus 1 acre for each 100 seats

High school site: 20 acres plus 1 acre for each 100 seats.

Many existing school buildings, particularly in congested urban areas, are on much smaller sites, and options for other sites in the neighborhood may be limited. As with all other SBA program requirements, our intent is to be flexible in helping districts evaluate alternatives, recognizing that siting decisions often present difficult choices with no ideal solution. In any event, the site must be under the clear control of the school committee, either by title or long-term lease, for the anticipated life of the building.

Districts are encouraged to study all feasible alternatives and options with respect to sites and the re-use of existing buildings. No reasonable alternative should be excluded from study because of a belief that the Department will not approve it. Our SBA staff is available for consultation during the planning process and can provide guidance on evaluating different alternatives with respect to the SBA program regulations. If the district's preferred approach requires a waiver from any of the SBA program standards, we will try to give you timely feedback as to whether such a waiver is likely to be granted, and if not, the specific reasons.

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