Schools Study Demonstrates Savings and Need for State Policy Changes

The Cleveland Restoration Society has released its Historic Schools Feasibility Study, concluding that the Cleveland Municipal School District (CMSD) could potentially save over $17 million if they choose to renovate, rather than replace, four historic schools that are currently slated for demolition in the District’s master plan. The study also concludes that Ohio’s state policies, which favor new construction over renovation, should be revised, beginning with the abolition of the two-thirds guideline. Through a grant from the Ohio Historic Preservation Office, the Society examined the four buildings to determine if they could be renovated to meet current educational standards and still receive full funding from the Ohio School Facilities Commission (OSFC). Following a model developed by the Columbus Landmarks Foundation, the study examined the OSFC’s guidelines, the waivers available, and the ultimate cost difference between renovation and replacement.

The Society examined William Cullen Bryant K-8 School in Old Brooklyn, Robert Fulton K-8 School in Mount Pleasant, Albert B. Hart K-8 School in Slavic Village, and Audubon K-8 School in Woodland Hills. The Society chose the schools weighing the following criteria: they represent a variety of architectural styles and floor plans that are located throughout the district, they are potentially eligible for listing in the National Register of Historic Places, they generally maintain high historic integrity, and they are in fair to good condition. All but one are scheduled for replacement far enough in the future to allow the District ample time to react to this study. Because many older school buildings were constructed along similar models, other districts in Ohio will find this study useful.

Local architects Ubiquitous Design, Inc. and Gaede Serne Architects examined each school, designed a school layout that meets the OSFC’s program square foot guidelines, and prepared a detailed budget for all costs associated with the project. Because the OSFC typically does not factor in the cost of demolishing an existing building in determining its replacement cost, the cost is understated by that amount. The study therefore used an estimate of $5 per square foot for demolition and $2 per square foot for environmental abatement to create a more accurate “apples to apples” comparison.    

The study concludes that it is possible, working within the existing system, to choose renovation over replacement. However, the current process is unnecessarily complex and difficult to navigate. For example, the study found that there is a great degree of flexibility by OSFC on issues such as use of spaces and moving walls, but districts are often unaware of this flexibility because of the size and complexity of the Ohio School Design Manual. Further education is needed so that districts realize that they have choices and won’t necessarily lose funding from OSFC if they want to keep and maintain a historic school.

The Society also found that the initial building assessments were done quickly, often by architects lacking expertise in historic preservation. The data therefore on which the important renovation/replacement decision is made is often inaccurate or skewed. Project budgets, which are also based upon these initial assessments, are often unrealistic.

The Society believes the study, coupled with the recent renovation of John Hay High School in Cleveland, underscores the need for changes in state policy. The Cleveland Municipal School District has saved $1 million by renovating John Hay, thus saving on the cost of demolition and preventing the majority of the original materials from ending up in a landfill. “The State of Ohio needs to get in step with the sustainability movement,” says Kathleen H. Crowther, executive director of the Society. “By rehabilitating these significant neighborhood landmarks, districts would be able to meet the OSFC’s Program of Requirements, have superior twenty-first century educational facilities, save significant resources, decrease wastefulness, and retain materials and craftsmanship that would be difficult to replicate today.”

The Society advocates for a level playing field between renovation and new construction within OSFC guidelines. “The state should abolish the two-thirds guideline, which states that a district should opt for replacement when the cost of renovation exceeds two-thirds the replacement cost, and enable districts to renovate existing buildings when there are cost savings,” says Crowther. “More flexibility is needed in the area of minimum acreage requirements, which are difficult, if not impossible, to achieve in urban areas and traditional small towns and thus often promote sprawl by encouraging these districts to build in outlying areas. Auditoriums, which are a component of many older schools, including 24 in the Cleveland district, should be eligible for state funding for renovation, even if no new auditoriums will be built.”  

The Cleveland Restoration Society’s Historic Schools Feasibility Study shows that districts throughout Ohio could potentially save millions of dollars if they choose to renovate, rather than replace their historic schools. Changes in Ohio’s school facilities policies could facilitate those savings. To learn more about the Cleveland Restoration Society’s Historic Schools Feasibility Study visit www.clevelandrestoration.org.

The Cleveland Restoration Society is the region’s largest non-profit preservation organization and is a Local Partner affiliate of the National Trust for Historic Preservation. Founded in 1972, the Society is dedicated to the preservation of Greater Cleveland’s historic resources.

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