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Californias K-12 Educaonal
Infrastructure Investments:
Leveraging the States Role for Quality School Facilies in
Sustainable Communies
A Policy Research Report to the California Department of Educaon
2012
hp://citesandschools.berkeley.edu
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AboutthisReport
TheresearchandwritingofthisreportwasledbyJeffreyM.Vincent,PhD,withassistancefrom
DeborahL.McKoy,PhD,MarkLeinauer,andPauloPisco.MaryFilardo,ExecutiveDirectorofthe
21
st
CenturySchoolFund,servedasnationalpolicyadvisortothestudy.FundingforthisworkwasprovidedbytheCaliforniaDepartmentofEducation,theCaliforniaEndowment,andthe
InstituteofUrbanandRegionalDevelopmentattheUniversityofCalifornia,Berkeley.
Acknowledgements
TheUniversityofCalifornia,BerkeleysCenterforCities&SchoolsgreatlythankstheCalifornia
DepartmentofEducation(CDE)fortheopportunitytoconductthisstudyandprovidepolicy
researchguidance.WeparticularlythankKathleenMoore,FredYeager,andtherestofthestaff
oftheCDEsSchoolFacilitiesandTransportationServicesDivision.Wealsothankthemany
individualsfromacrossthestateandnationwhospokewithusandsharedtheirinsights,
experiences,andpolicyknowledge.Additionally,wethanktheCaliforniaEndowmentfor
supportingtheresearchinthisreport.Anyerrorshereinaretheresponsibilityoftheprimary
author.
AbouttheCenterforCities&Schools
TheCenterforCities&Schoolsatthe
UniversityofCalifornia,Berkeleyisan
action-oriented,policyandtechnical
assistancedo-tank,whosemissionistopromotehigh-qualityeducationasan
essentialcomponentofurbanand
metropolitanvitalitytocreateequitable,
healthy,andsustainablecommunitiesforall.
http://citiesandschools.berkeley.edu/
SuggestedCitation
Vincent,JeffreyM.(2012).CaliforniasK-12EducationalInfrastructureInvestments:LeveragingtheStatesRolefor
QualitySchoolFacilitiesinSustainableCommunities.Berkeley:CenterforCities&Schools,UniversityofCalifornia.
Copyright2012CenterforCities&Schools,UniversityofCalifornia,Berkeley
Coverimages(lr):SaidaOnline;JessiDimmock;KarenTapia,CaliforniaStateUniversity,Fullerton.
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AMessagefromStateSuperintendentofPublic
InstructionTomTorlakson
A Message from State Superintendent of Public Instruction Tom Torlakson
Californias schools are in a fiscal emergency. Shrinking state resources are forcing schoolboards to make tough decisions in all areasstaffing, curriculum, student support services, andfacilities. When facing these unprecedented challenges with continually decreasing resources,the state, our school boards, superintendents, and communities have an even greater need toplan for quality, equity, efficiencies, and accountability.
One of the first efforts I undertook as State Superintendent of Public Instruction was to createthe Schools of the Future Initiative. This broad based group of educators, business leaders, andpolicy makers provided recommendations in two key areas: School Facility Program Reformand High Performance Schools. I did this because we know from research and experience thatquality school facilities help to attract and retain teachers, support improved student outcomes,and provide a positive economic impact to a community.
These recommendations from the Schools of the Future Initiative were only the first step. Thisreport commissioned by the California Department of Education and prepared by the Universityof California Berkeley, Center for Cities and Schools helps advance many of theserecommendations and frame the larger school facility policy issues. The state and local districtscannot afford to lose the ground we gained from investing $100 billion in school facilities overthe past decade.
This much needed report identifies key policy linkages between school facility policy and thestate's climate change goals. Strategically locating schools, ensuring safe walking routes,
reinvesting in our 10,000 existing schools, and fostering increased district and city collaborationwill be key in reducing the greenhouse gas emissions and creating a healthy California for todayand the future.
I am pleased to accept this report and have tasked the Director of School Facilities to take thelead on preparing an implementation plan with stakeholder input. The California Department ofEducation will work collaboratively with state agencies and all stakeholders to ensure theseefforts are comprehensive and address the needs of all students. For some of the neededactions legislation is necessary, and I look forward to working with the legislature, the Governor,school districts, county offices of education, and charter schools in creating policies and fundingthat will help to move Californias schools and communities forward.
So despite the current fiscal emergency, we have opportunities to shape the future. I amoptimistic that our efforts today will create a better tomorrow. The education, health, andwell-being of our students, our communities, and our state depend on it.
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Preface
Schoolfacilitiesmatter.
Theymattertothemorethan6millionstudentswhoenteraschoolbuildingeveryday,tothe
teachersandstaffwhoeducateourstudentsandwhoseworkplaceisaschool,andto
communitieswheretheschoolservesasanintegralspaceforneighborhoodactivity.
Californiavotersknowthisintrinsicallyandhaveconsistentlyinvestedinschoolfacilitiesby
passingstatewidebondmeasures.
Since1998,thestatesvotershaveprovidedmorethan$35billioninstatebondfundsand
votersinschooldistrictsthroughoutthestatehavecontributedmorethan$66billionforour
schoolfacilities.Withthesebondsanddeveloperfees,Californiasschooldistricts,county
officesofeducation,andcharterschoolshavebeenabletomakeanhistoricinvestmentin
buildinghundredsofnewschoolschoolsandinmodernizingthousandsofexistingschools.
Now,fourteenyearslater,thestateaswellasthenationandtheworldareinadifferent
placeaneconomicrecession,afocusonsustainability,andtheneedtoclosethe
achievementgapareinformingeducationpolicyanditisnecessarytoreexaminethestate
andlocalfacilitypartnership.Toframethisneededdiscussion,theCaliforniaDepartmentof
EducationsolicitedthisreportfromtheCenterforCities&SchoolsatUniversityofCalifornia,
Berkeley.
Theissuesraisedhereinwillhelpdrivetheneededconversationbetweennowand2014about
whatthenextstatewideK-12schoolconstructionfundingprogramshouldlooklike,andhow
schoolscanbekeypartnersinachievingthestatesenvironmentalgoals.
Thelinkbetweenqualityschoolfacilitiesandstudentachievementiswell-documentedin
researchandbyourcommonexperiences,andthecontinuedstateinvestmentinschool
facilitiesinfrastructureshouldbespentonhigh-impactoutcomesthatimproveourschools,our
communities,andourstate.Schoolsneedtobelearner-centered,safe,andsustainablecenters
oftheircommunities.Itistimetoexamineourbeliefs,reevaluatehowwehavebeendoing
business,andcommitourselvestogettingevenbetterresults.
Thankyoufortakingthetimetoreadthisreport,andIhopethatyouwillactivelyparticipatein
Californiaseffortstohavegreatschoolsandthrivingchildren.
KathleenJ.Moore,Director,SchoolFacilitiesandTransportationServicesDivision,
CaliforniaDepartmentofEducation,June2012
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Contents
AMessagefromStateSuperintendentofPublic
InstructionTomTorlakson ii
Preface iii
ExecutiveSummary v
I. ADecadeofProgressforCaliforniasK-12Educational
Infrastructure 1
II. TheStateRoleinK-12EducationalInfrastructureandSustainableCommunities 6
III.Findings:BarrierstoK-12InfrastructureAlignment 16
IV.Recommendations:LeveragingtheStatesRolefor
QualitySchoolFacilitiesinSustainableCommunities 36
V. Conclusion:MeetingtheChallenge 60
ListofAbbreviations 61
Endnotes 62
Appendices 70
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ExecutiveSummaryInCaliforniasK-12EducationalInfrastructureInvestments:LeveragingtheStatesRoleforQualitySchool
FacilitiesinSustainableCommunities,theUniversityofCalifornia,BerkeleysCenterforCities&Schools
providesananalysisofthestatesK-12infrastructurepolicies,regulations,andfundingpatterns.Findings
revealtheneedtogreatlyrefineschoolfacilitiesplanningandfundingpoliciesandpracticestopromotesound,efficient,andgoal-orienteddecisionmakingatstateandlocallevels.Therecommendationsre-
envisionthestatesroleinK-12infrastructureasoneofappropriatelysupportingeducationaloutcomesand
contributingtomoresustainablecommunitiesthroughaframeworkofpublicinfrastructurebestpractices
forsoundplanning,effectivemanagement,adequateandequitablefunding,andappropriateoversight.The
recommendationsbuildonthoseputforthinrecentCaliforniaDepartmentofEducation(CDE)reports,
includingSchoolsoftheFuture (2011),BlueprintforGreatSchools (2011),andRe-VisioningSchoolFacilities
forthe21stCentury(2009),andlayoutavision,policyframework,andimplementationplantoequitablyand
efficientlyimprovelearningenvironmentsforCalifornias6millionstudents.
Sinceitscreationin1998,CaliforniasSchoolFacilityProgram(SFP)hasprovidedprofoundsupportforK-12
infrastructure.Asastateandlocalfundingpartnership,theSFPhasinvested$101.6billioninlocalandstategeneralobligation(G.O.)bondfundsinnewconstructionandmajorbuildingimprovementsthroughoutthe
state.Statebondfundscontributed$35.4billiontothistotalwhileLocalEducationalAgencies(LEAs)bond
fundscontributedthebalance,about$66.17billion.Ontopofthis,LEAsinvestedcountlessdollarsfromtheir
annualschooloperatingbudgetstowardsfacilities,anestimated$10to$15billioninlocaldeveloperfees
wasraised,andthestatecontributedabout$6.2billionindeferredmaintenancefundsthatwerematched
byLEAs.Together,thesecapitalfundsbelievedtototalabout$118billionbetween1998and2011
improvedthehealthandsafetyofmanyschoolfacilities,providednewschoolsforgrowingcommunities,
relievedovercrowdingthroughnewconstructionandadditions,contributedtocommunityand
environmentalimprovements,andhavebeenajobcreationengine.
However,ourresearchfindingsindicatethatpolicyreformsandfutureinvestmentareneededtoensurethesepastgainsarenotsquandered;therearetime-sensitiveopportunitiestoseizeimprovementsatboth
thestateandlocallevelsthat:1)equitablydistributethesebenefitsacrossallschools;and2)enhancethe
collaborationofLEAsandlocalgovernmentsforaligningandleveragingthesubstantialpublicinvestmentsin
landdevelopmentpatterns,K-12infrastructure,andotherinfrastructuresectors.Bystrategicallydoingboth,
Californiawillensureitspoliciesandinvestmentprioritiessupporteducationalqualityandpromotethe
statesbroaderinfrastructurefundinggoalsandnewpolicyshifttowardsmoresustainablecommunities.The
latterincludesimplementationofSenateBill(SB)375,upholdingthestateplanningprioritiesasoutlinedin
AssemblyBill(AB)857,andeffortsdiscussedindetailinourreport.Despitetheimportanceofschoolsas
communityinfrastructure,thestatesK-12facilityprogramcurrentlyisdisconnectedfromthebroader
effortstoalignotherstatewideinfrastructureinvestmentsaroundacommonsetofsustainabilitygoals.
Overthenextdecade,weestimatethatCaliforniasK-12schoolfacilitiesneedaboutthesamelevelof
investmenttheyhadoverthelastdecadetoprovidesafe,modern,equitable,andsustainablelearning
environmentsforallstudents.Wecalculatethat$117billionintotalcapitalinvestment(fromallsources)is
neededtomakegoodonthepreviousdecadeshistoricinvestment.However,theinvestmentoverthe
comingdecadeshouldbestructureddifferentlythanthatofthepreviousdecadetobestaddresstheneeds
inlocalcommunitiesacrossthestate.Whereasmuchoftheinvestmentsince1998wasaimedatnew
constructiontoaccommodateenrollmentgrowthandcrowding,thenextdecadewillneedtoprioritize
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existingschoolfacilities.Aparticularfocusshouldbeonimprovingsubstandardlearningenvironmentsand
eliminatingdeferredmaintenanceneedsthroughannualcapitalrenewalsinvestments(anindustry
standard),majormodernizationsforbothlife-safetyandeducationalprogramdelivery,andwhere
necessaryfullreplacementofoutmodedbuildingsthathinderhealth,safety,and/orqualityteachingand
learning.
Byfollowingtherecommendationsinthisreport,theStateofCaliforniawillbestleverageitspolicy,
regulatory,andfundingroletolinkitsplanningandinvestmentinK-12schoolfacilitiestoother
infrastructuresectorsformultiplebenefitstoeducationandlocalcommunities.
Findings:BarrierstoK-12InfrastructureAlignmentAhostofpolicyandimplementationchallengesremainbarrierstoCaliforniamaximizingitsstrategicuseof
state-levelK-12infrastructurefunds.Ourresearchfindingsindicateconcernsofinequitablefacilitycondition;
inadequateinvestment,particularlyinexistingfacilities;andlackoflocalgovernmentandLEAcollaboration
aroundinfrastructureandlandusedecisions.Wefoundlikelycausesforthesechallengesinthecapital
facilityplanning,management,funding,andaccountabilitysystemsinplacein
thestate.Thekeyfindingsare:
PlanningChallenges
CaliforniasK-12infrastructuredemandsdifferfromthoseofadecadeago CalifornialacksclearlydefinedK-12infrastructureinvestmentpriorities CaliforniassustainablecommunitiespoliciesexcludeK-12infrastructure TheSchoolFacilityProgramhaslittleauthorityoversustainable
communitiesoutcomes
Policyandregulatoryguidanceforlocalintergovernmentalplanningisinsufficient
ManagementChallenges CalifornialackstheinformationtoguidestrategicK-12infrastructure
decisions
ConcernsofdistrustandinefficiencyplaguetheSchoolFacilitiesProgram CaliforniasK-12facilitygrantslackflexibilityforplanninganddesignfor
21stcenturylearning
FundingChallenges
Fundingofmodernizationsforhealth,safety,andeducationqualityhasfallenshort
CaliforniasK-12infrastructurespendinghasbeeninequitable LEAswillstillneedfundingassistancefornewschoolconstruction CaliforniasepisodicandunstablescheduleforK-12infrastructurefunding
createsinefficiencies
Overthenextdecade,CaliforniaK-12schoolfacilitiesneedanestimated$117billionincapitalinvestmentstoensuresafe,modern,equitable,andsustainablelearningenvironmentsforallstudents
AccountabilityChallenges
CalifornialacksthemetricsandsystemsneededtoensurehighvaluereturnonstateandlocalK-12educationalinfrastructureinvestment
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Recommendations:LeveragingtheStatesRoleforQualitySchoolFacilities
inSustainableCommunitiesThroughouranalysisofCaliforniaspoliciesandfundingtrendsonK-12schoolfacilitiesandother
infrastructure,ourextensiveinterviewswithrelevantstakeholdersstatewide,andourstudyK-12school
facilityprogramsandfundingpoliciesinallotherstates,wedevelopedrecommendationsforstrategicallyimprovingtheStateofCaliforniasroleinK-12schoolfacilities,andespeciallythenext
generationoftheSchoolFacilityProgram(SFP).Theserecommendationsaimtoensurethatstate
fundingisadequateandfairlyallocated;thatstateapprovalsenhanceaccountability,butareefficient;
andthatstatepoliciespromotelocalplanningtointegrateK-12facilitiesandsustainablecommunity
infrastructure.Therecommendationsfurtheroutlineacoherentsetofguidelines,standards,incentives,
technicalsupport,andinvestmentprioritiesforCalifornia.Wehavefocusedonwhatthestatecandoto
supportLEAsandotherlocalgovernmentsindeliveringhigh-qualityschoolfacilitiesinsustainable
communities,whichinvolvesimplementationofthreekeyelements:policyreforms,process
innovations,andtechnologytools.
1)TheCaliforniaStateLegislatureshouldadoptavisionandmasterplanforthestatesK-12
infrastructureinvestment.AsolidvisionandmasterplanisneededforCaliforniatostrategically
investitsstate-levelK-12schoolfacilitiesfunds.Thestatesaimshouldbetofirstandforemostaddress
educationalneeds,butalsotosupportthestatesbroadergoalsofsustainablecommunities.Aswe
foundinourresearch,thestatesinvestmentprioritiesonK-12infrastructurearefallingshortonboth.
TheStateLegislatureshouldestablishataskforce(orequivalent)todevelopavisionwithguiding
principlesandamasterplanforthestateK-12facilitiesprogram.Thetaskforceshouldusethisreportas
aguide.Thevision,principles,andplanshouldthenguideallstate-levelagenciesinvolvedwithK-12
facilities,helpingtocreateanintegratedpolicyframeworkformultisectoralstrategiccapitalplanning
andalignthegoalsofK-12infrastructureinvestmentwiththestatesbroaderinfrastructureinvestment
goals.a. K-12schoolinfrastructureshouldhaverepresentationontheStrategicGrowthCouncil
2)Thestateshouldmoreactivelypromotelocalplanningthatadvancesqualityeducationand
sustainablecommunities.Improvedclarityinstatecodesonlocalintergovernmentalplanningis
neededforacollaborativeshifttowardsensuringhigh-qualityschoolsandsustainablecommunities..
Statepoliciesplayarolebyestablishingmandatesandincentivestoencouragelocalleaderstowork
together.BecauseschoolfacilitiesplanningandmanagementinCaliforniaisalocalLEAresponsibility,
statepoliciesshouldbedesignedtoencourageandsupportwell-managedlocalcapitalplanning
programsinadditiontoprovidingfundingassistanceandsettingvariousstandards.a. K-12schoolinfrastructureshouldbeincludedinsustainablecommunitiespolicyandimplementation
b. Schooldistrictsneedstandards-basedEducationalFacilitiesMasterPlansc. Policy,regulatory,andbestpracticesguidancefromstateagenciesshouldbeavailabletosupportlocal
intergovernmentalcollaboration
d. K-12facilitiesprojectsreceivingstatefundingshouldmeetminimumgreenbuildingcriteria
e. CEQAshouldbeusedtoidentifyandimplementlanduseandschoolsiteplanningchangestosupportmore
sustainablecommunities
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3)Thestateshouldassemblethenecessaryinformationtostrategicallyprioritizefundingfor
schoolfacilitieswithhighestneeds.Highlevelsofdeferredmaintenanceandotherfacility
deficienciesareasignificantconcernforCalifornia,mostimportantlybecausetheyhinderteachingand
learningandworkagainsteducation,health,safety,andotherstategoals.Throughitsabilityto
prioritizefunding,awardhardshipgrants,andotherpolicylevers,theStateofCaliforniacanplayanimportantroleinassistingLEAsinbuildingnewschoolsandrepairingandmodernizingexistingschools
tobestsupportstudentsuccessandovercomethedeeplyentrenchedachievementgapexperiencedby
low-income,AfricanAmerican,andLatinostudents.Toensurethatschoolfacilitypoliciesandfunding
decisionsaremadeinthebestinterestsofCaliforniaschildren,educationdata,facilityinformation,and
establishedprioritiesshouldbetheguide.Strategicdecisionscanonlybemadewithgoodinformation
thatisavailabletodecisionmakersandthepublic.a. DevelopaninventoryandassessmenttoolthatmeasurestheconditionsandqualitiesofallCaliforniapublic
schoolfacilities
4)TheCaliforniaDepartmentofEducationshouldworkwitheducators,communities,and
designprofessionalstoreviewthestandardsinCaliforniaCodeofRegulations,Title5toensuretheyprovideforeffectiveandefficientpublicplanningprocessesandareasoundbasis
forqualityschoolfacilitiesthatcontributetosustainablecommunities.Thestandardsin
CaliforniaCodeofRegulations,Title5(Title5)playanimportantroleinshapingschoolplanningand
designatthelocallevel.Thesedesignandcondition(andother)standardsforexistingandnewpublic
schoolfacilitiesareneededsothatprioritiesandfundingadequacycanbedeterminedbasedonclear
benchmarks.LEAshavewidelatitudeinthedesignoftheirschoolsandthestandardsarestructuredto
allowforLEAcustomizationsolongastheydemonstratetotheCDEthatstudentsafetyandeducational
appropriatenessarenotcompromised.Thestatemustdeterminewhatspaces/physicalcomponentsa
schoolreceivingstatefacilitiesfundsshouldminimallyincludeindependentofthewealthofthe
community.ThereviewandupdatingofTitle5alsoneedstotakeintoconsiderationthestatesnew
sustainablecommunitiesprioritiesincludingoutliningstandardsforintergovernmentalplanningforthe
replacement,modernization,andexpansionofexistingschools;sitingnewschoolsininfilllocations
and/oradjacenttoexisting/planningdevelopmentthatpromotecompactdevelopmentandwalkability;
andpromotingjointuseofschoolandcommunityfacilities.a. Conductastatewidecomparisonofexistingbuildingspaces,features,andamenitiesb. EnsurethereviewandupdateofTitle5supportsthestatesnewsustainablecommunitiespriorities
5)Thestateshouldsetprioritiesforremedyinginadequatefacilitiesandsupportingnew
construction.Akeypriorityforsupportinghigh-qualityeducationinCaliforniashouldbeensuringall
schoolsmeetthenewminimumconditionalstandards.Byhavingthistypeoffundingprioritizationin
theshortterm,CaliforniawillensurethateducationalgoalsdriveK-12facilityfundingpatterns.Forexample,ifclosingtheachievementgapisastateeducationgoal,thenonestepinthatdirectionis
closingtheschoolfacilityconditiongap.Followingthestatewideinventoryandbuildingconditions
assessment(Recommendation3),andtheupdatingofTitle5standards(Recommendation4),thestate
canworkwithLEAstoidentifystatewideneeds.Thestate(e.g.,CDE)shouldworkonacase-by-case
basiswiththeLEAsofschoolsthatfallbelowthestandardstodeterminewhatinvestmentsneedtobe
made,includingbuildingreplacementsandmajormodernizations.Thestateshouldalsostrategically
strengthenitssupporttoLEAsfornewconstruction.Theneedsforthisfundingwouldfluctuateover
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timeinaccordancewithenrollmenttrends,regionalgrowth,sustainablecommunitiesgoals,andother
factors.Overall,theseprioritiesshouldbothsupporthigh-qualityeducationandalignwiththestates
broaderinfrastructureinvestmentandsustainablecommunitieslanddevelopmentgoals.a. Identifythestate-levelneedforfullschoolmodernization,buildingreplacement,andnewconstruction
b. Establishcriteriaforrankingfullschoolmodernization,buildingreplacement,andnewconstructionprojects
c. Bringschoolsnotbeingreplacedorfullymodernizeduptominimumconditionsstandardsbyeliminatingdeferredmaintenanceneeds
d. Workwiththelegislaturetodevelopatransparentandeasilyunderstoodformulatodirectstatefundstothehighestneedprojects
6)Toprotectthestatesinvestmentandaidinsupportingeducationalachievement,fundsfor
thestateshareincapitalrenewalsshouldbeprovidedtoallschooldistrictsannually,adjusted
forlocalwealth,need,andeffort.Tochipawayatthephysicalconditionsdeficienciesinindividual
K-12facilitiesacrossthestate(especiallythosenotaddressedthroughbuildingreplacementsand
modernizationsforeducationprogramdelivery)andtokeeplevelsofthesedeficienciesfromrisingin
thefuture,thestateshouldestablishanongoingprogramthatprovidesfundsannuallytoLEAs,toassist
withcapitalrenewals.Renewalisthescheduledreplacementorrestorationofbasicbuildingsystems,
components,andfinishesthathaveexceededtheirservicelife.Providingdedicated,predictablefunding
toLEAsforcapitalrenewalswillalsocurtailtheprocessinefficienciesandfacilitydeficienciesthatresult,
inpart,fromCaliforniascurrentepisodicandunstablebond-drivenK-12infrastructureinvestment
pattern.CapitalrenewalfundingwillalsohelpremedytheeffectsofincreasedLEAsflexingof
deferredmaintenancefundsinrecentyears.Itwillalsohelpsafeguardthestatefromfacilityequity
lawsuitsinthefuture.Aneffectiveandwell-managedcapitalrenewalsstateprogramshouldhave
appropriatefundingamountstoaddressprioritizedneeds(asoutlinedinthisreport)andatransparent
formulawithanestablishedstateshareprioritizinglow-wealth,high-need,andhigh-effortLEAs.
7)ThestateshouldidentifymultiplerevenuesourcesforcontributingtoLEAnewconstruction,buildingreplacements,modernizations,andcapitalrenewals.ToensurethattheStateof
CaliforniaismeetingitsshareofK-12capitalinvestment,multiplerevenuesourceswillbeneeded.The
stateshouldassessoptionsformorestableandadequatestatefundingsourcesratherthanrelysolely
ondebtfinancingthroughG.O.bonds.a. ConsiderastatewidespecialtaxtofundannualK-12capitalrenewals
b. Passenablinglegislationforpublic/publicandpublic/privatepartnershipsforschoolconstruction
c. Continuetouseperiodicbondproceeds
8)TheCaliforniaStateLegislatureandtheStateAllocationBoardshouldimprovepublic
accountabilityprocesseswithintheSchoolFacilityProgram.Improvedaccountabilitymeasures
areneededtorealizeprocessefficienciesandachievedesiredoutcomesfromstateinvestment.a. ProduceanannualreportonK-12capitalfundingpatterns
b. Developastate-level,interagencyprojectmanagementinformationsystem
c. EstablishastatelevelSFPCitizensOversightCommittee
d. MaintaintheSABsImplementationCommitteeasamechanismforpolicyandregulatoryfeedback
e. CoordinateandstreamlineSFPapprovalprocessestoincreaseefficiencies
f. Supportplanningprocessesandtechnologytoolstorealizeefficiencies
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Californias
School Facility
Program has
made a
profoundly
important
investment in
the state andits children.
I. ADecadeofProgressforCaliforniasK-12
EducationalInfrastructure
CaliforniasSchoolFacilityProgram(SFP)hasbeenaprofoundlyimportantK-12infrastructureprogramforthestateanditschildren.Themostrecentprogram
beganin1998andwasstructuredasastateandlocalfundingpartnership.Since
1998,thisfundingpartnershiphasinvested$101.6billioninlocalandstategeneral
obligation(G.O.)bondfundsinnewconstructionandmajorbuildingimprovements
throughoutthestate.Statebondfundscontributed$35.4billionofthistotaland
LocalEducationalAgencies(LEAs)bondfundscontributedtherest,about$66.2
billion.Ontopofthis,LEAsinvestedcountlessdollarsfromtheirannualschool
operatingbudgetstowardsfacilities,anestimated$10to$15billioninlocal
developerfeeswasraised,andthestatecontributedabout$6.2billionindeferred
maintenancefundsthatwerematchedbyLEAs.Together,thesecapitalfunds
believedtototalabout$118billionimprovedthehealthandsafetyofmanyschool
facilities,providednewschoolsforgrowingcommunities,relievedovercrowding
throughnewconstructionandadditions,contributedtocommunityand
environmentalimprovementsinolderneighborhoods,andhave
beenasizablejobcreationengine.
Thismassiveandunprecedentedinvestmentcameata
timeofenormousneedamongschoolsinthestate.Tensof
thousandsofstudentswereonmultitrack,year-roundschedules
withashortenedschoolyear,attendingclassesinportable
buildings,experiencingintensecrowding,and/orbeingbusedtolesscrowdedschoolslocatedfartherfromtheirhomes.
Concurrently,studentenrollmentwasgrowing.Withstrong
votersupport,stateandlocalfundsjointlyaddressedthese
concerns.1Between1995and2004,CaliforniaLEAswereonly
spendinganaverageof$492perstudentperyearonfacilities.
WiththehelpofSFPfunds,thisratejumpedtoanaverageof
$1,569perstudentperyearbetween2005and2008.The
investmentsawCaliforniagofrom36thto6
thnationallyintotal
K-12facilityspending.2Underthestate-localfunding
partnershipestablishedbytheSFP,substantialimprovements
andexpansionshaveoccurredinthestatesK-12educational
infrastructure.Inrecentyears,theStateofCaliforniahas
contributedabout30%oftotalLEAcapitaloutlay,whileLEAs
havecontributed70%themselves.3
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Butgoingforward,Californiafacesmajorchallengesinmaintainingandprioritizing
thestatecontributiontolocalK-12facilitiesneeds.
AvailablestatebondfundsforK-12facilitiesarenearlydepletedandoncegonetherearenomorestatefundstodistributeunlessanotherstatebondpasses. Whilethe
previousfourstatewideK-12bondshadstrongvotersupport,Californiascurrent
economicclimateismuchdifferentthanwhenthosebondspassed;thedowneconomy
andtheconcernsaboutrisingdebtservicecoststothestatesgeneralfundmakeanew
bondssuccessatthepollslesspredictable.
Basedonwhatisknownaboutschoolfacilityneedsacrossthestate,itissafetoassumetherewillbemuchmoreneedanddemandfromLEAsforstatematching
fundsthanwillbeavailable.CaliforniaLEAswillneedtocontinuetoinvestintheir
schoolfacilitiestoenricheducation,accommodatepopulationgrowth,relieveschool
overcrowding,eliminatedeferredmaintenance,keepupwiththenormallifecycleof
buildingsystemsandcomponents,andmodernizefacilitiestobothenhanceeducational
outcomesandutilizemoreefficientandsustainabletechnologies.Unfortunately,
Californiadoesnothaveasolidestimateofthestatewideschoolfacilityneeds;anexternal2008studyestimatedstatewideK-12 deferredmaintenanceneedsalonewere
$25.4billion.4NotkeepingupwiththevarietyofneededinvestmentsplacesCalifornias
childrenatstrongriskofexperiencingthesamefacility-relatedproblemstheSFPwas
establishedin1998toalleviate.Asnumerousstudieshaveshown,facilityproblemswork
againstpositiveeducationaloutcomes.Astheseproblemsmount,basicbuilding
conditionsworsenovertime.Additionally,educationalenhancementssuchas
technology,sciencelabs,otherspecialtyspacesfora21stcenturycurriculumarenot
occurring,particularlyinschoolsservinglow-incomechildren.Asaresultmanylow-
incomechildrenthroughoutthestatearenotbuilding21stcenturyskills.Theseproblems
areafunctionofinadequateandinequitableschoolfacilitiesfundingaconcernthatled
totheEliezerWilliams,etal.,vs.StateofCalifornia,etal.,lawsuitanditssettlementin
2004(describedlaterinthereport).
Mostfundamentally,Californiamustdecideifandhowitwillmaintainitslong-
standingcommitmenttofundingK-12educationalinfrastructureandensuresafe,
adequate,andeducationallyappropriatelearningenvironmentsforthestates6
millionstudents.WeassumethattheStateofCaliforniawillcontinuesomelevelof
statefundingforlocalK-12schoolfacilitiescourtdecisions,varioussectionsofthe
GovernmentCode,EducationCode15700,andtheLeroyF.GreenSchoolFacilities
Actof1998,beginningatEducationCode17070.10,suggestthestatehasan
ongoinglegalresponsibilityinthisregard.GiventheinescapablefactthatK-12school
facilitiesrequireongoingexpenditurestoremainsafeandhealthy,howwillstatefundsbeprioritizedtopromotethemostbeneficialoutcomes?
Atthesametime,Californiaisestablishingnewpoliciestoensurelanduse,
transportation,andinfrastructureinvestmentspromoteenergy,resourceuse,and
greenhousegasemissionslevelsthataresustainable.Thestatehasmade
unprecedentedpolicyshiftstobetteralignstatewideinfrastructureinvestment
towardsmoresustainablecommunities.Evidenceofthisshiftcanbeseeninthe
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The
prioritization o
the next
generation of
K-12 facilities
funds should
be driven by
both the
states
educational
priorities and
its sustainable
communities
objectives.
creationoftheStrategicGrowthCouncil(SGC)andenactmentofclimatechange
legislation,includingAssemblyBill(AB)32,SenateBill(SB)375,andSB732
(describedlaterinthereport).Aseducationalandcommunityinfrastructure,K-12
facilitiesnotonlyaffecteducationaloutcomes,buttheyalsoaffectland
development,transportationpatterns,housingprices,residentialchoices,andwater
andutilitydemands.
However,despitetheimportanceofschoolsascommunityinfrastructureandtheir
impactonthestatessustainablecommunitiespriorities,thestatesK-12facility
programremainswhollydisconnectedfromthebroadereffortstoalign
infrastructureinvestmentsaroundacommonsetofgoals.AsCaliforniamovesto
alignallofitsinfrastructureinvestmentsectors,schoolfacilitiesplanningand
investmentshouldbeconnectedtotheseefforts.
TogetthebestvalueoutofthestatesK-12schoolfacilityinvestments,the
decisionsonhowtospendfuturestate-levelschoolfacilitiesfundsshouldbedrivenbyboththestateseducationalprioritiesanditssustainablecommunities
objectives.Likeanypublicpolicydecision,thiswilllikelyrequiremakingtradeoffs.
Buttobeclear:Californiaseducationalinfrastructureinvestmentprogramshould
firstandforemostsupporthigh-qualityeducation.Importantpolicyreformsarestill
neededtodothat,aswewilldiscuss.But,thestateseducationalinfrastructure
investmentshouldalsobesupportiveofandnotunderminethestates
sustainablecommunitiesgoalsandobjectives.Thus,whereverpossible,state-level
K-12facilitiespolicies,regulations,andinvestmentsshouldharnessesco-benefits
inmultipleareasofstatepriorities,includingthegoalsofhigh-qualitygreenpublic
schools5andmorehealthyandsustainablecommunities.
6Atthesametime,the
stateprogramshouldensureefficientpublicspendingatbothstateandlocallevels.
Leveragingbenefitsacrossmultiplestategoalswillhelpguaranteebettervalueof
publicfundsspent.
Inthispolicyresearchreport,theUniversityofCalifornia,BerkeleysCenterfor
Cities&SchoolsidentifiesbarriersandpresentsrecommendationstotheState
SuperintendentofPublicInstructionandtheStateLegislatureforstrategic
improvementstoCaliforniasstate-levelK-12facilitiesinvestmentandthe
prioritizationoffuturefunds.Ourrecommendationsbuildonthoseputforthin
recentCaliforniaDepartmentofEducation(CDE)reports,SchoolsoftheFuture
(2011),BlueprintforGreatSchools(2011),andRe-VisioningSchoolFacilitiesforthe21
stCentury(2009).Ourrecommendationsaddresspolicy,regulatory,andfinance
issueswithinaframeworkofpublicinfrastructurebestpracticeelementsof:
soundplanning, effectivemanagement, adequateandequitablefunding,and appropriateoversight.
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WeproviderecommendationsforamorecoherentK-12infrastructureprogram
frameworkatthestatelevelthatwillinturnincentivizethesamesoundplanning
andinvestmentpracticesatthelocallevelbyLEAsandlocalgovernments.Such
recommendationsresultfromrecentpolicyreviewsofCaliforniasinfrastructure
investmentsandbettersupportmultisectoralcapitalplanningstrategies.7Our
recommendationswillhelpCaliforniamoveforwardtowardsthisgoalandrealizeco-
benefitsacrossmultiplestatepriorities.
ReportScopeandMethodologyThispolicyresearchreportasks:
HowcantheStateofCaliforniabetterpromoteefficientandsoundplanningforK-12schoolfacilitiesacrossthestate?
HowshouldthenextgenerationofCaliforniasstatelevelK-12schoolfacilitiesfundingbeprioritized?
Whatpolicyandregulatorychangesareneededtosupportsoundplanningandstrategicprioritizationofstatefunds?
Theresearchteamtookamultiprongedapproachtothecomplex,multifacetedissue
ofstate-levelK-12facilitiespolicy.First,weconductedextensivequalitativeresearch,
whichincludedparticipantobservationofconveningsofstatewidestakeholders(i.e.,
CaliforniaDepartmentofEducation(CDE)SchoolFacilitiesandTransportation
ServicesDivisions(SFTSD)AdvisoryCommittee,CoalitionforAdequateSchool
Housing(CASH)membershipmeetings,legislativehearingonSB132,Strategic
GrowthCouncil(SGC)meetings,andStateSuperintendentofPublicInstruction(SSPI)
TomTorlaksonsSchoolsoftheFutureTaskForce),andmorethan50stakeholder
interviewstounderstandfacility-relatedchallengesinschoolsandcommunitiesacrossthestate.Intervieweesincludedrepresentationfromschooldistricts;local,
county,andregionalgovernments;thestatelegislature;stateagencies;nonprofit
advocacygroups;academicresearchers;andpolicyexpertsfromacrossthecountry.
Second,wereviewedrecentpolicyresearchonandrecommendationsforCalifornias
K-12schoolfacilityprogramandinfrastructureinvestmentingeneral.Inmanycases,
wefoundusefulandapplicablerecommendationsfromearlierreportsonthisissue
toadapthere.WealsoanalyzedCaliforniaGovernmentCoderelatedtoschool
facilities.Third,weinvestigatedstate-levelK-12schoolfacilitypoliciesnationwideto
gleanideasforadaptationinCalifornia.Usingnationaldataonstateschoolfacility
policiesandprograms,weexaminedthedifferentpolicy,regulatory,andfunding
approaches,zeroinginononesthatappearinformativefortheCaliforniacontext.8
Thisreportconsistsoffivemainsections.SectionIIdescribesCaliforniasstatepolicy
frameworkforK-12infrastructureinvestmentandthestatesnewinfrastructure
investmentprioritizationformoresustainablecommunities,andthegrowinginterest
inaligningthetwo.SectionIIIoutlinestheresearchfindings,outliningthebarriers
andchallengestoK-12infrastructurealignment.SectionIVpresentsthepolicy
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recommendationstoensurethewiseandstrategicuseofCaliforniasstate-levelK-12
schoolfacilitiesinvestment.SectionVconcludeswithachargefornextstepsin
implementingtherecommendations.
WefocusonlyminimallyonthecomplexissueofthesourceofstatefundsforK-12
facilities.WhileitislikelythattheStateofCaliforniawillcontinuefundingforlocalK-
12schoolfacilities,thesourceofthosefundsremainsanissuethatloomsonthe
horizongiventhatCaliforniasdebt-servicefrombondfundshasincreased
substantiallyaccordingtotheLegislativeAnalystsOffice.9
WhyK-12SchoolFacilitiesMatterforEducationalQualityand
SustainableCommunitiesResearchincreasinglyaffirmstheimportantconnectionsbetweenK-12educational
infrastructure,educationaloutcomes,andsustainablecommunitiesandprovidethe
rationaleforwhyCaliforniashouldbemorestrategicinK-12facilitiesfunding.
TheconditionsandqualitiesofK-12schoolfacilitiesandtheirenvironmentsaffectteachingandlearning.Theresearchonschoolbuildingconditionsandstudentoutcomes
findsaconsistentrelationshipbetweenpoorfacilitiesandpoorperformance.10
When
schoolfacilitiesareclean,ingoodrepair,anddesignedtosupporthighacademic
standards,thereislikelytobehigherstudentachievementindependentofstudent
socioeconomicstatus.Physicalandenvironmentalconditionsbothinsideschoolsand
classroomsincludingtheamountofnaturallight,theindoorairquality,the
temperature,andthecleanlinessallimpactstudentlearningandteachereffectiveness.
Thus,theconditionanddesignofschoolfacilitiesandgroundsplayaroleinpromoting
healthystudents,supportingeducationalperformance,andclosingtheachievementgap.
Theconditions,qualities,andlocationsofK-12facilitiesaffecthealthyandsustainablecommunitiesobjectives,includinglanduse,growth,andtravelpatterns. Aspublic
infrastructure,K-12schoolfacilitiesandgroundsimpactlocalandregionalcommunities
inmanyways.Schoolbuildingssignalschoolandneighborhoodqualitytopotential
residents,andnewschoolsitingandschoolclosingchoicescontributetothecharacterof
acommunityandtravelmodestoschoolforchildren.Neworwell-maintainedschool
facilitiescanhelprevitalizedistressedneighborhoods.11
Theactivitiesthatoccurinand
aroundschoolbuildingscanfurtherhelpbuildneighborhoodsocialcapitalandaffect
studentachievement.12
Investmentsintheconstructionandmaintenanceofschool
facilitiesinjectmoneyintolocaleconomiesthroughjobcreationandsupplypurchases.13
Schoolsitingchoicesareanimportantelementinasustainableschoolinfrastructure
program.14
Forexample,U.S.EnvironmentalProtectionAgency(EPA)researchersfoundthatschoolsbuiltclosetostudentsreducetraffic,increasewalkingandbikingby13%,
andcouldcreatea15%emissionsreductionasaresultofdecreasedautomobiletravelto
andfromtheschoolsite.15
In2011,theEPAreleaseditsVoluntaryGuidelinesforSchool
Sitinginresponsetotheseconnectionsbetweenschoolsitechoicesandland
developmentandtravelpatternsandtoaddressthevacuuminstatepoliciesandlocal
governmentagencycollaborativelanduseandinfrastructureplanning.16
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Californias
current
economic
and policy
context
presents bot
daunting
challenges
and new
opportunitie
for K-12educational
infrastructure
II. TheStateRoleinK-12Educational
InfrastructureandSustainableCommunities
CaliforniascurrenteconomicandpolicycontextpresentsbothdauntingchallengesandnewopportunitiesforK-12educationalinfrastructure.Inthissection,we
describethelong-standingstateinvolvementinregulatingandfundingpublicK-12
schoolfacilitiesandthenpointtoitsconnectionstothenewstatepolicyframework
aimedataligningallothersectorsofstatelevelinfrastructureinvestmenttowarda
commonsetofgoals,withaparticularfocusonsustainablecommunities.
CaliforniasK-12SchoolFacilitiesInfrastructureWith9,903publicschoolsservingits6.1millionstudents,Californiahasoneofthe
nationslargestinventoriesofpublicK-12schools.17
Themajority(85%or8,439)are
commonK-12schools,includingelementaryschools,middle/juniorhighschools,andhighschools.Californiaalsohas912publiccharterschoolsabout10%ofthetotal,
andgrowinginnumber.18
The8,439traditionalpublicschoolsrepresentanestimated
471milliongrosssquarefeetofbuildingspace,including303,399classrooms.19
The
CDEestimatesthat71%(215,017)ofclassroomsinthestatearemorethan25years
old.20
About30%ofthemareatleast50yearsoldandabout10%areatleast70
yearsold.21
About25%ofclassroomsaretemporaryportablebuildings.These
portablesnumberabout75,000+andabout2millionstudentsattendclassesin
them.22
Nostateagencyreportsinformationontheamountoflandownedbyschool
districts,butweestimateittobemorethan125,000acresoflandstatewide.23
Californiaspublicschoolsareoperatedandmanagedby1,042LEAs.
24Asinmoststates,the
day-to-dayresponsibilityfordeliveringeducational
servicesinCaliforniaisgiventoLEAs,whichare
governedbyelectedschoolboards.25
Asarecent
thoroughreviewofthegovernancestructureof
Californiaeducationnoted,
Althoughthestateholdsthelegalcardsinthe
sensethatithasconstitutionalauthoritytoorganize
thesystemasitwishes,theinitialorganicgrowthof
localschoolssystems,andsuspicionofcentralauthority,meantthatasignificantdegreeof
autonomywascededtolocalagents,school
districts.26
Inaschoolfacilitycapitalinvestmentplanningor
constructionendeavor,LEAsaretheleadagency,
notthestate.ThislocalcontrolandtheLEA
CaliforniaK-12SchoolFacilityFacts,January2012
Numberofstudents 6.1million
NumberofLEAs 1,042
Numberofschools 9,903
Numberofcharterschools 912
Totalgrosssquarefeet 471million
Numberofclassrooms 303,399Percentover25yearsold 71%
Percent50ormoreyearsold 30%
Percent70ormoreyearsold 10%
Numberofportableclassrooms 75,000+
TotalK-12acreage 125,000
Seesourcecitationsintex
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autonomyenshrinedinCalifornialawisanimportantstructuralcontextinwhich
thestateK-12facilityprogramoperates;werefertothislocalcontrolthroughoutthe
report.Thus,thestateprogramassistsLEAs,whoarefullyresponsibleforprojects.
TheSchoolFacilityProgram,1998toPresentCaliforniasSchoolFacilityProgram(SFP)stemsfromalonghistoryofstatepolicyandfinancialsupportto
LEAsfortheirfacilities:in1927theCDEbegantoassist
LEAsincapitalplanning;theDivisionoftheState
Architect(DSA)waschargedwithenforcingbuilding
codestandardsaftertheLongBeachearthquakeof
1933;andin1947thestatebeganlimitedstatefacility
fundingsupportforLEAsandthelegislature
establishedtheStateAllocationBoard(SAB)tooversee
allocation.27
ThestatesfinancialsupporttoLEAsrampedupin
1976withtheLease-PurchaseProgram(LPP)and
continuestodayundertheSFP,whichwasestablished
in1998bySB50,theLeroyF.GreenSchoolFacilities
Act(seetheboxsummarizingthefourstatewide
schoolconstructionbondsthathavepassedsince1998
tofundtheSFP).Structuredasafundingpartnership
betweenLEAsandthestate,statefundsaremeantto
matchlocaldollars.(Localfundsaretypicallysome
combinationoflocalG.O.bondsanddeveloperfees.StatefundscomeintheformofstatewideG.Obonds.)
GuidedbythelegislationfromSB50,theSFPsets
eligibilityandfiscalstandardsandprovidesgrantfunds
onaproject-levelbasisforacquiringschoolsites,
constructingnewfacilities,andmodernizingexisting
facilities.Fundingisallocatedinperpupilgrantsthat
areproject-specific.Supplementalgrantsforsite
development,siteacquisition,andotherproject-
specificcostsarealsoawardedwhenwarranted.This
systemhasbeendescribedasopen-endedmatching
aidfromthestatestatefundsaremeanttomatchlocallyraiseddollarsandintheorythereisnotastrict
limitorcaponthetotalamountaprojectcan
receive.28
Thefundinglimitiscalculatedbyalocal
eligibilitydetermination.
Since1998,therehasbeen$35.4billioninstatebondfundsmadeavailabletoLEAs.
StatewideK-12SchoolConstructionBonds,
1998-2011
Total=$35.4billion
Prop1A,November1998$6.7Billion
NewConstruction $2,900,000,000
Modernization $2,100,000,000
Hardship $1,000,000,000
ClassSizeReduction $700,000,000
Prop47,November2002$11.4Billion
NewConstruction $6,250,000,000
Modernization $3,300,000,000
CriticallyOvercrowdedSchools $1,700,000,000
CharterSchools $100,000,000
JointUse $50,000,000
Prop55,March2004$10.0Billion
NewConstruction $4,960,000,000
Modernization $2,250,000,000CriticallyOvercrowdedSchools $2,440,000,000
CharterSchool $300,000,000
JointUse $50,000,000
Prop1D,November2006$7.33Billion
NewConstruction $1,900,000,000
Modernization $3,300,000,000
CareerTechnicalEducation$500,000,000
HighPerformanceSchools$100,000,000
OvercrowdingRelief $1,000,000,000
CharterSchools $500,000,000
JointUse $29,000,000
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About80%ofthesefundshavegonetowardtwoprograms:theNewConstruction
ProgramandtheModernizationProgram.29
Therestofthefundshavebeenusedfor
ninesmallerfundingprogramswithintheSFP:CareerTechnicalEducationFacilities
Program;CharterSchoolFacilities;CriticallyOvercrowdedSchoolsProgram;Facility
HardshipProgram;SeismicMitigationProgram;FinancialHardshipProgram;High
PerformanceIncentiveGrantProgram;Joint-UseProgram;andOvercrowdingRelief
GrantProgram.(Thereissomeoverlapoffundsbetweentheseprogramsandthe
NewConstructionProgramandModernizationProgram).Eachprogramhasitsown
eligibilityrequirements(seeAppendixAforprogramdescriptions).Afewother
smallerprogramsareadministeredbytheSAB,buttheseareseparatefromthemain
programs(includingtheDeferredMaintenanceProgram,theEmergencyRepair
Program,andthenow-phased-outStateRelocatableClassroomProgram).
Since1998,theNewConstructionProgramhashad$16.01billionmadeavailablefor
allocation.Theprogramprovidesstatefundsonafifty-fiftystate-localsharingbasis
foreligibleprojectsthataddcapacitytoanLEA.30
Addingcapacitycanincludetheconstructionofanewschoolortheadditionofclassroomstoanexistingschool.
Eligibilityisdeterminedatthedistrictlevel(althoughthereisanoptiontousehigh
schoolattendanceareasinsomecases)andisbasedonanLEAsprojectedneedto
housepupils,whichisdeterminedbythegapbetweenanLEAsprojectedenrollment
anditsexistingclassroomcapacity.Eligibilitytranslatesdirectlyinto
pupilgrants.Thepupilgrantisacompositedollarfigurethatprovides
thestatesshareforprojectcostsincludingdesign,construction,
testing,inspection,furnitureandequipment,andothercostsclosely
relatedtotheactualconstructionoftheschoolbuildings.Thepupil
grantamountissetinlawandadjustedannuallybytheSABbasedon
recentconstructioncosts.Supplementalgrantsaugmentpupilgrantfunding,
includingthoseforsiteacquisition,utilities,off-site,generalsitedevelopment,and
otherexcessivecosthardships.ToparticipateintheNewConstructionProgram,LEAs
mustfirstraisefundslocallytobeeligibleforthestatematch.
Since1998,theModernizationProgramhashad$10.95billionmade
availableforallocation.Theprogramprovidesstatefundsonasixty-
fortystate-localsharingbasisforeligibleimprovementsto
educationallyenhanceexistingschoolfacilities(suchasair
conditioning,plumbing,lighting,andelectricalsystems).Eligibilityfor
modernizationfundingisestablishedseparatelyforeachschoolsite(afundamentaldifferencefromtheNewConstructionProgram,
whichiscalculatedatthedistrictlevel).Eligibilitytranslatesdirectly
intopupilgrants,whichvarybystudentgradelevel.Tobeeligible,a
permanentbuildingmustbeatleast25yearsoldandarelocatable
buildingmustbeatleast20yearsold.Thefacilitymustnothavebeenpreviously
modernizedwithstatefunding.Thepupilgrantisacompositedollarfigurethat
providesthestatesshareforprojectcostsincludingdesign,construction,
Since1998,theNewConstruction
Programhashadabout$16billion
infundsauthorized,helpingtobuil
morethan1,000+schoolsand
additionsprojectsacrossthestate.
Since1998,theModernization
Programhasinvestedabout$11
billion.Consideringthereare471
millionsquarefeetofK-12facilities
acrossthestate,thisisanaveragestateinvestmentofabout$23per
grosssquarefoot,orabout$2.30
pergrosssquarefootperyear.
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educationaltechnology,testing,inspection,furniture,andequipment.Thepupil
grantamountissetinlawandadjustedannuallybytheSABbasedonrecent
constructioncosts.Supplementalgrantsaugmentpupilgrantfunding.Forexample,
excessivecosthardshipgrantsareavailableforthecostsassociatedwithaccessibility
andfirecodeupgrades.ToparticipateintheModernizationProgram,LEAsmustraise
theadditionallyneededprojectfundslocally.
WiththesetwomainfundingprogramsoftheSFP,thevastmajorityofthefundsare
allocatedonafirst-come,first-servedbasis.LEAsassesstheireligibilitytoqualify
forstatefacilityfundsandthenbringtheirprojectsforwardforfundingapproval
(assumingtheymeetthevariousmandatedbuildingdesignandsitesafetystandards
asoutlinedinCaliforniaCodeofRegulations,Title514001-14030).LEAfunding
requestsareprocessedintheordertheyarereceived.Thereisessentiallynostate
prioritizationofprojectsintermsoftheirurgencyrelativetootherprojects
submittedorotherschoolsthroughoutthestate.Someoftheadditionalfunding
programsallocationdeterminationsoperateinamoreneeds-basedmanner,includingtheCriticallyOvercrowdedSchoolsProgram,CriticalHardshipcomponent
oftheDeferredMaintenanceProgram,EmergencyRepairProgram,FacilityHardship
Program,FinancialHardshipProgram,OvercrowdingReliefGrantProgram,and
SeismicMitigationProgram(seeAppendixAforprogramdescriptions).However,
togethertheseprogramsrepresentlessthan20%oftheSFPfundssince1998.
TheSABisresponsibleforallocatingstatefundsforK-12schoolfacilitiesbyreviewing
andapprovingapplicationsforeligibilityandfunding,actingonappeals,andadopting
policiesandregulationsfortheprogramsitadministers.31
TheOfficeofPublicSchool
Construction(OPSC)intheDepartmentofGeneralServices(DGS)servesasstaffto
theSABandisresponsibleforverifyingLEAeligibilityandensuringthatfundsare
allocatedproperlyandinaccordancewiththelawanddecisionsmadebytheSAB.
TheSABiscomprisedoftenmembers:theDirectoroftheDepartmentofFinanceor
designee(appointedbythegovernor,thispositionhasservedasthetraditionalSAB
chair);theDirectoroftheDepartmentofGeneralServicesordesignee(appointedby
thegovernor);theSSPIordesignee(SSPIisanelectedposition);oneperson
appointedbythegovernortositontheSAB;threeStateSenators,appointedbythe
SenateRulesCommittee(twofromthemajoritypartyandonefromtheminority
party);andthreeStateAssemblymembers;appointedbytheSpeakerofthe
Assembly(twofromthemajoritypartyandonefromtheminorityparty).
ThreeotherstateagenciesalsohavekeyrolesintheSFP:
TheCaliforniaDepartmentofEducation,SchoolFacilitiesandTransportationServicesDivision(SFTSD) reviewsandapprovesLEAsitesandconstructionplans.The
SFTSDreviewfocusesmainlyontheeducationaladequacyoftheproposedfacility
andwhetherornotstudentandfacultyneedsandsafetywillbemet.Review
standardsaresetforthinCaliforniaCodeofRegulations,Title5.
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California has
made
significant
shifts toward
aligning
infrastructure
investmentsfor more
sustainablecommunities.
TheDepartmentofGeneralServices,DivisionoftheStateArchitect(DSA) reviewsschoolfacilityplansandspecificationstoensurethattheycomplywithCalifornias
buildingcodes,withanemphasisonstructuralandseismicsafetyinaccordancewith
theFieldAct.
TheCaliforniaDepartmentofToxicSubstancesControl(DTSC) reviewsLEAsenvironmentalhazardsassessmentofpotentialnewschoolsitesorexistingsites
plannedformajorexpansion.TheDTSCwill,ifnecessary,assistLEAswiththe
developmentandimplementationofamitigationplan.32
TheSABandthesethreestateagenciesoverseestate-mandatedfacilitystandards
andapprovalprocessesthatLEAsmustfollowtoaccessstatefunds.Additionally,the
SABestablishedtheImplementationCommitteeasaninformaladvisorybodyto
assistwithpolicyandlegislationimplementation.
Thestatesrolehasmostlyfocusedonsettingvariousfacilitiesstandardsand,when
available,providingconstructionandmodernizationfunding.Enshrinedinthe
currentSFPisahighleveloflocalcontrolbyLEAsforfacilitydecisionmakingand
investmentdecisions.LEAsareresponsibleforadheringtostateandlocalfirecodes,
otherlocalordinances,stateandfederalenvironmentalregulations,andforkeeping
facilitiescodecompliantovertime.LEAsarefiscallyindependentagencieswithtaxing
authoritytoraisecapitalfundsthroughapublicreferendumprocessoutlinedinstate
law.WhenSB50wentintoeffectin1998,LEAsweresomewhatmorerestrictedin
localbonding,havingtopassthembytwo-thirdsofvoters.In2000,thepassageof
Proposition39allowedLEAstopasslocalbondswitha55%voterapproval.Following
thischange,manymoreLEAlocalbondshavepassedthaninpreviousyears.Thenew
lawwasmeanttogiveLEAsincreasedabilitytoharnesslocalsupportforK-12
facilitiesfunding.
NewPrioritiesforStateInfrastructureInvestmentCaliforniahasmadesignificantshiftstowardaligningstate-levelinfrastructure
investmentsformoresustainablecommunities,bydevelopingplans,programs,
andpoliciestomeettheclimatechangegoalsoutlinedinAB32(CaliforniasGlobal
WarmingSolutionsActof2006)andsubsequentimplementationlegislation,
includingSB375(CaliforniasSustainableCommunitiesandClimateProtectionActof
2008).33
Theselegislativechangesplacesignificantnewconditionsontheoutcomes
ofstate-levelinfrastructureinvestmentandlocallandusedecisions.Aprimaryfocus
isonreducinggreenhousegas(GHG)emissions,particularlyfromvehiclemilestraveled(VMT).SB375isthefirstlawinthecountrytoattempttocontrolGHG
emissionsbylinkinglanduseandtransportationplanningthatcurbslow-density
automobile-centricdevelopment.
InSeptember2008,SB732establishedtheCaliforniaStrategicGrowthCouncil(SGC),
acabinetlevelcommitteetaskedwithcoordinatingtheactivitiesofmemberstate
agenciestoimproveairandwaterquality,protectnaturalresourcesandagriculture
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lands,increasetheavailabilityofaffordablehousing,promotepublichealth
Improvetransportation,encouragegreaterinfillandcompactdevelopment,revitalize
communityandurbancenters,assiststateandlocalentitiesintheplanningof
sustainablecommunities,andmeetingAB32goals.AcentralroleoftheSGCisto
recommendpoliciesandfundeffortsthatareconsistentwiththestateplanning
prioritiesinGovernmentCode65041.1(establishedwith2002sAB857),whichare
intendedtopromoteequity,strengthentheeconomy,protecttheenvironment,and
promotepublichealthandsafetyinthestate,includinginurban,suburban,andrural
communities:
a) Topromoteinfilldevelopmentandequitybyrehabilitating,maintaining,and
improvingexistinginfrastructurethatsupportsinfilldevelopmentandappropriate
reuseandredevelopmentofpreviouslydeveloped,underutilizedlandthatispresently
servedbytransit,streets,water,sewer,andotheressentialservices,particularlyin
underservedareas,andtopreservingculturalandhistoricresources;
b) Toprotectenvironmentalandagriculturalresourcesbyprotecting,preserving,and
enhancingthestatesmostvaluablenaturalresources,includingworkinglandscapessuchasfarm,range,andforestlands,naturallandssuchaswetlands,watersheds,
wildlifehabitats,andotherwildlands,recreationlandssuchasparks,trails,greenbelts,
andotheropenspace,andlandscapeswithlocallyuniquefeaturesandareas
identifiedbythestateasdeservingspecialprotection;
c) Toencourageefficientdevelopmentpatternsbyensuringthatanyinfrastructure
associatedwithdevelopment,otherthaninfilldevelopment,supportsnew
developmentthatdoesallofthefollowing:(1)useslandefficiently;(2)isbuilt
adjacenttoexistingdevelopedareastotheextentconsistentwiththepriorities
specifiedpursuanttosubdivision(b);(3)islocatedinanareaappropriatelyplanned
forgrowth;(4)isservedbyadequatetransportationandotheressentialutilitiesand
services;and(5)minimizesongoingcoststotaxpayers.
Statepolicyleaderscontinuetograpplewithhowtoimplementtheplanning
priorities;thegeneralapproachappearstoofferincentivesforadheringtothem.
IncentivesmayincludeincreasedstatefundingforCaliforniaEnvironmentalQuality
Act(CEQA)processstreamliningforparticularprojects,whichnowincludesschools
undertherecentlypassedSB226(Simitian,D-PaloAlto).Still,theplanningpriorities
establishaframeworkforoutcomegoalsassociatedwithinfrastructureinvestment.
Atpresent,SB375isoneofthewidestreachingimplementationvehicles.
TwomajoremphasesinSB375implementationhavebeenincentivizingplanning
collaborationamonglocalgovernmentsinthesameregionandreinvestmentandredevelopmentinexistingurbanandsuburbanareasthroughinfilldevelopmentand
infrastructureimprovement.Currently,Californias18MetropolitanPlanning
Organizations(MPO)aredevelopingSustainableCommunitiesStrategies(SCSs)as
partoftheirRegionalTransportationPlans(RTP).TheSCSswillcontain25-year
forecaststomeettheGHGtargetsestablishedbytheAirResourcesBoard(ARB)
throughlanduseandtransportationplans.34
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EvidenceofConvergingInterests:RecentStepsToward
AligningEducationalandCommunityInfrastructure
InvestmentsK-12facilitiesarebyfaroneofthestateslargestinfrastructureinvestments,making
up35%ofallthestateG.O.bondsbetween1972and2006(therehasnotbeena
statewideK-12infrastructurebondsince2006).35
Thislevelofspendingis
understandableconsideringthataboutone-sixthofCaliforniaspopulationspends
theirdayinpublicschoolbuildings.Additionally,Californiaschooldistrictsarecalled
ontomakethisextensiveinfrastructureavailabletoothersforcommunityuseandas
emergencyshelters.36
FlowingfromthesignificantextentofthestatesfundingovertimeforK-12facilities,
weoutlinebelowthegrowinginterestamongstatepolicyleaderstobetterconnect
state-levelsustainablecommunitiesgoalsandstate-levelK-12facilitiesinvestments.Numerouspolicyactivitiesfromdifferentstatepolicyvenuesillustratetheinterest
forpolicy,regulatory,andfundingintegration.
CaliforniaDepartmentofEducationandtheStateSuperintendentofPublic
Instruction
In2011,StateSuperintendentTomTorlaksonconvenedthe SchoolsoftheFutureTaskForceonschoolfacilitypolicyandfundingreforms.TheTaskforcedeveloped
recommendationonmultipletopics,including:funding,governance,schoolsiting,
modernization,andincorporationofenergyefficiencyandgreentechnologies.37
In2011,SuperintendentTorlaksonalsoreleased ABlueprintforGreatSchools,whichdocumentedrecommendationsfroma59-memberTransitionAdvisoryTeam
taskedtoprovideinnovativeandstrategicadviceforthedevelopmentofanew
missionandplanningframeworkfortheCDE.Schoolfacility/constructionreformwas
oneofeightkeyissuesexplored.Therecommendationsincludedbettercoordination
ofstateSFPagencies;aninventoryofschoolfacilities;moreenergyefficient
facilities;improvedprocurementprocesses;andmorejointuseagreements.38
In2008,CDEconvenedstatewideeducationalstakeholdersforatwo-daypolicysummit,Re-VisioningSchoolFacilityPlanningandDesignforthe21stCentury:
CreatingOptimalLearningEnvironments ,tocraftrecommendationsformore
optimalschoolfacilitiesthatsupportstudentachievement.Thesummits
recommendationsincluded:establishastatevisionandguidingprinciplesontherole
ofschoolfacilitiesinsupportingstudentachievementandclosingtheachievementgap;incorporatethenewvisionandprinciplesintotheCaliforniaCodeof
Regulations,Title5;increasecollaborationamongstateagenciestoaidLEAsinthe
designof21stcenturylearningenvironments;increasestatefocusonstandardsand
policygoverningthemodernizationofexistingschoolstoprovide21stcentury
learningenvironmentsforthegreatestnumberofstudents;andreviewand
restructurethelinkagebetweenschoolfacilityfinanceanddesign.Followingthe
summit,theCDEdevelopedavisionandguidingprinciplesforCaliforniaspublic
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schoolfacilities(seetextbox).39
In2008,then-StateSuperintendentofPublicInstructionJackOConnellreleasedClosingtheAchievementGap:ReportoftheP-16Council .Thereporthighlightsthe
workcompletedbytheCaliforniaP-16(pre-kindergartenthroughhighereducation)
Councilconvenedtodevelop,implement,andsustainaspecific,ambitiousplanthat
holdstheStateofCaliforniaaccountableforcreatingtheconditionsnecessaryfor
closingtheachievementgap.40
CDEs2006reportHealthyChildrenReadyToLearn:FacilitiesBestPractices drawsfromagrowingbodyofevidenceshowingthatgoodhealthsupportsimproved
studentperformance.Thereportmadeseveralschoolenvironmentandfacilities
recommendations,includingmakingsureschoolshavethekitchenfacilitiesto
providehealthyfood,makingsurethereareampleandadequateindoorand
outdoorphysicalactivityspacesonschoolcampuses,andmakingschoolsavailable
forcommunityuse(jointuse)andphysicalactivitybeforeandafterschoolandon
theweekends.41
CDEsVisionandGuidingPrinciplesforCaliforniaPublicSchoolFacilities
VisionTheCaliforniaDepartmentofEducationenvisionsschoolfacilitiesthatenhancetheachievementofallstudentsand
arelearner-centered,safe,sustainable,andcentersofthecommunity.
GuidingPrinciplesforImplementingtheVision
Thesitinganddesignofeducationalfacilitieswill:
1) ReflecttheLocalEducationalAgencysboard-adoptedfacilitiesmasterplanandeducationalspecifications.
2) Resultfromanopen,community-based,andcomprehensiveplanningprocessincludingallstakeholdersand
earlydialoguewithallinvolvedplanningagencies.3) Accommodateacompletefacilitysupportingthedeliveryoftheadoptededucationalprogram,beaccessible
toall,andadaptabletofuturedemographic,educational,andcommunityneeds.
4) Supportstudents,parents,teachers,andstaffinclosingachievementgaps,andpreparingstudentsforthe
workforce,post-secondaryeducation,andlifelonglearning.
5) Considerthefullspectrumofcommunityfacilitiesandsupportopportunitiesforjoint-useandeducational
partnerships.
6) Ensuresafetyfromexistingandpotentialhazardsandincompatiblelanduses.
7) Provideasecureenvironmentwithafocusonsupervision.
8) Createcomfortable,attractive,andstimulatingenvironmentsthatsupportcollaborationanddiverselearning
stylesandopportunities.
9) Promotesustainablepracticesthatconservenaturalresources,limitgreenhousegasemissions,optimize
constructionandlifecyclecosts,andencouragewalkingandbicycling.
10) Incorporatesuperioracoustics,indoor-airquality,andnaturallighting.
11) Respondtocurrentandfutureinformation,communication,andtechnologyneeds.
12) Supportstudenthealth,nutrition,andphysicalfitness.
Source:http://www.cde.ca.gov/ls/fa/re
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StrategicGrowthCouncilandtheCaliforniaDepartmentofPublicHealth InDecember2010,theStrategicGrowthCouncils HealthinAllPoliciesTaskForce
releaseditsreport,whichdefinedhealthasacorecomponentofsustainable
communitiesanddetailedrecommendationsforstateagenciestopromotehealth.
LedbytheCaliforniaDepartmentofPublicHealth,thetaskforceincluded19state
agencies,offices,anddepartments,includingtheDepartmentofEducation.Thereportnotesthat,[t]hehealthofCaliforniaspopulationislargelydeterminedby
thesocial,physical,economic,andserviceenvironmentsinwhichpeoplelive,work,
study,andplay.Theseenvironmentsshapethechoicesthatpeoplemakeeveryday,
aswellastheiropportunitiesandresourcesforhealth.Peopleindisadvantaged
communitiesoftenhavefewerresourcesforhealth,whichisreflectedinsignificantly
worsehealthoutcomes.Thereportofferednumerousrecommendations,including
expandingjointuseopportunitiesforphysicalactivityandensuringactivewalking
andbicyclingtoschooloptionsforchildrenandfamilies.42
CaliforniaStateLegislature
Inthe2011legislativesession,threebillsinparticularaboutK-12schoolfacilitiesareworthnoting.Althoughthesebillsdidnotadvanceoutofcommittees,theyillustrate
areasoflegislativeinterest.AB220(Sen.Brownley,D-SantaMonica)proposeda
statewidenewconstructionandmodernizationbondfortheNovember2012ballot.
SB788(Lowenthal,D-LongBeach),holdsaplaceforpotentialfuturelanguageaimed
atanadministrativerestructureoftheSchoolFacilitiesProgram.Thethird,SB132
(Lowenthal,D-LongBeach)proposedthattheSABandtheCDEcoordinatetomake
suretheirpoliciesandproceduresforapprovingLEAfacilityprojectssupportthe
goalsoutlinedinthestateplanninggoals.
In2009,theSenateSelectCommitteeonStateSchoolFacilities heldtwoinformationalhearings:K-12SchoolFacilityConstruction:DevelopingaVisionfor
CaliforniasInfrastructureInvestment(July14)andSchoolsasCentersofSustainableCommunities:AVisionforFutureSchoolFacilityConstruction
(December15).PresentationsweremadebyLEAsuperintendentsandfacility
directors,architects,researchers,theU.S.EnvironmentalProtectionAgency,anda
directorfromametropolitanplanningorganization(MPO).Acentralissuesdiscussed
wastheneedtoalignschoolfacilitiesplanningandinvestmentwithbothschooland
communityimprovement.In2010,theselectcommitteewaschangedtothe Senate
EducationalSubcommitteeonSustainableSchoolFacilities ,whichheldajoint
hearingwiththeAssemblyEducationCommitteeinNovember2011.43
TheseactivitiesareevidenceofmomentumforlinkingK-12educationand
sustainablecommunitiesinCalifornia.Thereappeartobemanycomplementary
synergiesbetweensustainablecommunitiespriorities,theneedsofschoolfacilities
acrossthestate,andtheeducationalimprovementeffortsoftheCDEandLEAs.For
example,manyolderschoolsinexistingcommunitiesareindireneedofrepair,
renovation,andtechnologyupgrades.Manyoftheseschoolsareintheveryplaces
SB375andtheregionalSCSsaretargetingfordevelopmentandpopulationgrowth.
Theyarealsooftentheschoolsthatmanylow-incomeand/orminoritystudents
attend,andthesekindsoffacilityupgradeswouldreinforceeffortstoclosethe
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There appeato be many
synergies
between
sustainable
communities
priorities and
the needs of
school
facilities
across thestate.
achievementgap.Sustainablecommunitieseffortsgenerallyaimforincreasedland
developmentdensity,whichmeanscommunityreinvestmentandinfillgrowthin
existingneighborhoodswillbeapriority.CurrentK-12enrollmentprojectionsalso
pointtosynergiesbetweenschoolfacilityneedsandsustainablecommunities.Itis
likelythattherewillbefewernewschoolsneededinoutersuburbanareasofthe
majormetropolitanregionscomparedtothepreviousdecade.Therewillalsolikely
begrowthintheCentralValley,creatingopportunitiesfornewdevelopment.
Additionally,manyoftheeducationalinnovationsbeingimplementedinschools
acrossCaliforniarequirefacilitieschangestosupportthem.Theseincludeincreased
project-basedlearningactivities,widerimplementationofCareerTechnical
Education(CTE)andothermultiplepathways,increasedcommunityinvolvementin
schools,creatingmoreintimatelearningexperiences,(includingsmallschoolsand
smalllearningcommunities),expandingthenumberofthemedschools,moreoff-
campusstudentapprenticeships,andmorepubliccharterschools(manyofwhom
operateinspacesnotoriginallydesignedasschools).44
Alloftheseinnovationssupportthegeneralfeelingamongmanyeducatorsthatconcentratingstudentsinto
largerschoolplantsandusingafactorymodeldoesnotengagestudentswell
today.45
Manyoftheeducationaleffortsnotedaboverequirerethinkingthe
traditionalnotionofaclassroomandrealizingthatlearningexperiencescan
happenanywhere.Therefore,theconceptofaclassroomshouldbeexpandedto
includeinternetresourcesandotheremergingtechnologiessuchasvirtual
classroomsandgreaterconnectivitywiththecommunityoutsidetheschoolwalls.
Thesecanbeusefulinprovidingopportunitiesforstudentstolearnaboutcivicroles
andpotentialcareerpaths.Also,puttingschoolsinnontraditionalbuildings,sharing
facilitiesthroughjointuse,andexpandingstudentaccesstothecommunityfor
learningactivitiescouldrequireschooldesignsthathelpadvanceurban
revitalization,infilldevelopment,andothersustainablecommunitiesgoals.
State-levelinvestmentinK-12schoolfacilitiesshouldpromotethesynergiesbetween
educationalneedsandsustainablecommunities.AsCaliforniainvestigateshowto
alignallofitsinfrastructurespending,K-12fundsshouldbeapartofthatstrategic
discussionapointalsomadebythe2010LittleHooverCommissionreportBuilding
California:InfrastructureChoicesandStrategy.Thereportalsostates:
Providingqualityinfrastructureinchallengingtimesandcapitalizingonpotentialopportunities
requiresstrategicthinking,integratedplanning,andlong-termgoalsettingthatcapitalizeson
Californiasexistingassetsandstrengths,bothpublicandprivate.Todate,thiskindof
coordinatedplanningandpriority-settingisnotbeingdoneonastatewide,cross-sectorlevel
withfullinputfromallstakeholdersandwithopennesstoinnovationinhowinfrastructureis
funded,financed,delivered,andmanaged,thoughmanyofthepiecesexist.46
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III. Findings:BarrierstoK-12Infrastructure
Alignment
Inourresearch,wedevelopedaframeworkforassessingthestrategyandeffectivenessofstateK-12schoolinfrastructureprograms.Theframeworkhasfour
elementsplanningmanagement,funding,andaccountabilityandwascreated
fromanintensivescanofschoolfacilitiesliteratureandstakeholderinterviews.
Althoughveryfewacademicresourcesexistbestpracticesinstate-levelK-12
infrastructurebestpractices,wefoundthreepiecesfromprominentpolicysources
thatprovideddirectionforthinkingaboutCaliforniasSFP(seeAppendixBfor
detaileddescriptions).47
WeutilizetheframeworktoassessCaliforniasK-12
infrastructureinvestmentandidentifybarriersandchallengestotheprovisionof
high-qualityschoolfacilitiesandaligningofinfrastructureinvestment.
PlanningChallenges
CaliforniasK-12infrastructuredemandsdifferfromthoseofadecadeagoTheSFPwasestablishedatatimewhenenrollments(hadbeenand)wererising,and
LEAsacrossthestateneededtobuildnewschoolstokeepup.CaliforniaspublicK-12
enrollmentincreasedbynearly20%between1995andthelate2000s.Notonlywere
manynewschoolsneededforgrowingsuburbs,butnewschoolswerealsoneededin
manyurbanandoldersuburbanareasthatsawsevereschoolovercrowding.
AccordingtodataprovidedbyCDE,since2003about622newschoolshavebeen
approvedthroughoutthestate;thisisanaverageofslightlylessthan100schoolsper
year.Thus,theSFPanditsfundingprioritieswerearguablyrightlydesignedto
supportthepopulationandhousingboomthestatewasexperiencingin1998when
theprogramwasestablished.Thestrongeconomyandrapidgrowthweredrivingthe
demandandprovidingrevenuesforschoolconstruction.
Butin2012,thestatefindsitselfinasignificantlydifferentsituationrelativeto
populationgrowth,economicstrength,andenrollmenttrendsthanitdidin1998.
Overallpopulationgrowthwillcontinue,butitwilllikelyslowsomewhatfromrecent
years.Liketherestofthecountry,Californiaisexperiencingarecessionwitha
substantialhousingmarketslowdown.Notonlyisthereanoverallhousingmarket
slowdown,butanewstatewidestudyofCaliforniashousingmarkettrendsfromthe
UrbanLandInstitute(ULI)findsthatthemarketdemandforhousingisexpectedtobemuchdifferentthanitwasoverthepastdecadesandtheexistingsupplyof
conventional-lotsingle-familydetachedhomesexceedstheprojecteddemandfor
thesehomesin2035.Thereportfindsthattheselong-termmarkettrendsrepresent
adirectionalalignmentbetweentherealestatepreferencesexpressedbyconsumers
andthegreenhousegasreductionobjectivesexpressedbythestateofCaliforniain
theformofSB375.48
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TheseshiftsinpopulationgrowthandhousingdemandwillhaveimplicationsforK-12
infrastructure.Intandemwiththeeconomicdownturnandslowerpopulation
growth,statewideK-12enrollmentprojectionshaveleveledoffrelativetothoseover
thelastdecade.TheDepartmentofFinanceprojectsastatewidenetenrollment
increaseofonly1.8%between2011-2012and2020-2021(105,000students).49
While
343,000newstudentsareprojected,someLEAsareexpectedtodropinenrollment.
ThefindingsfromtheULIstudynotedabovesuggestthatdemandfornewschoolsin
theoutersuburbswilllikelydropofffromlevelsofthepastdecade.
CurrentK-12facilityneedsfallintoavarietyofcategories,including:deferred
maintenance,seismicimprovements,capitalrenewals,modernization,andnew
construction.Unfortunately,thestatedoesnothaveaninventoryofK-12facilitiesor
asolidassessmentofstatewideK-12capitalinvestmentneeds.Butanumberof
differentsourceshelppaintthepicture.TheCDEsmostrecentestimate(August
2009)ofthestateshareofstatewidenewconstructionandmodernizationis$11.3
billion.50
ButthisislikelyasubstantialunderestimatebecauseitisbasedonlyonSFPeligibilitydocumentsonfilewiththeOPSCasofAugust2009andprojectsforwhich
onlyadesignapportionmenthadbeenmadeatthetime.
CalifornialacksclearlydefinedK-12infrastructureinvestmentprioritiesThelackofvisionguidingallsectorsofstateinfrastructureinvestmentisCalifornias
biggestinfrastructurechallenge,andK-12educationinfrastructureisnotimmune.51
Havingstrategic,programmatic,andcapitalinvestmentprioritieswillenhance
infrastructureoutcomesandperformance.
EstablishingthestatesroleinfundingK-12schoolfacilitiesin1947,thestate
legislaturesettheframeworkforitsK-12facilitypolicytrajectory.EducationCode15700(whichcreatedthe1947program)states(emphasisadded):
TheLegislatureherebydeclaresthatitisintheinterestofthestateandofthepeople
thereofforthestatetoaidschooldistrictsofthestateinprovidingnecessaryand
adequateschoolsitesandbuildingsforthepupilsofthepublicschoolsystem,the
systembeingamatterofgeneralconcerninasmuchastheeducationofthechildrenof
thestateisanobligationandfunctionofthestate.
Inadoptingthisact,theLegislatureconsidersthatthegreatneedinschool
constructionisforadequateclassroomsfortheeducationofthepupilsofthepublic
schoolsystem.ItistheintentoftheLegislaturetofirstsatisfythisprimaryneedto
thegreatestextentpossiblebeforeprovidingadditionaleducationalfacilities,
regardlessofhowdesirablesuchadditionalfacilitiesmaybe.Totheendthatschool
classroomsmaybemadeavailableatonceandtoallschooldistrictsinneedofsuch
classrooms,provisionsforotherneededschoolfacilitiesisnecessarilysubordinated.
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EducationCode15704furtherstates(emphasisadded):
Theboardbytheadoptionofrulesshallgivepriorityinallocatingfundstodistrictsto
thosedistrictswherethechildrenwillbenefitmostfromadditionalschoolhouse
facilities.Thispriorityshallbebasedonacutenessofovercrowding,onsudden
growthinattendance,onamountoflocaltaxfundsexpendedforhousingofacharacterwithinthepurposesofthischapter,andonthetimethedistricts
applicationhasbeenreadyforallotment.Theboardmaymakeexceptionswhenit
determinesthatitwillbeforthebenefitofthechildrenaffected.
Withtheselaws,thelegislatureestablishedastate-levelcommitmenttosupport
schoolfacilitiesprovisionandlistedsomeprioritiesfordoingso;howevertheorder
ofprioritizationislessthanclear.Forexample,EducationCode15700appearsto
placetheupkeepofexistingschoolsaheadofnewconstruction,whileEducation
Code15704specifiesprioritiessuchasovercrowdingandaddressinggrowthbut
doesnotmentionexistingschoolsspecifically.Manyofthoseinterviewedforthis
studyfeltthat1998sSB50establishedandcodifiedsomelegislativeintents,suchasthegoalsofefficiencyintheprogramandmaintaininglocalcontrol.Butthebilland
theSFPcurrentlylackclarityonthestatesfundingprioritiesparticularlywithinthe
twomainprograms,NewConstructionandModernization.Forthemostpart,these
programsawardfundsonafirst-come,first-servedbasisandplacenoother
prioritizationontheuseofstatedollars.
CaliforniassustainablecommunitiespoliciesexcludeK-12infrastructureArecentreportpublishedbytheNationalResourcesDefenseCouncilandthe
CaliforniaLeagueofConservationVotersnoted,[w]hereweliveandhowwegetto
work,goaboutourdailybusiness,andtakeourkidstoschoolmattersagreatdealin
thefightagainstclimatechange.52Whileschoolandcommunityinfrastructure
clearlyimpactoneanother,schools,LEAs,andtheSFPhavebeenvirtuallyleftoutof
Californiasstatepolicyframeworkonsustainablecommunitiesplanning.For
instance,atthestateplanninglevel,thereisnoK-12infrastructureinvestment
representationontheStrategicGrowthCouncil,thebodycreatedtocoordinate
statewideinfrastructureinvestmentaroundacommonsetofgoals.ConsideringK-12
schoolfacilitiesfundinghasconsistentlybeenabouttwo-thirdsoftotalstatewide
G.O.bondssincetheearly1970s,thisisaglaringstateleveldisconnect.
Whilesubstantialeffortsareunderwaytobetteralignthestatesdisjointed
infrastructureinvestmentacrossallsectors,K-12schoolfacilitiesremainoutsidetheseefforts.Tworecentmajorstatereportsoninfrastructureinvestment(2008s
StatewideInfrastructurePlanand2010sLittleHooverReport)bothnotestate-level
K-12spendinganditsconnectiontosupportingotherstategoals,butneitherreport
focusesmuchatallonK-12infrastructureinitsrecommendations.Howeverasnoted
earlier,thereareabout1,000LEAsthroughwhichK-12facilitydollarsarefunneled
andaligningtheseinvestmentswilllikelytakestatelegislativeandregulatoryaction.
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StatepoliciesisolateLEAsfromsustainablecommunitiesplanningatthe
local/regionallevel.TheSFPisexemptfrommeetingthestateplanningpriorities
establishedthroughthepassageofAB857andLEAsgenerallydonotparticipatein
theregionallanduseandtransportationplanningcoordination(e.g.,Sustainable
CommunitiesStrategies)mandatedbySB375.53
Someofourintervieweesnotedthat
toooftentheyseeexamplesofschoolfacilitiesplansandcommunity/regionalplans
thatworkatcross-purposes.Forexample,newschoolsiteschoseninareasthatdo
notalsoincludeplanningforadjacentdevelopmentandtheissueofschoolclosures
inneighborhoodsplannedforinfillhousingdevelopmentbothaffectland
developmentandhouseholdtravelpatterns,twoofSB375skeyelements.
TheSchoolFacilityProgramhaslittleauthorityoversustainablecommunities
outcomesTheSFPanditsparticipatingstateagencieshavelittlepolicyorregulatoryauthority
oversustainablecommunitiesoutcomesofK-12schoolfacilitiesplanningdecisions.
Thestandards,especiallythoseinTitle5,aredesignedforeducationastheyshouldbe.However,theyshouldbecraftedtobothsupporteducationandcomplement
broadersustainabilitygoals.Or,atleast,notundermineorconflictwiththem.
Onthesurface,numerouselementsofCaliforniascodesandtheregulationswithin
theSFPappearconsistentwithcommonsustainablecommunitiesoutcomes.For
example,fornewschoolsites,Title5statesthatLEAs:1)arerequiredtopreparean
environmentalimpactreportornegativedeclarationincompliancewithCEQA;2)
shallshowhowthesiteisappropriateinsizeasjustifiedbytheLEAsfacilitymaster
plan;3)shallchoosesitestopromotejointuseofparksandotherpublicservices;and
4)shallsiteschoolswithinproposedattendanceareatoencouragestudentwalking
andavoidexcessbusing.LEAsarealsorequiredtocertifycompliancewithCDE
verificationbycheckingoffprojectattributesonapprovalforms(suchasCDEs
SchoolSiteReport4.02)alongwiththeotherstudenthealthandsafetyrequirements
foundinTitle5andtheEducationCode.54
Title5ssiteapprovalprocessismostheavilyfocusedontheimportanthealthand
safetycriteriaandnotthoserelatingmoredirectlytosustainablecommunities
outcomes(suchaswalkability,jointuse,andminimizingexcessbussing).Rightly,a
projectcannotgetapprovaluntilitmeetsthehealthandsafetystandards.But
projectsregularlygetapprovalwithoutshowingtheymeetthesustainable
communitiesrelatedcriteria.Themainreasonforthisappearstobethatthestatecodelanguageiswordedsoftlyontheselatteritems,andsotheenforcementis
equallysoft.Ontheotherhand,thehealthandsafetycriteriatendtohavemore
specificstandards(and/orperformance-basedmeasures)againstwhichamore
objectiveassessmentcanbemade.Assuch,Title5hasastrongsystemforevaluating
newschoolsitechoicestomeethealthandsafetystandardsbutnotforevaluating
thesustainablecommunitiesoutcomesassociatedwithaparticularsitechoice.Thus,
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thecodeandregulationsdonotnecessarilyconflictwithsustainablecommunities
goals,buttheyfallfarshortoffullycomplementingthem.
Twofrequentlycitedconcernsbyintervieweesworkingonsustainablecommunities
issueswereperceptionsthattheSFPandLEAcapitalplanningprocess:1)doesnot
prioritizethemodernization/expansionofexistingschoolsinolderneighborhoods
(especiallywhenlocal/regionalgovernmentshaveidentifiedthoseareasforinfillor
relateddevelopment),and2)promotesnewschoolsitesonsuburbanfringe
locationsthatareeithernotsitedadjacenttoexistingorplanneddevelopment
and/orareonlyaccessiblebyautomobile.Regardingtheformer,theconcernisthat
inordertoenticeandsupportdevelopmentinolderneighborhoods,high-quality
schoolswithcapacitymustbelocatedthere.Onthelatter,theconcernisthat
remotenewschoolsitesleadtoincreasedtraveltoschoolbycarorbusratherthan
bywalkingorbicycling,workingagainstthemandatedregionalGHGemission
reductiontargets.Forexample,theunadopted2003GovernorsEnvironmentalGoals
andPolicyReportstates,Thelocationofnewschoolshasanimportantinfluenceonlanduse,butsitingdecisionsarenotalwaysmadeincooperationwithlocalland
useplanningagencies.Thisisoneofthemostvolatileandtroublesomeproblemsin
Californialanduseplanning.55
LEAsoftennotethattherearefew,ifany,alternative
sitesavailablethatmeetstatestandardsorareaffordable.Theyalsoclaimthatlocal
governmentsanddevelopersseldomsetasidelandforschoolsitesinmoreamenable
locations.Urbansitesinparticularmayhaveenvironmentalissuesassociatedwith
toxins,powerlines,andtraffic,thatLEAseitheravoidbecauseofcostissuesand
safetyconcernsorbecausetheydonotmeettheTitle5standards.Also,schoolsare
sometimesseenascompetingwithcommerciallandusesandtheirpropertytax
potentialsinurbancores.Toensurethepropertytaxcapture,LEAsandmunicipalities
havebeenknowntojoinforcestodevelopnewsitesinthesuburbsinstead.
Akeyreasonbehindthelackofstrongsustainablecommunitiesenforcement
linkagescitedbyintervieweesisthatthestatecodesprovidestateagencieswithlittle
discretionarypowerforprojects.SB50,infact,madeK-12infrastructurefunding
nondiscretionary.Atensionremainsbetweenthebenefitsofmovingtowarda
nondiscretionarysystemandallowingstateagenciestoassesstheperformanceof
projectoutcomesmoresubjectively,yetwithintheparametersofthelaw.
CEQAanditsrequirementsforLEAshasbeentheprimaryvehiclelinkingschool
infrastructureinvestmentswithlanduseandbroaderenvironmentalimpacts.AssetforthinthePublicResourcesCode,LEAsmustgothroughtheCEQAprocesswhen
buildingnewschoolsonnewsites.Modernizationofexistingschoolsisgenerally
exemptfromCEQA,butwhenaprojectisnotexempt,theLEAmustdoaself-
assessmenttodeterminetheextentofpotentialenvironmentalimpacts.Fromthere,
anegativedeclaration,amitigatednegativedeclaration,oranenvironmental
impactreportisproduced,dependingontheissuesidentified.ChangestoCEQAin
thecontextofsupportingSB375arecurrentlybeingdevelopedbytheGovernors
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OfficeofPlanningandResearch(OPR).ThepassageofSB226in2011directedthe
statetodevelopoptionsforthestreamliningofCEQArequirements,includingthose
forschooldistricts.56
Policyandregulatoryguidanceforlocalintergovernmentalplanningis
insufficient
Typically,theinfrastructureplanningworkofLEAsandotherlocal/regional
governmentsrarelyintersects,eventhoughschoolqualityandcommunityqualityare
closelyconnected.Theseentitiestendtocollaborateinfrequentl