Existing Facilities Strategic Execution Plan 2007 · Existing Facilities Strategic Execution Plan - May 2007 3. Los Angeles Unified School District Facilities Services Division –

MAY 2007

Existing Facilities Strategic Execution Plan - May 2007 2

Los Angeles Unified School District Facilities Services Division – Existing Facilities

Board of Education

Marlene Canter

Board President District 4

David Brewer III

District Superintendent

Joseph Mehula

Chief Facilities Executive

Bruce Kendall

Deputy Chief Executive

Marguerite Poindexter LaMotte

Board Member

District 1

Jon Lauritzen

Board Member District 3

Julie Korenstein

Board Member

District 6

Monica Garcia

Board Member

District 2

David Tokofsky

Board Member District 5

Mike Lansing

Board Member

District 7


Los Angeles Unified School District Facilities Services Division – Existing Facilities

School Construction Bond Citizens’ Oversight Committee

Constance Rice

Chairperson

Scott Folsom

Vice Chairperson

David Crippens

Secretary

Virginia Tanzmann

Member

Betty Valles

Member

Elizabeth Bar-El

Member

Christopher Espinosa

Member

Lynda Levitan

Member

Anastacio Medina

Member

Charles Bergson

Member

David Jenkins

Member

Tyler McCauley

Member

Richard Slawson

Member


INTRODUCTION ..................................................................................................3

Board of Education............................................................................................3 School Construction Bond Citizens’ Oversight Committee................................4 Letter to the Superintendent, et al .....................................................................5 Board of Education District Map........................................................................6 Local District Map..............................................................................................7 Table of Contents .........................................................................................8-15

EXECUTIVE SUMMARY ....................................................................................17

Facilities Services Division Organizational Chart ............................................18 Executive Summary ........................................................................................19 The Enormity of Our Challenge .......................................................................19 Historical Perspective......................................................................................19 Infrastructure Age and Changing Educational Needs......................................21 Existing Facilities Shortfalls .............................................................................23 The Future – “Renewing Our Schools”............................................................24 What We Have Already Accomplished............................................................28 Existing Facilities Repair and Modernization Program Highlights....................29 Factory Floor (schematic)................................................................................29 Evolution of District’s Capital Improvements Efforts ........................................31 Mission ............................................................................................................32 Vision ..............................................................................................................32 Guiding Principles ...........................................................................................32 Organization....................................................................................................33 Board of Education..........................................................................................33 School Construction Bond Citizens’ Oversight Committee..............................33 Superintendent of Schools ..............................................................................33 Facilities Services Division ..............................................................................33 Staffing ............................................................................................................34 Program Funding/Costs ..................................................................................35 Proposition BB.................................................................................................35 Measure K.......................................................................................................35 Measure R.......................................................................................................36 Measure Y.......................................................................................................36 State Match Efforts (SME)...............................................................................36 Other Funding Sources ...................................................................................36 Sources of Funds ............................................................................................38 Uses of Funds .................................................................................................39 Uses of Funds – Definitions ............................................................................40 Managing Costs ..............................................................................................42 Contingency Funds .........................................................................................43

TABLE OF CONTENTS


Board of Education Approved Amendments to the Strategic Execution Plan..44 Factory Floor (detail) .......................................................................................47

MAINTENANCE & OPERATIONS .....................................................................49

Organizational Chart .......................................................................................50 Today’s Challenges.........................................................................................51 Facility Condition Index (FCI) ..........................................................................53 Service Calls ...................................................................................................57 Major Maintenance and Repair .......................................................................58 “Other Than Maintenance” ..............................................................................58 Graffiti and Vandalism .....................................................................................58 Mission ............................................................................................................59 Vision ..............................................................................................................59 Guiding Principles ...........................................................................................59 Organization....................................................................................................60 Staffing ............................................................................................................61 Program Management and Major Funding Resources....................................62 Maintenance....................................................................................................63 Project Work Requirements Unit .....................................................................64 Technical Services Unit ...................................................................................64 New Construction Coordination Center ...........................................................65 Maintenance Planning and Control Unit ..........................................................66 Central Maintenance Shops ............................................................................67 Asbestos Technical Unit ..................................................................................68 Projects Unit ....................................................................................................68 Project Execution Group .................................................................................69 Energy Management Unit................................................................................69 Central Facilities Management ........................................................................70 Operations.......................................................................................................71 Administrative..................................................................................................71 Local District Custodial Services .....................................................................72 Building Engineers and Air Filter Technicians .................................................72 Gardening and Landscaping Services.............................................................72 Tree Trimming.................................................................................................72 Pest Management ...........................................................................................72 Musical Instrument Repair...............................................................................73 Custodial Services...........................................................................................73 Custodial Training ...........................................................................................74 Restrooms and Facilities .................................................................................74 Annual Deep-Cleaning of Year-Round Schools ..............................................74 Green Cleaning ...............................................................................................75 Integrated Pest Management Program (IPM)..................................................75


PROJECT DEVELOPMENT...............................................................................77 Organizational Chart .......................................................................................78 Overview .........................................................................................................79 Mission ............................................................................................................80 Vision ..............................................................................................................80 Guiding Principles ...........................................................................................80 Organization....................................................................................................80 Staffing ............................................................................................................80 Program Management and Major Funding Resources....................................81 Primary Processing Unit ..................................................................................81 Program Management.....................................................................................81 Adult and Career Education Programs............................................................81 Air-Conditioning BB Bond Program-Group 3...................................................81 Auditorium and Gym Air-Conditioning Year-Round .........................................82 Closing the Achievement Gap [Proficiency + For All] ......................................82 Core Facilities..................................................................................................82 Early Childhood Education Programs..............................................................83 Federal Emergency Management Agency (FEMA) .........................................83 Fire Alarms......................................................................................................84 Furniture..........................................................................................................85 Mark Taper Foundation ...................................................................................85 Qualified Zone Academy Bond (QZAB)...........................................................85 Science Labs 2012..........................................................................................86 Seismic Retrofit and Structural Upgrades .......................................................87 Small Learning Community (SLC) Programs ..................................................87 Special Education-Americans with Disabilities Act (ADA) ...............................88 Access Compliance-Modified Consent Decree (MCD)....................................88 Wonder of Reading Library Renovations.........................................................88 Production Controls.........................................................................................89 Funding Strategies ..........................................................................................89 School Facility Program – Modernization Grant ..............................................90 State Proposition 1D .......................................................................................91 Emergency Repair Program............................................................................92 Master Planning ..............................................................................................92 Benefits of Repair and Modernization Master Planning For an Entire School Campus .........................................................................93 Improve Facility Conditions .............................................................................93 Repair or Replace Portables ...........................................................................93 Principles to Guide Portable Repair or Replacement Approach......................94

DESIGN & ARCHITECTURAL/ENGINEERING (A/E) TECHNICAL SUPPORT.....................................................................................95

Organizational Chart .......................................................................................96 Overview .........................................................................................................97


Mission ............................................................................................................98 Vision ..............................................................................................................98 Guiding Principles ...........................................................................................98 Design Principles.............................................................................................98 Sustainable Design .........................................................................................99 Shared Use of Facilities ..................................................................................99 Diverse Needs...............................................................................................100 Environment ..................................................................................................100 Organization..................................................................................................101 Design Standards and Technical Specifications............................................101 Design Standards..........................................................................................101 Technical Specifications................................................................................102 Asset Planning and Tracking.........................................................................103 Relocatable Housing .....................................................................................103 Facilities Records Management ....................................................................103 Financial Support ..........................................................................................103 Central Design Management.........................................................................103 A/E Technical Support...................................................................................104 A/E Technical ................................................................................................104 Structural Engineering...................................................................................104 Civil Engineering ...........................................................................................104 Administrative Support Unit ...........................................................................105 Staffing ..........................................................................................................105 Program Management and Major Funding Resources..................................106 Portable, Modular, and Bungalow Classroom Programs...............................106 Project Management Responsibilities ...........................................................107 Early Childhood Education ............................................................................107 Full-Day Kindergarten Program.....................................................................107

FACILITIES CONTRACTS...............................................................................109

Organizational Chart .....................................................................................110 Overview .......................................................................................................111 Mission ..........................................................................................................111 Vision ............................................................................................................111 Guiding Principles .........................................................................................111 Organization..................................................................................................111 Facilities Construction Contracts (FCC) ........................................................112 Labor Compliance .........................................................................................112 Professional Services....................................................................................112 Other Functions.............................................................................................112 Staffing ..........................................................................................................113


CONSTRUCTION.............................................................................................115 Organizational Chart .....................................................................................116 Overview .......................................................................................................117 Mission ..........................................................................................................118 Vision ............................................................................................................118 Guiding Principles .........................................................................................118 Organization..................................................................................................118 Local Construction Management...................................................................118 Staffing ..........................................................................................................119 Program Management...................................................................................120 Constructability Review .................................................................................120 Procurement..................................................................................................120 Construction Management ............................................................................121 Facilities Technical Project Management Group (FTPMG) ...........................121 Project Closeout ............................................................................................122

CONSTRUCTION SUPPORT SERVICES........................................................125

Organizational Chart .....................................................................................126 Overview .......................................................................................................127 Mission ..........................................................................................................127 Vision ............................................................................................................127 Guiding Principles .........................................................................................127 Organization..................................................................................................128 Staffing ..........................................................................................................128 Program Management and Major Funding Resources..................................130 Project Management Responsibilities ...........................................................130 Duties Required by Code ..............................................................................130 Special Inspectors .........................................................................................130 Project Progress Reporting and Certification ................................................130 Other Major Functional Responsibilities ........................................................131

PROGRAM CONTROLS ..................................................................................133

Organizational Chart .....................................................................................134 Overview .......................................................................................................135 Mission ..........................................................................................................135 Vision ............................................................................................................136 Guiding Principles .........................................................................................136 Four Major Functional Areas .........................................................................136 Business Processes, Policies and Procedures..............................................136 Program Management...................................................................................137 Program Reporting ........................................................................................138 Administration................................................................................................138 Staffing ..........................................................................................................138


OPERATIONS CENTER ..................................................................................139 Organizational Chart .....................................................................................140 Overview .......................................................................................................141 Mission ..........................................................................................................141 Vision ............................................................................................................141 Guiding Principles .........................................................................................142 Organization..................................................................................................142 Staffing ..........................................................................................................142 Program Management and Major Funding Resources..................................142 Project Management Responsibilities ...........................................................143 “The Bird’s Eye View” – Operations Center Website.....................................143 Operations Center Website Home Page .......................................................144 Operations Center Website Board Member Module......................................144 Operations Center Website Local District Module .........................................144 Operations Center Website Fact Sheet (Public) Module ...............................145

SPACE PLANNING and ALLOCATION ..........................................................147

Organizational Chart .....................................................................................148 Overview .......................................................................................................149 Mission ..........................................................................................................149 Vision ............................................................................................................149 Guiding Principles .........................................................................................149 Organization..................................................................................................150 Space Management ......................................................................................150 Design and Planning .....................................................................................151 Project Implementation..................................................................................152 Staffing ..........................................................................................................152 Program Management...................................................................................152 Project Management Responsibilities ...........................................................152

FACILITIES INFORMATION SERVICES .........................................................155

Organizational Chart .....................................................................................156 Overview .......................................................................................................157 Mission ..........................................................................................................157 Vision ............................................................................................................158 Guiding Principles .........................................................................................159 Organization..................................................................................................159 Staffing ..........................................................................................................161


FACILITIES SUPPORT SERVICES.................................................................163 Organizational Chart .....................................................................................164 Overview .......................................................................................................165 Mission ..........................................................................................................165 Vision ............................................................................................................165 Guiding Principles .........................................................................................165 Organization..................................................................................................166 Facilities Legislation, Grants, and Funding (FLGF) .......................................166 Financial Operations Support ........................................................................166 Maintenance & Operations Financial Operations Support.............................167 Facilities Contract Invoice Unit (FCIU) ..........................................................167 Corporate Reporting......................................................................................167 Manpower Administration..............................................................................167 Staffing ..........................................................................................................167 Project Management Responsibilities ...........................................................167

COMMUNITY FOCUS ......................................................................................169

Overview .......................................................................................................171 Community Use.............................................................................................171 Recreational Facilities ...................................................................................172 Joint Use Development Program...................................................................172 Joint Use/Joint Planning................................................................................174 Small Business Program ...............................................................................181 SBE Participation Performance – Existing Facilities......................................181 Small Business Boot Camp Program ............................................................182 Contractor MoneyWork$ Program.................................................................182 “We Build” Program.......................................................................................183 “We Build” Program Requirements................................................................184 Local Worker Participation ............................................................................184 Helmets to Hardhats......................................................................................184 Architecture & Engineering Internship Program ............................................184 Public Information..........................................................................................186

SHOWCASE PROJECTS .........................................................................187-204


EXHIBITS EXHIBIT 1 – PROGRAM COST AND FUNDING .............................................205

BB Program Cost and Funding......................................................................207 Measure K Program Cost and Funding .........................................................211 Measure K Fund Sources..............................................................................212 Measure K Funding and Committments ........................................................213 Measure K Fund Sources Chart ....................................................................214 Measure R Cost and Funding .......................................................................215 Measure R Fund Sources .............................................................................216 Measure R Funding and Committments........................................................217 Measure R Fund Sources Chart ..................................................................218 Measure Y Program Cost and Funding .........................................................219 Measure Y Fund Sources..............................................................................220 Measure Y Funding and Committments ........................................................221 Measure Y Fund Sources Chart ....................................................................222

EXHIBIT 2 – PROJECT BUDGETS AND SCHEDULES..................................223

Local District 1........................................................................................227-247 Local District 2........................................................................................251-271 Local District 3........................................................................................275-297 Local District 4........................................................................................301-318 Local District 5........................................................................................321-340 Local District 6........................................................................................343-351 Local District 7........................................................................................355-369 Local District 8........................................................................................373-390

EXHIBIT 3 – MEASURE K UNFUNDED PROJECTS...............................393-531 EXHIBIT 4 – DEFERRED MAINTENANCE PROJECTS – YEAR 1..........535-546 EXHIBIT 5 – DEFERRED MAINTENANCE PROJECTS – YEAR 2..........549-560 EXHIBIT 6 – DEFERRED MAINTENANCE PROJECTS – YEARS 3-4 ....563-571 EXHIBIT 7 – DEFERRED MAINTENANCE PROJECTS – YEAR 5..........575-712


May 2007 Strategic Execution Plan

EXECUTIVE SUMMARY


Bond OversightCommittee Public

David Brewer IIISuperintendent of Schools

Joseph Mehula, P.E.Chief Facilities Executive

Mark HovatterDirector

Facilities Contracts

Gary RainwaterDirector

Facility Support Services

Robert TempleDirector

Program Controls

Jim Cowell, P.E.Deputy Chief Facilities Executive

New Construction

Bruce Kendall, P.E.Deputy Chief Executive

Existing Facilities

Binti HarveyDirector

Facilities Information Office

Michelle Meghrouni Associate General Counsel

Legal

Board of Education

Bruce Kendall, P.E.Deputy Chief Executive

Existing Facilities

Scott LewisDirector

Operations Center

Scott LewisActing Director

Project Development

Bruce AbbottDirector

Facilities Information Services

Neil Gamble, P.E.Director

Maintenance & Operations

Yekaterina BoyajianDirector

Space Allocation

Richard Luke, R.A.Director, Design & A/E

Technical Support

John Doyle, P.E.Director

Construction

Fred SmithDirector

Construction Support Services

Operation/Execution Branch

Support Branch


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This Summary provides an assessment of Existing Facilities’ bond repair and modernization projects to date, and our projections for bond projects in 2007-08. I. THE ENORMITY OF OUR CHALLENGE Today, the Existing Facilities Branch is charged with:

• Maintaining and operating nearly 14,000 school buildings every school day, serving 867,185 students, of which 708,461 students are enrolled at 873 K-12 schools, and the balance at 186 pre-schools, occupational centers and adult education facilities; and another 96 charter schools and centers, for a total of 1,155 school sites;

• Effectively and efficiently executing much needed repairs at campuses located across 710 square miles in 28 cities in the metropolitan Los Angeles region;

• Identifying requirements, designing, and overseeing construction to upgrade and modernize permanent school facilities and structures that are, on average, more than 45 years old; and

• Maximizing the limited funding available to ensure that school buildings are brought up to a reasonable level of condition to promote excellent learning.

The enormity of the challenge facing Existing Facilities lies in the sheer number of the District’s buildings, urgency given the buildings’ conditions, and demands on and for school facilities. Historical Perspective The first Los Angeles schools opened in the late 19th century. From 1910-1930, Los Angeles schools experienced unprecedented four-fold growth in the number of enrolled students. Two bond measures were passed in the 1930s to address the repair needs of the schools. Unfortunately, half of the bond monies were needed to rehabilitate the schools Dorris Place Elementary School opened in 1925

EXECUTIVE SUMMARY


damaged in the Long Beach earthquake in 1933. Later, there were significant increases in the school-age population after World War II and throughout the 1960s and 1970s. As schools were built over the years to address increasing enrollment, school floor plans, building requirements and size elements changed. Thus, the current inventory of District facilities includes a broad spectrum of building types and styles with significant architectural and structural differences. Personnel in Existing Facilities have developed the necessary in-house expertise with respect to maintaining daily operations amongst this wide variety of structures. South Gate Middle School Opened in 1941 Sven Lokrantz Special Education Center Opened in 1961 Together with the addition of administrative and other non-K-12 facilities like adult education centers, the District’s total current facility inventory managed by Existing Facilities comes to over 72 million square feet. As a result of the on-going New Construction program, by the year 2012, the District’s facilities will total over 81 million square feet. This reflects an additional 15 million square feet of building space since 1999’s 66 million square feet, a 23% increase in just 12 years. From its early years forward, the School District experienced a pronounced lack of resources to adequately repair and maintain its existing buildings. This situation persisted through the balance of the 20th century until the passage of the BB bond measure in 1997, followed by Measures K (passed by voters in 2002), R (passed by voters in 2004) and Y (approved by voters in 2005).


The aging and deteriorating condition of the infrastructure at Los Angeles schools had not been addressed in a significant manner until the passage of these bond measures, all of which occurred within the last 10 years. And it is not enough. In addition, since 2001, more than 65 new schools totaling five million square feet have been built, and 80 more are scheduled to open by 2012. Existing Facilities is also charged with maintaining and operating these schools within its existing budget parameters. Infrastructure Age And Changing Educational Needs Infrastructure has a definite life-expectancy that can vary from 20 on up to 55 years for some building components. The District’s building age presents many challenges. Many of the District’s facilities have exceeded their design life, and require major renovation and modernization. Frankly, given the average age of more than 45 years for a permanent District building, a significant percentage of the District’s buildings have been long-neglected. Notwithstanding the voters’ recent approval of school bonds for repairs, the LAUSD infrastructure continues to age and experience high utilization, requiring on-going replacement of dilapidated roofs, failing heating and air-conditioning systems, worn-out flooring, rotting windows, peeling walls, and malfunctioning electrical and plumbing systems. While the age of buildings is not an exclusive factor in determining the viability of a school building, it is an indication of the time frame within which building components should be replaced. Roofs generally last 20 to 25 years; air-conditioners between 12 and 15 years; paint surfaces on exteriors may last 8 to 12 years; and vinyl flooring about 20 to 30 years. While the bond monies have finally allowed many needed repairs to take place, many problems remain. Deferred maintenance and repairs actually end up being more costly than replacing building components at the end of their life-cycle. Until sufficient capital improvement funds are available and on an on-going basis, the condition of our school buildings will continue to decline and repairs will continue to increase in cost. Like the common grading system used to determine test scores, the District’s facilities can be similarly rated. Our Facilities Condition Index (FCI), an objective evaluation of each school building against specific building requirements and conditions based on industry standards, is a tool that rates the condition of infrastructure by comparing the ratio of the backlog of repairs divided by current replacement value. As further described in our Maintenance & Operations section that follows, an FCI rating that is under 5% is rated Good, or by our analogy, merits at least an “A” or “A+.” An FCI rating that ranges between 5-10% is rated Fair, or


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the equivalent of an “A-.” An FCI rating that is over 10% is rated Poor, or the equivalent of a “B,” or worse. The results of the District’s FCI have determined the average condition of our school buildings is at 28.66%, only slightly above what we would consider critical. Based on the grading scale, our school facilities condition of a 29% FCI rating is equivalent to a “C-“ at 71%. Thus, we rate our structures at a “C-” level of condition. A building with an FCI of 30% is a building in critical condition. Our school facilities are only 1.34% from critical. This is, and should be, unacceptable. Unfortunately, our FCI rating is not distant from the “D” rating by the American Society of Civil Engineers (ASCE) Infrastructure Report Card 2005 at the national level for schools. In addition, educational concepts for instruction and space standards to support them have evolved over the years, changing the basic facilities that are required at a campus. Since the District is primarily urban in nature, space is at a premium, and adding buildings is not always possible without adversely impacting other educational requirements such as athletic facilities. The District’s crowded classroom conditions have increased the wear and tear of buildings and decreased their life-expectancy. To educate students adequately, schools had been forced to year-round calendars, severely limiting the time available during which major maintenance and repairs can be performed as well as deep-cleaning activities. In the past, supplemental installation of portable, temporary buildings was utilized to address dramatic increases in student enrollment and class size reduction measures. Over time, 5,843 portable buildings were added for an equivalent number of 9,079 additional classrooms. Through the availability of bond funds, the District has targeted an end to year-round school programs. The District provides for a myriad of school facility usages through its Civic Center permit program to facilitate community use of athletic fields, auditoriums, and classrooms for meeting space. In the last year, about 4,300 permits were issued, representing around 75,000 daily uses and events. The District’s joint use program has over 50 agreements in place which allow for the use of school facilities for more long-term commitments by community groups. While the District values such partnerships, these activities contribute to additional wear and tear, including the inability to schedule lengthy downtimes to recondition athletic fields.


Existing Facilities Shortfalls To provide a summary of the magnitude of our needs, the following chart compiles the facilities requirements of the District by category: CATEGORIES FUNDS ASSIGNED

PROJECTED SHORTFALL

MAJOR REPAIRS1

$6 billion needed now to achieve a “Fair” or 10% rating on the Facilities Condition Index; on-going recapitalization is $1 billion per year in program costs.

$640 million $6 billion

CORE FACILITIES2

To provide new or expand existing structures which are less than 50% of the required area, the estimate is $2.2 billion. To cover all deficiencies, $4.7 billion is needed.

$189 million

$4.7 billion

PORTABLES

Based upon estimate to replace 90% of all portables with permanent classroom buildings. Over time, 5,843 portable buildings were added for an equivalent of 9,079 additional classrooms and equal to about 9 million additional square feet.

$175 million

$8 billion

FIRE ALARMS

Funds required to bring fire alarm systems to Green Oaks-compliance (SB 575). Will leverage Proposition 1D funds.

$6 million

$240 million

SCIENCE LABORATORIES

$88 million is minimum necessary to fully convert 53 of 367 classrooms with remaining 314 served by mobile labs. Phased implementation between 2007-2011 will address time requirement. $23 million will fund first 70 laboratories and planning for second phase.

$23 million

$88-214 million

SEISMIC RETROFIT OF CATEGORY 2 BUILDINGS3

$37 million recommended for Phase I buildings. Costs do not reflect interim housing and Americans with Disabilities Act costs. Will leverage FEMA and Proposition 1D funding.

Strategy for future funding currently being developed.

$1.8 billion

1 “Major Repairs” include repairs to plumbing, lighting, electrical, heating, ventilation and air-conditioning systems; repair and replacement of flooring, windows, roofing, and playgrounds; classroom remodeling, interior and exterior painting; and paving, striping, and equipping of athletic fields and fencing. 2 “Core Facilities” are key components of a school campus other than classrooms, such as a library, rest rooms, gymnasium, cafeteria, lunch shelter, auditorium, playground, multi-purpose room, and administrative office space. 3 “Category 2” buildings are those buildings that are not expected to perform as well in future earthquakes and that require seismic evaluation to determine if they can be expected to achieve life-safety performance in an earthquake equivalent to those specified for new design in the 1997 Uniform Building Code (UBC). There are as many as 670 LAUSD buildings to which this applies in a worst case scenario.


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AMERICANS WITH DISABILITIES ACT (ADA) COMPLIANCE

Projects being submitted to Division of the State Architect require appropriate ADA components. This category of expense currently treated as project costs.


$300-500 million

CLASSROOM FURNITURE REPLACEMENT

Not currently included in modernization projects; requires $21 million per year on an on-going basis after one-time capital expenditure is made.


$207 million

TOTAL

$1.03 billion

$21.66 billion

II. THE FUTURE – “RENEWING OUR SCHOOLS” Significant lessons have been learned in the last ten years since the passage of the BB bond and Measures K, R and Y. First, the availability of funding has led to long-overdue analyses and evaluations of the District’s building inventory. Second, the District has gained invaluable experience in maximizing $2.5 billion in the completion of 14,939 repair and modernization projects to date. While completion of these projects and efficient management of the bond program overall are no small accomplishments, we have also learned that the uncertainty of future funding and the emergent nature of the repairs and improvements that were needed have not promoted, to a greater degree, more long-term planning and prioritization of other much-needed modernization projects. We have also heard the concerns of community members, parents, business organizations and others who believe that the construction of new schools in some neighborhoods but not others, and the fact that some schools have been at least partially renovated but not others, have created a perception that not all of the renovation needs of school buildings have been addressed to a similar degree. We have already taken action to mitigate these concerns. Our Facilities Condition Index (FCI) is a critical tool to address the most serious repair needs equitably across the District. Combined with the FCI are the District’s policies supporting the conversion of all high schools to small learning communities with the eventual goal of providing a quality educational environment in every school. Nonetheless, we believe there is a more comprehensive solution to meet the needs of school renovation and modernization in a thoughtful and equitable manner.


We call the strategy, “RENEWING OUR SCHOOLS.” RENEWING OUR SCHOOLS is a strategy forward based upon several fundamental considerations:

1. School buildings should not be in a barely usable condition before improvements are committed. Every school should be placed on a 50-year cycle to be rebuilt, refreshed and renewed.

2. Every 50 years, a school campus, or its significant components, should be

modernized to the standard of a “new” school. A “renewed” school is one where the major renovations, improvements, and additions, if any, of new classroom space, are completely integrated into the existing infrastructure so that the resulting campus is “renewed” to the degree that it appears and functions, inside and out, to be a new school. “Renewing Our Schools” takes an existing school site and transforms the campus and its buildings into a truly modern school facility. This approach ensures compliance with the Board of Education’s stated policy of providing a modern and safe learning environment for every student.

3. The benefits flowing from this approach may include greater neighborhood

identification, increased real estate valuations in the surrounding area, and increased economic activity overall.

4. The effectiveness of projects funded by precious and limited bond dollars

will be significantly enhanced when constructed as part of a longer-term vision of an overall renewed school campus.

Three examples of “renewing our schools” have already been documented as part of the execution of the bond program here at the District. These examples have modernized existing campuses and transformed them into 21st century schools and centers of community life, while expanding existing District assets to end mandatory busing and provide for a two-semester seat on a traditional calendar for every student. The new construction and accompanying renovations at Valley Region Hesby Span K-8 are one example. The goal was to better serve the demographics and community needs by converting a K-5 elementary school to a K-8 school. In the course of the project, the existing site and facilities were augmented by new construction as well as renovations of existing structures. The end result is a modernized campus, so much so that one cannot tell where the old structures exist and where the new structures were added. It is a beautiful campus. Concurrent with the new school construction and renovations was the revitalization of the surrounding neighborhood, where significant home-building and remodeling are evident. The entire neighborhood has been reinvigorated.


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Valley Region Hesby Span K-8 School Exterior

Valley Region Hesby Span K-8 School Classroom

A second example is the transformation of Fulton Middle School. Its existing campus is being adapted and modernized to become the Fulton 6-12 College Preparatory School. The changes include removing portables with a new multi-story classroom building, adding a new competition gymnasium, adding a new stand-alone library, refurbishing the kitchen, adding two student courtyards, relocating and expanding the parking area, adding onsite drop-off, and refurbishing the play fields. These dramatic changes will not only give this under-resourced middle school the needed facilities to transform into a 21st century college


preparatory school, but it will also give the surrounding neighborhood a true community center with accessible athletic, cultural and learning facilities. The entire community will benefit from this investment.

Fulton 6-12 College Preparatory School

A third example lies in the re-conceptualization of Byrd Middle School. Again, focusing on demographic changes and community needs, the neighborhood surrounding Byrd Middle School required a high school in the immediate vicinity to handle anticipated enrollment at that level. However, with the limited land options available, the District would have ended up with a high school across from another high school. Instead, the District will meet those needs by converting Byrd Middle School to a high school. To replace Byrd Middle School, the District will have the opportunity to offer the community a new middle school at another nearby location which will be designed as a modern, small learning community. Thus, there would be a middle school close to another high school with more appropriate spacing between the two high schools.

Byrd Middle School


Renewing our schools is no small task, and not a small commitment. It is, rather, the long-term solution to maintaining and enhancing our school facilities. It makes solid economic sense: good schools, such as ones that provide a high level education or are aesthetically built, enhance nearby property values. Investing in our school properties is a sound investment in our local neighborhoods. What will the cost be? Using an analytical tool like the Facility Condition Index, we estimate that if properly done, it takes $1 billion per year in program costs alone in current estimated costs just to maintain school structures in a “Fair” condition. It will take another $1 billion per year in program costs to begin to execute the vision of renewed schools. On a 50-year cycle for renewal, twenty of the District’s 800 schools will be specifically designated for renewal each year. The average cost to renew an entire school campus is estimated to range upwards of up to $50 million. Thus, we have estimated that a minimum of $1 billion per year in program costs will be required. As LAUSD’s facilities continue to age, the deterioration of its school buildings will continue to occur and will worsen if investment does not keep pace. Coupled with current economic conditions, shortfalls have been created, leaving the School District with no other realistic alternatives but to ask the voters to approve bond measures on a sporadic basis. The voters have responded in significant numbers to this need. However, in order to achieve a more consistent funding approach, a long-term, permanent funding solution needs to be identified in order to sufficiently address the day-to-day maintenance, repair and modernization needs that keep building. Bond funds should be applied to the most critical of major repair needs and for major new construction and modernization requirements that affect an entire campus. Longer-term funding will ensure that “Renewing Our Schools” is implemented. III. WHAT WE HAVE ALREADY ACCOMPLISHED Passage of recent bond measures (BB, K, R, and Y) made and is making available dedicated resources to allow the undertaking of remediating and enhancing school campuses to begin in earnest. This can only be the beginning in recognition that our schoolchildren deserve a permanent solution to deteriorating school buildings in which to learn and thus, they deserve implementation of an on-going modernization and renewal strategy. The Existing Facilities Repair and Modernization program for the District remains one of the most comprehensive in the country. Since the start of this program, we have completed 14,939 projects valued at approximately $2.5 billion. This strategic execution plan covers 5,044 approved, funded and on-going projects,


which are under construction or planned for construction, with a project value of $1.93 billion.

Existing Facilities Repair and Modernization Program Highlights • 19,9834 projects - $4.43 billion total in project costs, including 14,939 projects completed with a project value of $2.5 billion, and 5,044 projects in progress with a project value of $1.93 billion • 73% Small Business Participation in fiscal year 05-06 (most recent available) • 5% Construction Contract Change Order Rate • Over 20,500 invoices processed for payment • 28 days – average invoice processing time for construction contracts • $6 billion repair backlog to get facilities to a “Fair” condition Project schedules and estimates in this Plan have been updated with the latest information available at publication. Our project schedules are based upon optimal planning and are revised as conditions require. From original budget estimations through bidding to start of construction and during construction, our construction schedules and budgets are subject to a number of external variables. Factors such as timing of regulatory approvals, bidding climate, materials availability, change orders, and contractor issues will impact project schedules. Our improved program management approach, modeled after The Goal by Eliyahu Goldratt, is now firmly in place and working. Weekly reviews of “throughput,” “inventory,” and “operating costs” drive our workload processing. We continue to consolidate ancillary services to support our “factory floor,” as indicated in the schematic diagram below. A detailed flowchart of the “factory floor” work processes may be found at the end of this Executive Summary.

We made a conscious decision to set aggressive targets to strive for in the last two years. We will continue to do so.

4 This number has been adjusted to reflect project reductions, project cancellations, and to account for duplicate entries.


We had also targeted, between July 1, 2006 and June 30, 2007, to have construction completed valued at $811 million. We expect to complete about $600 million by fiscal year-end June 30, 2007. While this is about a 32% increase over the prior year, we are aiming to surpass it in the next year. Throughput of the program overall had been in decline the last several years, thus necessitating a direct analysis and evaluation of approaches in place at the time. The program underwent significant change to its work processing flows a year ago. It is only now that our new processes are allowing us to achieve traction. Several new components of the Factory Floor were put into place for the first time a year ago: Project Development, Program Controls and Operations Center. Throughput has been reached this year at least at the level of the prior year, but is not sufficient. We believe we can increase throughput. Thus, for the coming year, we have established a target of construction starts in excess of $650 million, and construction completed in excess of $650 million. We will continue to strive for efficiencies and improvements in project starts and construction completion. We will continue to strive for the most optimum scheduling of projects possible, acknowledging that marketplace factors will intervene. As the bell curve chart below demonstrates, we remain committed to pushing forward to achieving the goal of completing projects scheduled through 2008.


We have already refined a number of work processes to streamline throughput of a project. We clarified how a project budget, when established early on in the process, is a “current working estimate” of costs allocated at the time. As the project moves onto our Factory Floor, it undergoes scoping at the initial stage and proceeds through design and into contracting for bidding. If the recommended scope of the project will cost more than what was initially budgeted, then the Factory Floor immediately identifies it for resolution. Project Development steps in to keep the project on track by reviewing and reducing the scope, where appropriate, to stay within the budget. If the resulting scope of the project requires more funding than what was originally allocated in the budget, then Project Development researches other potentially cost-effective solutions and other funding sources, repackages the project and recommends that the project be re-bid where necessary. In some instances, the project budget will increase to keep the project on track. Thus, the current budget for a project is adjusted quickly throughout the process as it remains subject to market conditions as a project progresses. As we have already indicated, a project budget will increase or decrease based upon modifications in scope, inflation, cost of construction materials, and the overall bid climate. Existing Facilities improved its utilization of small businesses and as documented in FY 2005-06, the most recent data available, small business participation in Existing Facilities contracts was 73% of the value of construction contracts awarded. Our construction contract change order rate was approximately 5 percent, well below the industry average of 10 percent for repair and modernization projects. The Los Angeles Unified School District, including Existing Facilities, values the opportunities to work with every interested contractor in our school construction and renovation program, the largest in the nation. LAUSD is dedicated to being the “Owner of Choice” for the contractor community by helping contractors deliver quality school projects on schedule through professional teamwork and timely payment. Existing Facilities is especially proud of our 73% small business participation in our contracts, that we process over 20,500 contractor invoices per year and routinely pay our contractor invoices within 28 days of receipt. EVOLUTION OF DISTRICT’S CAPITAL IMPROVEMENTS EFFORTS The District’s original Capital Improvements Program was primarily initiated through Federal Emergency Management Agency (FEMA) projects following the 1994 Northridge earthquake. However, beginning with the passage of Proposition BB in 1997, additional bond funds have continued with the passage of the Measure K local bond by 68 percent in 2002, Measure R local bond by 64 percent in 2004, and Measure Y local bond by 66 percent in 2005, all culminating to form the basis


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of the current Existing Facilities Repair and Modernization Program. Furthermore, these local bond funds have been leveraged considerably through the successful passage of State Modernization bonds in Propositions 1A, 47, 55, and 1D. This is a time of unprecedented repair and modernization of existing schools and construction of new schools. It must continue in order to have a long-lasting impact. MISSION The mission of Existing Facilities is to maintain and operate, repair and modernize LAUSD school facilities with quality sustainable materials and workmanship, on schedule and within budget, so that LAUSD schools can provide an effective educational environment for the development and training of our students. VISION Our vision is to operate, maintain, and repair schools in a cost-efficient manner, while sufficiently utilizing available funds, to facilitate the intellectual, social and physical development of children, in schools which are educationally and environmentally sound, and contribute to our neighborhoods by providing centers of the community. GUIDING PRINCIPLES Strategic Planning

• Continue increasing modernization project throughput utilizing overall program management, project management and execution

• Maximize the capabilities of our existing facilities through centralized policies, procedures, budgeting, and oversight, with regionally executed construction management efforts

• Manage with measurement of actual versus planned metrics execution, and • Utilize best practices in facilities and utilities management, space planning

and allocation, engineering design, program and project management, quality assurance, and project inspection.

Standards

• Maintain safe project sites at all times • Minimize disruptions in the operating school environment • Provide quality assurance and quality control at all project stages • Maintain individual accountability at all levels of the organization • Manage with transparent, timely, and accurate information • Create opportunities for small businesses relationships, and • Be the “Owner of Choice” for contractors who help us achieve our goals.


Outreach

• Maintain strong relationships with contractors, suppliers, city agencies, state agencies, and community stakeholders, and

• Support opportunities for community use of school buildings after school hours, and other joint use partnerships.

ORGANIZATION Board of Education The Los Angeles Unified School District Board of Education is ultimately responsible to the public for the Existing Facilities Repair and Modernization Program. This seven-member elected panel establishes District policy and provides approval for various aspects of the administration of the Repair and Modernization Program. School Construction Bond Citizens’ Oversight Committee The Board has established a Bond Oversight Committee (BOC) that provides an independent review of bond-funded programs. The Bond Oversight Committee is entitled to access all information concerning the bond-funded projects not subject to legal privilege, and has the responsibility to report on any expenditure of the funds in a manner that is illegal, imprudent, or not consistent with the adopted Strategic Execution Plan. The Bond Oversight Committee also has the opportunity to review and recommend for or against projects prior to action on the projects by the Board of Education. Superintendent of Schools The Board has selected Superintendent of Schools, David Brewer III, to lead day-to-day operations of the District. Superintendent Brewer is directly accountable for executing Board policy and District operations. Facilities Services Division The Chief Facilities Executive, Joseph Mehula, reports to Superintendent Brewer. Mr. Mehula is a registered professional engineer charged with leading the entire Facilities Services Division. Under his leadership, the Division continues to transform itself to meet the obligations and requirements of large facilities maintenance, operations, repair, modernization, as well as new construction efforts. The Chief Facilities Executive has two Deputies: in Existing Facilities, Bruce Kendall and in New School Construction, Jim Cowell. Messrs. Kendall and Cowell are registered professional engineers.


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STAFFING The following chart provides a summary of staffing resources for Existing Facilities.

Existing Facilities Staffing Total Staff: 2,0195

M&O, 1164

Project Development, 48

Design, 190

Construction, 455

FIS, 38Operations Center, 14

Program Controls, 91

Space Allocation and Planning, 9

5 Includes filled positions; does not include vacancies. In addition, EF staffing does not include Inspection personnel now that this functional department reports directly to the Chief Facilities Executive nor does the overall staffing number include Contracts personnel. Separate staffing numbers are reported in the respective section of this SEP relating to each of these divisions. The M&O staff count here does not include Local District personnel who, while funded by Existing Facilities, are under the control of the Local Districts.


IV. PROGRAM FUNDING/COSTS Funding for the programs, and the projects within those programs, is provided from a variety of sources. Of primary importance are the local bond initiatives:

• Proposition BB (1997) • Measure K (2002) • Measure R (2004) • Measure Y (2005).

PROPOSITION BB In the mid 1990’s, the Los Angeles Unified School District began the effort to address critical repair and modernization needs at existing school facilities culminating in Proposition BB. BB was passed by the voters in April 1997. $1.5 billion in BB was allocated for the repair and modernization of existing school facilities. Work included the elimination of longstanding maintenance backlogged items; air-conditioning projects; and safety and technology projects. While significant progress has been made in each of these three areas, the total costs of required repair and modernization projects exceeded Proposition BB funding. This bond funding was the beginning of the largest overall educational construction program to be developed by a school district in the history of the state of California at the time. MEASURE K In November 2002, voters approved, by 68 percent, a $3.35 billion bond program for new construction, and for repairs and upgrades at existing facilities. $526 million was set aside for repair and modernization of facilities. In addition, Measure K provided funding for Early Childhood Education and Joint Use programs. The Local Districts worked with their respective communities to establish the priorities for individual schools. An integrated, prioritized list of all school projects in the Local District was developed and coordinated as well with the School Principals. The list from each Local District was then provided to the Facilities Services Division and the Superintendent of Schools for presentation to the Board of Education and the School Construction Bond Citizens’ Oversight Committee for approval.


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MEASURE R Passed by the voters on March 2, 2004 by 63.7 percent, the Measure R bond program included funding for specific repair, upgrade, and modernization projects in the amount of $1.563 billion. In addition, Measure R provided funding for Adult and Career Education, Joint Use programs, and Early Childhood Education programs. Measure R work included some of the unfunded projects previously planned under BB Bond. In addition, Measure R provided for the development of additional repair, modernization, and core facilities projects by the Local Districts with appropriate community involvement and with the ultimate approval of the Strategic Execution Plan by the Board of Education and review by the Bond Oversight Committee. An allocation of funds for high priority projects in the seven Board Member Districts was also designated. MEASURE Y Voters in November 2005 continued to recognize the deteriorating condition of school facilities, and approved Measure Y by 65.7%, providing a much needed $3.985 billion in bond funds. Of this amount, $1.48 billion was allocated to school repair and modernization projects. In addition, Measure Y provided funding for Joint Use, Adult and Career Education, and Proficiency + for All programs. STATE MATCH EFFORTS (SME) To leverage allocations of bond funds, Existing Facilities works with each Local District to maximize the amount of monies available for repair and modernization projects in their areas by utilizing supplemental State Matching Funds and other similar programs. These matching funds have been provided through the passage of State Modernization Bond Initiatives (Propositions 1A, 47, 55, and 1D). Applications are submitted to the State in accordance with state guidelines for an approximate 60 percent project budget funding match for those projects that meet the requirements and that have the required state modernization funds eligibility. By participating in such programs, the District has strategically leveraged its bond funding to complete projects that would not otherwise be funded under the current bond allocation. OTHER FUNDING SOURCES While many projects are directly tied to a particular funding source, a significant number of projects receive funding from several complementary funding sources. “Other Funding” includes Federal Emergency Management Agency grants related to the Northridge Earthquake Recovery, Deferred Maintenance funds, certain


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Certificates of Participation (COPS), Quality Zone Academy Bond (QZAB) funds, and E-RATE grants. Note also that growth in funds is also attributable to BB Bond and Measure K interest, increased State Match Efforts program revenue, and Proposition 1A interest.


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SOURCES OF FUNDS

The primary fund sources for the Existing Facilities Repair and Modernization Program are local bonds approved by voters within the boundaries of LAUSD and matching funds approved by statewide ballot initiatives. The combination of these two sources provides about $6.92 billion, or 82% of Existing Facilities funding. Other sources include grants, Certificates of Participation (COPs) issued by the Board of Education for specific programs, and funding sources such as Qualified Zone Academy Bonds (QZABs), Federal Emergency Management Agency (FEMA) grants, and other local sources of matching funds. Current available funds for the Existing Facilities Repair and Modernization Program are insufficient to address all shortfalls.

Sources of Funds Local Funds Proposition BB $1,729,149,277 Measure K $626,900,000 Measure R $1,603,600,000 Measure Y $1,529,100,000 Total Local Funds $5,488,749,277 State Funds Apportioned State Funds (i) $978,570,618 Estimated Future State Funds (ii) $500,000,000 Total State Funds $1,478,570,618

Other Sources (iii) $1,518,035,162 Total Program Sources of Funds $8,485,355,057 (i) Includes funds received from Lease Purchase, Prop 1A, Prop 1A Interest, Prop 47, Prop 55, and Prop 1D. (ii) Estimated Prop 1D funds. (iii) Includes funds received from Grants, Certificates of Participation (COPs), Deferred Maintenance, Federal Renovation Grant, Qualified Zone Academy Bond (QZAB), General Fund-Unrestricted, Federal Emergency Management Agency (FEMA), and Educational Rate (E-RATE).

Proposition BB $1,729,149,277

Measure R $1,603,600,000

Measure K $626,900,000

Apportioned State Funds

$978,570,618

Estimated Future State Funds

$500,000,000

Other Sources $1,518,035,162

Measure Y $1,529,100,000


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USES OF FUNDS Funds used in the Existing Facilities Existing Facilities Repair and Modernization Programs fall into three major budget categories:

• Direct project costs, • Indirect project costs, and • Program costs.

Current

Expected Uses Commitments Expenditures Direct Project Costs Construction $4,051,413,066 $3,452,887,393 $3,203,612,722 Design $1,049,881,330 $347,530,302 $290,606,509 Other Direct Project Costs $1,818,692,061 $317,808,803 $254,022,037Total Direct Project Costs $6,919,986,457 $4,118,226,498 $3,748,241,268 Indirect Project Costs Project Management $826,678,211 $566,518,142 $501,133,049 Other Project Indirect Costs $325,351,288 $131,405,806 $121,392,898Total Indirect Project Costs $1,152,029,499 $697,923,948 $622,525,947 Program Costs Program Management Team $248,003,463 $76,857,349 $70,847,911 Program Reserve $165,335,640 $15,808,825 $12,880,256Total Program Costs $413,339,103 $92,666,174 $83,728,167 Total Program Uses of Funds $8,485,355,059 $4,908,816,620 $4,454,495,382 Note: Commitments and Expenditures through March 31, 2007.

Other Indirect Project Costs $325,351,288

Project Management $826,678,211

Program Reserve$165,335,640

Program Management

Team$248,003,463

Other Direct Project Costs

$1,818,692,061

Design $1,049,881,330

Construction $4,051,413,066


USES OF FUNDS – DEFINITIONS Project Costs Costs include current budgets for defined projects as well as estimated budgets for projects that have yet to be defined. Project costs are subject to bid and other market conditions. Direct Costs Costs directly attributable to projects, including construction, design, and other direct project costs as defined below. Construction Costs to repair and modernize schools. Design Costs for architectural and engineering fees for the design and planning process from concept to construction closeout, and costs related to Division of the State Architect (DSA) expenses, and reprographics. Other Direct Project Costs Includes environmental, testing and inspection costs to ensure that work performed is in accordance to state-mandated education codes and per contractual plans and specifications. In addition, construction costs include a 5% construction contingency, and a project contingency of up to 5%, both based upon the construction contract amount. Indirect Project Cost Cost indirectly associated to projects that are required to manage and to complete the construction program as defined below. Project Management Management costs associated with design and construction of projects. Other Indirect Project Costs Includes, audits, legal costs, Owner Controlled Insurance Program (OCIP), interim project office space, Facilities Support Services (FSS), and Facilities Contract Services (FCS) that were not originally planned as burdens to bond funds.


Program Costs The costs associated with the management of the construction program as a whole. Program Management Team Costs associated with the management of Existing Facilities Repair and Modernization Program that are not attributed to individual projects. It includes costs for program support that affect branch-wide policies and procedures, such as Program Controls and Operations Center personnel. Program Reserve Funds placed into the reserve fund managed by the Deputy Chief Executive to address unforeseen site conditions and unanticipated scope changes.


MANAGING COSTS Cost management is one of the key objectives in the Existing Facilities Repair and Modernization Program. Our program utilizes seasoned and experienced program managers and project managers from proven construction management firms to supplement and support in-house District employees whose availability is limited due to the scope of the program. Existing Facilities has recognized that solid program management can not escape the impact from realities of the market place. Variables beyond our control have the potential to increase project costs and thus, managers understand the significance of cost estimating at different stages of a project and reflecting those changes in the budget allotted to a project. LAUSD has also reviewed its costs and performance against other California cities and counties. The following table, drawn from data compiled through the 2006 California Multi-Agency Capital Improvement Projects Benchmarking Study, shows that LAUSD’s performance is favorable compared to 642 projects with $993 million worth of construction undertaken by seven large public agencies.

Project Total ConstructionPublic Agencies Completion Construction Design Cost Mgmt Cost**Participated Date Project Type Cost (TCC) (% of TCC) (% of TCC)City of Long Beach 1999-2005 Libraries, Police/Fire Stations, $993 Million 18% 16%City of Los Angeles Community Buildings/ RecreationalCity of Oakland Centers/ Childs Care/ Gymnasiums,City of Sacramento Streets-New/ Widening, GradeCity of San Diego Separation, Bridges, Pipe Systems – City & County of Storm Drains, Sewers, Pump Station,San Francisco Parks – Playgrounds, Sports fields,City of San Jose Restrooms

LAUSD 1997-2006 Modernization, Repairs, A/C, Fire Alarm, $3.3 Billion 8.1% 8.4% (CM Cost)Safety & Technology, Portables, 3.9% (T&I Cost)Small Learning Communities, etc.

* Design Cost - Includes design phase soft costs** Construction Mgmt. Cost - CM phase soft costs including testing and inspection costs


CONTINGENCY FUNDS It i

Documents

Existing Facilities Strategic Execution Plan 2007 · Existing Facilities Strategic Execution Plan - May 2007 3. Los Angeles Unified School District Facilities Services Division –