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HomeMy WebLinkAboutAdaptive Reuse of Crozet School Adaptive Reuse of The Old Crozet Elementary School Prepared For: County of Albemarle Department of Engineering and Public Works By: Evan Lowenstien Karen Van Gilder JeffWemer July 1997 Adaptive Reuse of the OM Crozet Elementary School TABLE OF CONTENTS Executive Summary I. Introduction II. Guiding Elements of the Albemarle County Land Use Plan and the Crozet Community Study :? III. Other General Planning Issues to Consider When Planning Future Use of the Old Crozet Elementary School IV. Crozet School Context and Facilities The Old Crozet Elementary School. 1924-1997 General Recommendations for Future Use I. General Recommendations 2. General Cost Considerations for Renovation 3. Potential For and Impact of Historic Designation VII. Specific Possibilities for. Reuse: Pros and Cons 1. Public Use Options A. Crozet/Western Albemarle Community Center B. Crozet Branch-- Jefferson-Madison Library C. County Public School D. County Satellite Offices E. Crozet Post Office F. Mixed Use Options: Public-Private Partnership G. Lease to Private School Private Interest Options A. Renovate for Affordable/Market Driven Housing B. Sell Building and Grounds to Private School 3. Hold/Maintain Building "As-Is" For Future Needs 4. Demolish Building A. Demolish and Construct Public Use Facility on Site B. Demolish and Sell Site for Residential Development 10 10 12 18 19 19 19 21 21 24 25 26 27 28 28 30 31 31 31 32 VI1. Bibliography A. Sources Cited B. References for Future Work C. Contacts Appendix 33 33 34 35 .4daptme Reuse of the OM Cro=et Elementary School EXECUTIVE SUMMARY Potential Adaptive Reuses for the Old Crozet Elementary School In western Albemarle County, the Village of Crozet sits amid the fields, open spaces and mountain vistas of Central Virginia. Among the sites constituting the small-town fabric of the village is the Old Crozet Elementary Sch ~,~o~1,~~[~. In the course of planning for the now designated county growth area surrounding and including Crozet, the future of the school building and its site is being evaluated. The 1996 County of Albemarle Land Use Plan and the 1995 Crozet Community Study conducted by the County represent the guidelines within which all recommendations are judged. In these documents, the County states its intentions and wishes to encourage growth in the village while protecting ~e small town environment and existing sites and structures. Our general recommendations for the future use of this building are made in an effort to correspond with the broad mandate established in these two county documents and to represent the wishes and needs of the community's residents. The Old Crozet Elementary School, constructed in 1924, served as the community school and later the elementary school. Albemarle County~~~ and classes were relocated to the new facility across the street. Currently, the school building is being leased by the Crossroads Waldorf School, a private school. This arrangement will soon be terminated by the County, and options for the future use of the school building must be evaluated. In the course of evaluating and analyzing potential options for reuse, four general categories of use were determined: 1. Public Use 2. Sell to Private Interest 3. Hold the Building for Furore Needs and Uses 4, Demolish Building In a broad estimate of general renovation costs, approximatel~i$~"tbi2:~-millionwvould be neeaea, g[:CO~n~lZtCnaovam me structure: ~nmua~ng new roo~, roox repmr, tome material abatement and climate control and life safety systems. The budget will vary with the clarification of a specific use. Approximately $344,000 would be required for complete demolition of the school. While cost may be an issue in the renovation discussion, any decision regarding the future of this site must be made with the potential positive and negative reflects to Crozet and Albemarle County in mind. The Old Crozet Elementary School has been recognized as a potential historic site within the County and State and has always held the status of a communi.ty landmark within Crozet. As a site, the school holds enormous potential to meet the growing and changing needs of Western Albemarle County. ,~dapttve Rede of tl~e Old Crozet Elementary School Specific Recommendations: 1. Public-Use Options A. Establish a Crozet Community Center with library, meeting space, arts and theater space, and outdoor facilities such as playgrounds and fields, as well as a site for commumtv festivals, community events, Farmer's Market, amphitheater or outdoor pavilions. B. Establish as larger Crozet Branch of the Jefferson-Madison Regional Library. C. Renovate, Expand. and Re-establish as a County School to serve a growing school-age population. D. Create satellite off.ices for Albemarle County: administrative, social services, health department. E. Develop the school into a larger Crozet Post Office. F. Mixed-use options--Public/private partnerships and combined use: (1) Office space for small local business in conjunction with public uses in other parts of the building (2) Additional space for a county owned daycare facility rented to private operation, again in possible combination with public uses in other parts of the renovated~expanded building. (3) Artists' Center akin to Charlottesville's McGuffey Center, where artists rem building space from the government-owned facility. G. Continue to lease County-owned building to private school 2. Sell to Private Interest A. Renovate for use as housing: (1) Sell to investors/developers at below-market rate for development of affordable housing. (2) Sell to investors to establish market driven medium to high income housing. B. Sell to party interested in use of building as a private school. 3. Hold/Maintain or "Mothball" Building for Future Needs and Uses 4. Demolish Existing Building A. Demolish and Construct new public use facility on the school site or convert to a park. B. Demolish and sell land for residential development (school site is zoned R-2 residential). .4dapt~ve Reuse Qf the Old Crozet Elementary School INTRODUCTION Across the country, small towns like Crozet. Virginia face the difficult challenges and decisions that accompany rapid growth. Crozet. a small, historic community (population 2.225), is a designated growth area in the County of Albemarle and is experiencing 1-3% annual population growth~. With that growth, local officials must find ways to meet the increased need for basic services and the new and different needs of a changing population. The Old Crozet Elementary School holds potential to meet these needs. The Old Crozet School, built in 1924 and situated one-third mile from the downtown core. was closed to public school students in 1991 in favor of a new school facility directly across the street (State Route 810). The building is currently rented by the County to a private school, and other potential future uses are now being considered by Albemarle County. Albemarle County has four general options for the Old Crozet School: (1) continued county ownership and use to meet public needs. (2) sale to private interest, (3) holding the building as-is, or (4) demolition. We believe the County should maintain ownership of the school and renovate/expand to serve public needs of a growing community and County. The County of Albemarle Land Use Plan (1996) and the Crozet Community Study (1995) outline basic and specific needs and articulate well-researched recommendations for the future development of Crozet. These plans exist to guide future development discussions and decisions regarding the use of the Old Crozet Elementary School, these discussions and decisions should adhere to the general and specific recommendations within these plans (See Section II). Both aforementioned plans recommend that existing buildings be reused for other uses as appropriate and necessary. County reuse of the Old Crozet Elementary School is a fiscally responsible option for meeting expressed needs and desires of Albemarle County and the Crozet Community. Such reuse also simultaneously meets the County and Community's vision for preserving historic and rural resources and revitalizing its town center. While demolition or sale of this building may appear to cost the County and Community less than renovation, the demolition estimate does not include the. consequential costs for constructing a new structure for a use that could be accommodated in this existing, county-owned building. This scenario also does not include the effects borne by decentralization of the Crozet community or the hidden costs associated with the loss of an important community and county historic landmark. Decentralization will cost the community and County in the form of increased infrastructure investments as public uses are shifted to locations outside the village core and will result in open space/agricultural land loss and the loss of a cohesive community. The possible effects of relinquishing the future of such a large site and prominent structure to private hands must also be considered and evaluated carefully. Reuse of the Old Crozet Elementary School offers an opportunity to the County of Albemarle to enrich its future while preserving its past and to make a truly progressive land-use decision. I Weldon Cooper Center for Public Service, University of Virginia. Adaptive Reuse of the Old Crozet Elementary School Ina 1994 survev of Crozet area residents, 76% of respondents said their top concern was "preserving a small-town feeling." In the same survey. 75% of respondents said the County should work to "protect the identity of a small town." 2 Yet Crozet is an Albemarle County designated growth area. Through adapting the Old Crozet Elementary School for the public use of Crozet and western Albemarle County, small-town character and vibrancy can be preserved in the wake of substantial growth. The County has the potential, through decisions regarding the future use of the Old Crozet School. to take important steps toward creating and maintaining the vitality of this small-town community. 2 Crozet Community Study, Appendix: "Crozet Community Association 1993 Community Wide Survey", 1995. Adaptive Reuse of the Old Crozet Elementary School II. GUIDING ELEMENTS OF THE ALBEMARLE COUNTY LAND USE PLAN AND CROZET COMMUNITY STUDY While we present many reuse scenarios for discussion in this report, several major issues and planning recommendations consistently come to the surface. The following components of the County of Albemarle Land Use Plan and the Crozet Community Study should guide decisions regarding the future use of the Old Crozet Elementary School. The 1996 County Land Use Plan specifically recommends that planners and other officials "[u]tilize the recommendations of the Crozet Community Study as a guide for future development of the area." The Land Use Plan and Crozet Community Study (1995) therefore are designed to work in tandem towards common community development, preservation, environmental and quality-of-life protection goals. The most important recommendation of both these plans is that section in the County of Albemarle Land use plan which states, Maintain the Old Crozet Elementary School as a public building for use as a school or other public uses as necessary. Other pertinent recommendations include the following: · Priority should be given to locatingpublic and semi-public facilities on County-owned land in County-owned structures. (Crozet Community Study) The location of new facilities to serve Crozet and the surrounding rural population should be located within the Crozet Community Boundary when practical. (Crozet Community Study) · Encourage new commercial development in downtown Crozet through redevelopment, reuse of existing structures, and infill development. (County of Albemarle Land Use Plan) New development and improvements will de-emphasize the automobile both visually and functionally, and a~'chitectural and site design will reflect traditional building styles and the historic townscape. (Crozet Community Study) · Related or complementary services should be located in one complex when possible. (Crozet Community Study) · Support and further emphasize the development of the Community in a manner consistent with the wishes of the citizens of Crozet. (Crozet Community Study) · Create a downtown that not only preserves but celebrates its historic resources. (Crozet Community Study) Adaptive Reuse of the Old Crozet Elementary School The Crozet Community needs several public facility improvemems. The Post Office. while located in the community center, suffers from inadequate parking and dangerous traffic circulation patterns. In addition, the regional library branch, currentlv housed in the old train stgtion at the commumtv's center, has outgrown that space. (Discussed in both the Crozet Community Study and the County of Albemarle Land Use Plan) Limit the amount of development that will occur in the Parrot Branch watershed. The School is located within the watershed of Parrot Creek, a tributary, of the community water supply, Beaver Creek reservoir. The School therefore is outside the watershed served by the Lickinghole Creek runoff control basin recently constructed to protect surface and groundwater resources from development impacts within the designated growth area. Although the area of the school is served by water and sewer and zoned for residential development, it is not part of the designated growth area. (County of Albemarle Land Use Plan) Adaptive Reuse of the Old Crozet Elementary School III. GENERAL PLANNING ISSUES TO CONSIDER WHEN PLANNING FUTURE USE OF THE OLD CROZET ELEMENTARY SCHOOL This historic school building is an psychological link to the past. a sentimem expressed bv new and established residents alike. A recent survey by the County has identified this site and the Village of Crozet as potentially eligible for Federal, State and Local historic designation. Historic designation also presents opportunities for income tax incentives proportional to renovation costs. These incentives are not available for publicly held property. However. creative public-private partnerships can result in opportunities to take advantage of these incentives. The building was designed as a school house and has been an asset to the community as public-Use space since 1924. To find a way to continue to utilize this building for public-use purposes makes sense and conforms to recommendations in the County of Albemarle Land Use Plan and Crozet Community Study. While the County's school-age population projections do not indicate an immediate need for additional school space, the School may be a valuable asset to the County's land and building inventory since Crozet is a designated growth area and should expect constant growth. The building could be "banked" for future needs of the County and obviate the need to acquire new land and construction costs in the future. The maintenance, renovation and possible addition to the building for use as a school or other community uses addresses many planning issues facing Crozet and Albemarle. County. Any decision to mothball the building for later use is certainly a cost- effective decision when compared to the overall expense of acquiring a new site and constructing a new school or public-use facility in another location. In addition to financial costs, the County should consider the potential for open-space loss and agricultural land loss sure to occur if new facilities are constructed on land peripheral to the village center. The potential effects of decentralization of the community into sprawling, auto-dependent sites and uses must be considered. Any responsible decision regarding the use of the 0Id Crozet Elementary School will be made with the commitment to establish the building as a site contribUting to the public life of Crozet and the County. Crozet is part of a cohesive community serving Western Albemarle County. Decisions regarding the future use of the School and its site not only provide opportunities (and possible detriments) to Crozet but to'the western county community as well. Potentially deterimental impacts should be identified and decisions resulting in such impacts should be avoided. A commitment to that community would reflect understanding of and adherence to specific recommendations made in the Crozet section of the County of Albernrnarle Land Use Plan. as well as those recommendations made in the Crozet Community Study commissioned by the Albemarle County Department of Community Planning and Development. Adapttt,e Reuse of the Old Crozet Elementary School IV. CROZET SCHOOL CONTEXT AND FACILITIES Context The Old Crozet Elementary School sits on SR 810. 1/3 mile from the downtown crossroads of US 240 and SR 810 (Crozet Avenue). The School is situated within the community boundary proposed in the 1995 Crozet Community Study but is situated outside the Study's proposed Growth Area Boundary. This Growth Area Boundary is drawn along ridge lines separating watersheds with the goal of focusing developmem in the Lickinghole Creek watershed. Across the street from the Old School is the new Crozet Elementary School, completed in 1991. The school grounds and area surrounding the school on the west side of SR 810 are zoned by the County as R-2 Residential. The school is served by municipal water and sewer infrastructure, as well as sidewalks and tm-lanes from SR 810. Building and Grounds The original, 1 O-room portion of the Old Crozet Elementary School is a brick .structure in the Colonial Revival style. The pilasters are brick with concrete caps and bases, and the central portico has Doric columns on raised brick bases. The metal roof is worked to look like Spanish tile. The building is one-story, with a basement level that is visible from the rear. An addition to the rear of the building, made in 1934, is one-story, but built in two split-levels to accommodate the sloping ground (see Appendix). The grounds encompass 5.399-acres, currently developed with a playground, open space, and a parking lot. In the rear and to the south, the lot is bordered by Parrott Creek and residential neighborhoods. To the north on Route 810, development becomes more sparse because of the County's discouragement of growth outside of the Lickinghole Creek runoff basin area. The total square footage of the building used for the purposes of this report is 25,250 square .feet. Adapt~ce Reuse of the Old Crozet Elementary School V. THE OLD CROZET ELEMENTARY SCHOOL, 1924-1997 Crowded classrooms are nothing new for the town of Crozet. In 1923. the 1907 Crozet School. which accommodated elementary and high school classes in 4 classrooms and the auditorium, had been outgrown; the auditorium had been partitioned for high school classes, the administrative offices were being used for small classes, and the sixth grade met in the Baptist Sunday School building. This building was the first brick school building in Albemarle County and had served as a school for only 16 years. In 1924. for $35.000. just slightly more than the current annual (and greatly subsidized) rent paid by the Crossroads Waldorf School for use of the building, a new, 10- room school was completed to house grades one to eleven. This. the current Old Crozet Elementary School/Crossroads Waldorf School, was the fourth incarnation of the Crozet School.3 When the Old Crozet Elementary School was built in 1924, its capacity was 345 students. Ten years later, the building was expanded to accommodate another 140 students. In 1961, the 1907. brick Crozet School was demolished to make way for a parking lot.4 At the time. the school taught all of the white children in Crozet and the surrounding area. Black children were schooled in a small, one-room, wood-frame school house in Crozet which had cost the county $2000 to build only 6 years earlier. The School Board minutes relate on April 8. 1924, "The [school board] members expressed themselves very much pleased with the new building."5 Ten years ago, the town of Crozet and County of Albemarle made the decision to condemn and purchase 19 acres of prime farmland directly across the street from the Old Crozet Elementary School and outside of the growth boundary, drawn to preserve an already over-burdened watershed, for the site of a new elementary school. Today, the old school, housing a struggling but growing private school that, it is often pointed out, removes 200 students from the over-burdened county school system, sits perched on a ridge overlooking the bustling construction of a new addition to the new school completed in 1991. Not everyone was in favor of building the new school. When the Building and Planning Committee began meeting to discuss different options, a memo stated that, "that the 'old timers' in the community would strongly support renovation of the old building while the 'new comers' would be much less distressed by the' loss of the old building.''6 The sentiment expressed in this statement mav have led to the final decision not to demolish the old building. It is a lament heard in many small, rural communities that are experiencing quick and constant growth. There is a disconnect between the "new comers" and the "old timers", but both groups want their children to have a meaningful education. Often that sense of responsibility seems best served through a new building, and the sentiments of the "old timers" are dismissed as purely emotional, nostalgic, or simply short- .sighted. 3 Derelopment of Public Schools in Albemarle County Area from the late 17 hundreds to 1976: A Bicentennial Project of the Retired Teachers'Association of the County of Albemarle. RTACA, t 976. 4 Meeks, Steven G. and Ray Page McCauley. Crozet: A Pictoral History. Meeks Enterprises, Inc..: Crozet. VA, 1983. 5County of Albemarle School Board Minutes, April 8, 1924. 6Letter from Richard Rife, Smithey & Boynton to David Papenfuse, November 26, 1986. Adaptivg Reuse of the Old Crozet Elementa~ School In 1987, the decision to build a new school was based on the findings of a facilities report that evaluated the following three options: renovating and expanding the existing school, demolishing the existing school building and rebuilding on the same site, or building a new school elsewhere. The report recommended a new building on a different site based on cost estimates that showed that the cost of a new building, $2.967,858, was comparable to the cost of renovation and a new addition at $2.891.9787 and based on the inadequacies of the site and structure. The playground was too small and not designed for modem sports, the auditorium could not be used for regulation basketball, and many classrooms could not be easily enlarged to the state-mandated size.8 The cost estimates had a few flaws. First, the estimated cost of new construction did not include the purchase of land, which was grossly underestimated even when it was finally considered. Second, 10% of the estimate to renovate the old school building, $378,500, was the cost of an air conditioning system (stating that "opening windows...permits outdoor noise, insects, and other distractions to enter the classroom environment"9). The school was designed for efficient energy-use with sunny classrooms that stay warm .in the winter and large windows to allow ventilation in the summer. Third, it was estimated that the renovated building would have a useful life expectancy of only twenty years, while a new one would last fifty years~0. The Old Crozet Elementary School has been used as a school for a number of years since that statement with only required maintenance. Enrollment was of some consideration in the recommendation to build a new school, but the old school was by no means at or near capacity at the time of the decision. In 1987, the projection for the year 2002 was 290 students~; the capacity of the old school, even taking into account classrooms which were smaller than the state mandated size, was 340 students, t2 The 1987 report suggested that the new school should be built for 450 students, estimating that this capacity would not be met for 50 years (see figure 1). The planning staff was cited in the report stating that the majority of the area's growth would occur in nearby Ivy rather than Crozet.~3 Now, Ivy's elementary schools are anticipating a decline in enrollment.~4 By June of 1988, officials had already realized their error in not accounting for massive growth and asked the architectural firm of VMDO & Associates to alter the design to accommodate 150 more students, only to be refused by the architectural firm, who replied, While the design at present provides for the possible future expansion of the 450 pupil school, as you have stated it should, the design for a school initially accommodating 600 pupils would have followed a different program and would have resulted in a substantially different building. Classrooms can be 7Crozet and Brownsville School Districts: Facilities Study. Smithey & Boynton Architects, 1987 p. 18-23. 8Facilities Study, p. 32-34. 9Facilities Study, p. 15. ~°Crozet Elementary School Bulletin to Parents, February 1, 1987. I 1 Facilities Study, p. 5 12Facilities Study, p. 7. 13Facilities Study, p. 3. ~4Telephone conversation with A! Reaser, Director of School Buildings & Facilities, 4/29/97. Adaptive Reuse of the Old Crozet Elementary School added later to accommodate more children, however, the design of a school is just not like buying rope. where you reel off'as much as you want and cut it: it is a bit more like mixing a cake. where it is important to mix in all of the ingredients at the right time. 1 -~ In 1,991. the new school finally opened its doors at a cost of $3.646.500. including $333.500 for the 19 acres of land, at a capacity of 450 with a regulation-size basketball court, but with no auxiliary classrooms for classes such as music, art, or computers. By 1993, the official capacity had decreased to 330 students (smaller than the old school) because of a county-wide change in teacher/student ratio from 1 to 25 to I to 22. and the use of three classrooms for the auxiliary classes. With an enrollment of 379 students for the 1996-1997 school year, classes are held in mobile trailers while a $805.412 addition is built. The addition will bring the capacity to 400 students, but the current projection for 2002 is 415 students. ~6 The addition will be full in less than five years. The.memory. of the 1924 Old Crozet Elementarv School is still very much alive, and there is great interest in its future. The last sixth grade class graduated from high school this year. and the Crozet Community Study recognizes its significance in the town. Figure 1 Corn parison of 1986 Projections to Actual Enrollments as of 1997 Actualor 1987 Year 1997 Pr~ection Variation 1995/1996 375 270 -39% 1996/1997 363 273 -33% 1997/1998' 380 276 -38% 1998/1999' 396 278 -42% 1999/2000' 399 281 -42% 2000/2001' 406 284 -43% 2001/2002' 415 287 -45% Projected Enrollment Sources: Albemarle Coumy Final Enrollment Projections FY 97/98 to FY 01/02. County of Albemarle Board of Education. Crozet and Brownsville School Districts: Facilities Smd. v. Smithey & Boynton Architects. 1987 15Letter from Daniel J. Simpson, Jr. of VMDO Architects to William Sugg, Director of Facilities Planning, Albemarle County Public Schools, June 6, 1988. 16Telephone conversation with A1 Reaser, Director of School Buildings & Facilities, 4/30/97. Adaptice Reuse of the Old Crozet Elementa~ School VI. GENERAL RECOMMENDATIONS FOR FUTURE USE lO 1. General Recommendations Because of its proximity to downtown, its history of public use. and its significance as a community landmark, the Old Crozet Elementary School is well suited for use as a public facilitv to serve Crozet and the western portion of Albemarle County. Reuse as a public facility directly meets priorities and goals for downtown revitalization, resource protection, and preservation of scenic and historic resources expressed in both the County of Albemarle Land Use Plan and the Crozet Community Study. Reuse of the School for public use makes financial sense, and will mitigate economically and environmentally destructive decentralization (sprawl) of the Crozet community. In general figures. renovation of the building could cost about $2.2 to $2.5-million. while complete demolition could cost around $344,000.x7 As stated before, the cost of demolition does not include the cost to the communit3, in lost resources. The reuse of the building can be accomplished through county ownership and public use or sale to a private interest. If a use for the building does not readily present itself, maintaining the building "as- is" should be considered next, and demolition should not be considered unless unseen barriers to reuse present themselves. This reuse could be manifested in many ways. Listed below are possible reuse options for the Old Crozet Elementary School. Following will be detailed looks at the pros and cons associated with each reuse option. The reuse scenarios can be combined to effectively use the building. 1. Public-Use Options A. Establish a Crozet and Western Albemarle County Community Center, incorporating a library, meeting space, arts and theater space, and outdoor facilities such as playgrounds and fields, as well as a site for community festivals, community events, Farmer's Market. amphitheater, or pavilions. B. Establish as larger Crozet Branch of the Jefferson-Madison Regional Library. C. Renovate, Expand, and Re-establish as a County School to serve a growing school-age population. D. Create satellite offices fbr Albemarle County: administrative, social services, health department. E. Develop the school into a larger Crozet Post Office. F. Mixed-use options--Public/private partnerships and combined use: (1) Office space for small local business in conjunction with public uses in other parts of the building 17 Calculated using estimates found in the Greenwood School Analysis produced by the County of Albemarle Department of Engineering and Public Works, 1995. Adaptive Reuse of the Old Crozet Elementary School (2) Additional space for a countv owned daycare facili~ rented to private operation, again in possible combination with public uses in other parts of the renovated/expanded building. (3) Artists' Center akin to Charlottesville's McGuffey Center. where artists rent building space from the government-owned facility. G. Continue to lease County-owned building to private school. 2. Sell to Private Interest A. Renovate for use as housing: (1) Sell to investors/developers at below-market rate for development of affordable housing. (2) Sell to investors to establish market driven medium to high income housing. B. Sell to party interested in use of building as a private school. 3. Hold/Maintain Building for Future Needs and Uses 4. Demolish Existing Building A. Demolish and Construct new public use facility on the school site or convert to a park. B. Demolish and sell land for residential development (school site is zoned R-2 residential). Adopuve Reuse o[ the Old Crozet Elementary. School 2.' General Cost Considerations for Renovation 12 The estimated cost for renovations is approximately $2.2 to $2.5-million. This costing is evaluated for a school-use budget and may not fully represent costs for specific Private or office uses. and thus should be viewed as a broad benchmark only. In addition, a budget amount of $100.000 to $150,000 should be allocated for architectural design and engineering fees. Figure 2: Crozet School General Renovation Estimate 1997 SUB COST SQ. FT. TOTAL SQ.FT. COST COST DIVISION I: GENERAL CONDITIONS 333.155i '13.19 G.C. Profit and OH. 10% of Cost 187,437 7.4~ Cut and patch 2% of Cost 37,487 1.48 Dust protection 2% of Cost 37,487 1.48 Protect Existing 1% of Cost 18,744 0.74 Site Supt. 52,000 2.06 DIVISION 2: SITEWORK · 215.484 8.53 Site Work/Gradin~Misc. 40.484 1.6(1 Demolition 100,00C 3.96 Waterproofing 50,0012 1.98 Paving 25,00C 0.9§ DIVISION 3: CONCRETE 6.900 0.27 Misc. Sidewalks 6,901~ 0.27 DIVlSlON 4: MASONRY 45.00(] 1.71 Point Up Brick/Repairs 45,000 1.78 DIVISION 5: METALS 27,60C 1.09 DIVISION 6: CARPENTRY 113,16t2 4.48 Interior/Exterior Wood Working 113.160 4.48 ~ DIVISION 7 THERMAL AND MOISTURE PROTECTION 2], -~" 8.09 Metal Roof Shingles-Replace/repair/paint 6,000 0.24 Remove Old Roof 20,000 0.79 :lat Roof 141.622 5.61 Gutters/DownsPOuts/Scuppers 25,000 0.99 Insulite- walls and Ceilings-Old Section 11,750 0.47 It... DIVISION 8: WINDOWS AND DOORS__~'--_94'600 ~7~.~ 3.75 New Doors and Hardware 35,000 1.39 New Windows 44,600 1.77 Repair/Reglaze Addition Windows 15,000 0.59 DIVISION 9: FINISHES 189,050 7.49 New Acoustical Ceiling-All 75,00C 2.97 New GWB Walls-Old Section 13.0012 0.51: Vinyl Tile Floor 27.5012 1.09 Wood Floor Refinish 21,0001 0.83 Ceramic Tile at Baths 17,550 0.70 Paint-Interior/Exterior 35,000 1.39 DIVISION 10: SPECIALTIES 21,9001 0.87 Flagpoles, Chalkboards, Etc. 21,900 0.87 Adaptive Reuse of the Old Crozet Elementary School DIVISION 11: EQUIPMENT 50,000 1.98 Kitchen Equipment/Renovation 50.000 1.98 DIVISION 12: FURNISHINGS 16.56C 0.6¢ Blinds, Misc. 16,560 0.66i DIVISION 13: SPECIAL CONSTRUCTION 0 0.00 DIVISION 14: CONVEYING SYSTEMS 15,00C 0.59 Elevator for ADA 15.00C 0.59 DIVISION 15: .MECHANICAL 705,000 27.92 IHeating/Cooling-New 500,00¢ 19.80 Plumbing 135.000! 5.35 Fire Protection/Sprinkler 70,000 2.77 DIVISION 16: ELECTRICAL 169,740 6.72 Demolition and Replace with new 169,740 6.72 RENOVATION SUBTOTAL 2,207,521 87.43 CONTINGENCY 15% 331,128 13.1 I RENOVATION TOTAL 2,538.64~ w-.> 100.54 /5¢ Construction Estimate These values are derived from current estimating guides, historic values, and conversations with experienced persons. These values merely represent a guide for further discussion, not quotes. Any final decision to proceed with work based upon this information should be made only after consultation with a professional estimator or general contractor. The needed physical repairs to the building are described in the Crozet and Brownsville School Districts Facilities Study, conducted in 1987 for the County by Smithey-Boynton of Roanoke. For the most part these descriptions are comprehensive, but several issues need revisiting. Revision of the scope of work will most certainly affect the overall budget, but in a project of this scale and given the broad manner in which the estimate was derived, individual line items should not be omitted in the interest of reducing cost. Cost will not be finalized until a complete and professional evaluation and bids are completed for a specific future use. In broad estimating, as in this report, often some numbers are high while others are low. These highs and lows tend to balance one another and thus represent, as an aggregate, a reasonable cost estimating guide for the project. There will be unforeseen conditions affecting the cost of renovating this building, as there are in any project of this type. Division 1: General Conditions This section includes accounting for the builder's cost of doing business and some of the miscellaneous overhead and site costs associated with the completion of the work. These values are based on typical industry standards of percentage of estimated cost. Adaptive Reuse of the Old Crozet Elementa~ School 14 Division 2: Sitework/Demolition This section accounts for the necessary demolition to remove the materials that will be replaced in the renovations. In this estimate, the interior of the original Old School will be completely gutted down to bearing wails and interior partition framing. Ceiling and wall framing will be exposed for new GWB and acoustical tile. This will remove all loose plaster and furring and eliminate any concern for lead base paint on interior surfaces. This will expose all framing structure to allow for examination and repair as necessary, and complete rewiring, new mechanical system, and plumbing rough-in as needed. The condition of the structure will require complete excavation of the perimeter and installation/application of waterproofing pipes and coatings. This will alleviate the damp condition and deterioration experienced in the sub-grade level. The cost involved in resurfacing or reworking the parking lot and driveway is included. Division 3: Concrete This section included concrete work at minor sidewalks and landing work required. Any necessary structurai concrete work for underpinning or structural repair due to unforeseen conditions would presumably be covered under the Contingency provision. Division 4: Masonry This section allocates funds for the complete point up and repair of the exterior masonry surface, including parapet wail coping, sills, repair of racks at new and old section, and cleaning. Excessive rework and structural demolition and replacement due to unforeseen conditions would be covered within the Contingency provision. Division 5: Metals This is a 'ballpark' estimate to cover miscellaneous metal rails--new and repairs--and minor structural steel and field work for strengthening or increasing openings at masonry bearing walls. Major rework and replacement of structural steel due to unforeseen conditions would be covered within the Contingency provision. Division 6: Carpentry This section allocates funds for the instailation of new windows, doors, trim, repair to exterior cornice at entrance, stair and rail repair, cabinet installation and miscellaneous labor and materials during the course of the project. The construction of ramps at the interior stair and at the exterior entries for handicapped access can be accommodated through the carpentry work. Division 7: Thermal and Moisture Protection This section allocates funds to replace or repair the mission tile metal roof and repaint it to match original color scheme and appearance. Installation of new flat roofing at the new and old structure where appropriate. Replacement of all gutters, downspouts, scuppers, collector boxes, flashing and roof vents. Complete insulation of the ceilings and exterior walls of the original structure. Adaptive Reuse o[ the Old Crozet Elementary School 15 Division 8: Windows and Doors This section allocates funds to completely remove and replace all doors and windows with new. The windows are to be wood or clad to replicate the original appearance and lite pattern of the original. Funds should be spent as to acquire quality, long-life units; Pella. Marvin or equivalent. New doors are to be installed at the interior and exterior to accommodate ADA requirements and security needs. The complete replacement of doors and windows again removes the lead painted surfaces from the building entirely, eliminate that concern entirely from future attention or cost. There is an amount allocated for any necessary, repair or reglazing of the windows in the Addition. These windows will not be replaced. Division 9: Finishes This section covers the installation of new GWB wall surfaces at the original structure, installation of new acoustical ceiling throughout, installation of new vinyl tile flooring and refinishing of the wood floor in the original section, new ceramic tile in baths after reconfiguration for ADA requirements, and complete painting of the interior and exterior wood, windows, metal and wall surfaces of the building. Division 10: Specialties This section is a ballpark number to cover incidental special items such as bulletin boards, chalk boards, signs, etc. Division 11: Equipment This section allocates funds for new Kitchen facility and system if required. The number was derived by using $50 per square foot of Kitchen floor space. Division 12: Furnishings This section allocates a ballpark value for window blinds, stage curtains and miscellaneous furnishings. Division 13: Special Construction Not used. Division 14: Conveying Systems This section allocated estimated funds for a small handicap accessible elevator for accessing the basement level. Division 15: Mechanical System This section includes the complete replacement of the heating system and installation of a cooling system for the building. This estimate experienced the most fluctuation form available sources depending upon type of system, fuel, distribution system and design. This estimate offers a reasonable budget although also provides room for a significant adjustment of the budget with complete value and cost-engineering. Additionally, this report recommends that the clerestory windows in the central hall be exposed and made accessible to use natural ventilation to cool the building during warm weather. The 1987 Smithey Boynton Report argues against this method due to insect and noise problems. These conclusions are invalid and the examination of this natural cooling system offers costs savings and sustainable design opportunities for the building. Adaptive Reuse of the Old Crozet Elementary School 16 This section includes the reworking of the plumbing system to modemize the piping, repair and replace as needed, construct new bathroom that meet ADA with new fixtures and space requirements. This section includes installation of a fire suppression sprinkler system in the building. This will alleviate any concerns a about original wood structure and surfaces in the building and provide for the safety of all occupants and the structure itself. Division 16: Electrical This section include the complete reconstruction of the electrical system; new service, new wires. new outlets and switches and new lighting. The installation of speakers and sound systems, fire alarms, telephone, cable TV, computer circuitry and emergency lighting. With the demolition of the interior surfaces this work should be easily accommodated as new work in exposed wails and ceilings. Additionally the natural lighting of the existing design facilitate a minimal need for daytime artificial lighting. By restoring blocked in window openings, replacing windows with new to match original, this efficient use of natural lighting should be accounted for in the design of new lighting. Also, the beneficial cost savings of reduced artificial lighting needs will offer costs savings and sustainable design opportunities for the building. Contingency This section allocates 15% of the estimated cost to account for overruns and to cover fluctuation in the market-place, unforeseen conditions, and estimating errors. Conclusion This cost estimate offers a probable value to accomplish the stated renovations. In certain scenarios and in the decisions of the County less work may be decided upon, but presumably not more, therefore this value should be viewed cautiously as a possible extreme estimate for complete renovation. There are no provisions accounting for major regrading, athletic fields, play grounds, park facilities, or landscaping. Costs for certain divisions would be experienced in any reuse scenario, particularly roofing, mechanical and electrical work plus corresponding general conditions. These divisions alone account for approximately $1-million of the estimate and would presumably have to be accounted for to accomplish the' minimum work required to properly renovate this building. While a minimal effort may appear on the surface to be the "path of least resistance," this building is old and in need of maintenance now. Deferiment of needed renovations will only delay the inevitable. If this facility is to function fully and with a healthy continued and extended life span, full effort should be' made. The costs stated are only a broad guide. With value engineering, shrewd pricing and clarification of scope, savings potentials do exist. The County specifically asked three questions during the course of this report: 1. Can we estimate the cost of a lead-based paint abatement only? 2. Can we estimate the costs of complying with ADA accessibility? 3. Can we estimate the cost to develop more athletic fields on the site? Adaptive Reuse o[ the Old Crozet Elementary School Responding to each of these is difficult in the broad estimating capacity we are using and finite numbers for small finite tasks are more difficult and potentially dangerous as "guestimates" without contractor involvement and a complete scope of all work. The County Engineering Office has on file a bid (Dalis Painting, Inc., August 1996) for $32~435.00 to complete lead paint abatement and repainting. The scope should be qualified and competitive bids with specific schedules requested. The costs of installations to comply with ADA requirements are difficult to evaluate without specific quotes. There are agencies available to advise on specific needs and solution methods. This type of consultant should be contacted, a scope of work qualified and competitive bids requested. The cost of developing more athletic fields on the site can equally be quantified in a specific scope of work following design parameters from a site engineer and competitive bids requested. Adapt tve Reuse of the Old Crozet Elementary School 18 3~ Potential For and Impact of Historic Designation The Countv and the State Department of Historic Resources have completed the preliminary review for designation of the Village of Crozet as an historic district. The School is in the district and could be eligible for designation as part of the district or as an individual building. The designation process is clearly enumerated by State and Federal guidelines. Mark Wagner at the State Department of Historic Resources and Mary Joy Scala in the Albemarle County Planning Office are resources for this discussion. After approval by the State and Federal Boards the designation would then be reviewed and approved locally. There are Federal and State restoration tax credits available to any private entity restoring a designated historic site or structure that is held for profit-generating purposes. Designation may offer protection for the site as well as financial incentives to any potential investor. The guidelines for Federal or State tax credits for rehabilitation of historic structures require work to be completed in compliance with the Secretary of the Interior's Standards for Rehabilitation. In addition, tax credits are available for renovation of non-historically designated structures constructed prior to 1936. The guidelines for renovation under this tax incentive program are less stringent, however the benefits are correspondingly reduced. In Virginia, a special allocation from the State General Assembly is the only form of financial assistance available to public municipalities for renovation of a historic structure. Procurement of such funding, given the spending tendencies of the current General Assembly, is unlikely. Albemarle County could consider a public-private partnership, selling the property to a party interested in carrying out a sympathetic renovation. Tax incentives can be realized through transfer of the property to a private interest, and the property can then be leased back to the County for public use. John Wells of the Virginia Department of Historic Resources is a recognized expert on tax incentives and funding opportunities for designation and renovation of historic structures. Adaptive Reuse o[ the Old Crozet Elementary School VII. SPECIFIC POSSIBILITIES FOR REUSE: PROS AND CONS 19 1. PUBLIC-USE OPTIONS A. Crozet/Westem Albemarle Community Center B. Crozet Branch-- Jefferson-Madison Library C. County Public School D. County Satellite Offices E. Crozet Post Office F. Mixed Use Options: Public-Private Parmership G. Lease to Private School A. Renovate and Establish as a Western Albemarle County. Community Center Currently, Crozet does not have an adequate, centrally-located community center for public meetings, arts and theater, farmer's market, library, and other community uses and events. The growing community can always use more public field and recreation space, which exists amply on the 5.399-acre site. This scenario can be described as the "catch-all", because any of the other mentioned public uses can be consolidated in many different ways to create a multi- use community center. For example, the School could conceivably house a library, public theatre, and meeting space simultaneously. Financial challenges posed by the renovation/expansion/maintenance of the School may be assuaged through the sale of the current Library in the Old Crozet C&O Railroad Station. The 1997-1998 real estate appraisal valued the site at $268,40038 While downtown public facilities should be first considered for continued public use, this train station is small (2,543 sq.ft.) and could afford great potential to the downtown in private ownership (office. restaurant, retail space). Funds could be utilized to facilitate a larger library and other community-use space in the Old School. Pros Of.Reuse as Multi-Use Community Center: + The School, with its classroom space, kitchen, and auditorium/stage affords possibility for many public/community uses under one roof. + Theater performances and public/club/organizational meetings can be held in either the auditorium 'or in classrooms. + After-school or summer enrichment classes and arts endeavors can take place in the many classrooms. + Community athletics and other organized or unorganized recreation can be accommodated on the established playgrounds and fields surrounding the school building. 18 County of A lbemarle 1997/1998 Real Estate Appraisal, Crozet Library. Adaptive Reuse of the Old Crozet Elementary School 20 4. Both outdoor and indoor spaces could support community gardens and/or a regularly scheduled farmer's market. + The larger school building offers more space for the Crozet Branch of the Jefferson- Madison regional library, which has outgrown its currem home in the downtown train station and needs additional space to serve a growing community.. Outdoor space affords opportunity for summer events, festivals, concerts. Cons of Reuse as a Community Center: - Expense of renovation and maintenance borne by the County, with relatively small financial return from use as Community Center. Without charging rent for the space. Albemarle County will likely need to subsidize the building for this use. (Albemarle County must allocate funds in the budget for renovating/maintaining/expanding building as a community center.) - Because of the aforementioned cost-effectiveness problem, the Crozet Community may have to purchase the school and grounds and undertake the expense of renovation if the community wants to convert the school building solely for Crozet Community use. This would likely require considerable fundraising to procure the funds to acquire and renovate the building. This option is probably untenable for the Crozet Community, leaving that community which houses the school with little leverage with regard to the school's future use. - If the community center were to be located in the Old School it could, because of its distance from downtown Crozet, contribute to further decentralization of the downtown as the core of public activity. However, this concern may be addressed in that: (a) With proper physical connectivity (facilities planned, constructed, improved to encourage pedestrian movement between downtown and the schools area), the school can be part of downtown and not peripheral. (b) As Crozet grows the downtown may expand and/or change shape, with the Old School location conceivably becoming closer to or part of the central downtown core. - School's location adjacent to residential neighborhoods may trigger opposition from these adjacent residents to intense community uses (noise from concerts, traffic, etc.) on the site. Adaptit~e Reuse o£ the Old Crozet Elementary School 21 B. Renovate and Establish as Larger Crozet Branch of the Jefferson-Madison Regional Librao' Currently, the Crozet Branch of the Jefferson-Madison Regional Library is housed in the old train station downtown. Expansion of the librarv to meet the needs of expanding population in western Albemarle is a dual County-commumty goal, yet the old train station now is too small to meet existing needs. The Old Crozet school could be renovated and used to house a larger branch of the regional library. Pros Reuse of Old Crozet School as Library: 4. Increased space for library uses (book storage, computers, etc.) 4. Sidewalk, parking, and turn-lane infrastructure connects the downtown area to the Old Crozet School, which is only 1/3 mile (6-10 minute walk) from downtown. In addition. municipal water and sewer infrastructure is connected to the Old Crozet School. 4. Moves library closer to the new elementary school. Cons Reuse of Old Crozet School as Library: - Moves library further from the downtown core. - Moves library further from the downtown Windham Retirement Center: makes a once walkable facility potentially too far for many seniors to practically and conveniently access on foot. - Increases traffic in the vicinity of the new elementary school. C. Reuse as a County Public School County growth rates averaging 1-3% per year mean an influx of school-aged children, and consequently a need to expand school infrastructure to accommodate the new students (see Figure 3). The Crozet Community Study points out that complete occupation of three new residential developments under construction in 1993 would mean a community population increase of 39%. In the Smithey-Boynton report, projected enrollments for the Old Crozet School were, on average, 40% underestimated (see Figure 1). Current growth policies in the County put school planning in reactive positions, with growth frequently outstripping capacity. For example, the Old Crozet Elementary School was closed in 1991 in favor of the new Crozet Elementary School across the street. This new school's total cost was $3,646,500. Remarkably, the new school was full by 1996. An addition to this new school is currently under construction, with Adaptive Reuse of the Old Crozet Eletnentary School 22 a projected total expense of $805.41219. The new school addition itself is expected to reach capacity by 2002 (see Figure 3), with continued growth .pointing to the need for even more school space. Redistricting students within the County. is a possibility, and is being considered by County school officials, but the continued rise in the school-age population of the Crozet growth area will inevitably result in constant pressure to expand and add school facilities or continuously redistrict. Within the past six years, Albemarle County has literally paved the way for the development of several new residential subdivisions in Crozet. This residential development is an obvious cause for concern for the County Schools, because "once Highlands at Mechums, Crozet Crossing, and White Oaks are completed, an additional 183 (K-5), 67 (6-8). and 39 (9-12) school aged children may reside in the Crozet Community''20 Figure 3: Current and Projected Enrollment for the New Crozet Elementary School 1997 Enrollment Projection Crozet Elementary I Yearly % Change Student Increase Year Projection % Change From 95/96 From 95/96 1995/96 375 0 0% 0 1996/97 363 0% -3% -12 1997/98 380 1% 1% " 5 1998/99 396 4% 6% 21 1999/00 399 1% 6% 24 2000/01 406 2% 8% 31 2001/02 415 2% 11% 40 Current Growth Rate Projected 2003/04 427 3% 14% 52 2004/05 439 3% 17% 64 2005/06 451 3 % 20% 76 ~2006/07 463 3% 24% 88 2007/08 476 3% 27% 101 ~ource: Albemarle County Final Enrollment Projections. FY 97/98 to FY 01/02. County. of Alberaarle Board of Education. From this figure it can be clearly seen that school-age population is expected to grow on the average of 3% per year. With this data in mind, the County can explore the viability of re- using the Old Crozet Elementary School in its original capacity: as a public school building to accommodate a burgeoning County school-age population. 19 Telephone conversation with Al Reaser, Director of School Buildings & Facilities, 4/30/97. 20 Crozet Community Study, 1995, p. 12. Adaptive Reuse of the Old Crozet Elementary School 23 Pros of Reuse as a Public School: 4. The school's proximity to the new elementary school affords opportunities for consolidation of services, namely the coordination of busing and transportation to the community's schools. It also offers relief to the growth demands on the new school: the Old School could become an "upper elementary", housing 4th and 5th grade students, while opening the new school to additional capacity for rising numbers of K-3 students. (At the.same time, the old School would offer ample space for additional 4-5 students). 4. The school's relative proximity, 1/3 mile, to the community core andsidewalks connecting the school and the center allow for safe pedestrian travel between the two points. + Albemarle County. already owns the School and its land. Land acquisition for the new school cost the County $333,500; similar land acquisition for another school would certainly match or exceed this. Such new land acquisition would also likely remove prime agricultural land in the Crozet area from agricultural uses. Such a transfer from agricultural to non- agricultural use would contribute to the decline of farmland acreage in the County and Commonwealth. 4. This building, whether renovated at its existing size or expanded, may significantly meet the space demands borne by a burgeoning school-age population. The Old School is designed for use by 300-plus students with classrooms, auditorium/stage, outdoor recreation space, and kitchen. At the time of its closing, the Old School had an estimated capacity of 340 students.2~ The presence of this additional space may eliminate the political and logistical challenges of redistricting students. 4. Presence of infrastructure, municipal water and sewer connections, sidewalks, crosswalks, turn-lanes, needed to support school. 4. The intangible benefits of returning a historic building to its original use: community pride, positive public relations. Cons of Reuse as a Public School: - Overall expense of renovation/expansion/maintenance for what could mm out to be a relatively small addition to school-system wide capacity (approximately 340 students). According to Jackson Zimmerrnan of the Albemarle County Board of Education, increases in school enrollment will likely result in redistricting to evenly distribute the school-age population. The US Route 29 area appears to possess the strongest potential for a new school. Minor changes to the current east Crozet school district border would presumably address this increasing enrollment. 21 Facilities Study, p. 7. Adaptive Reuse of the Old Crozet Elementary School 24 - If the School were renovated there may be difficulties stemming from separating one elementary school body into two separate, disparately designed buildings that lie across'a street from one another. This difficulty compounds if buildings need to share facilities (i.e. challenge with Old Crozet Elementary students needing new school's gymnasium facility). Separating students physically from one another by a road invites safety and logistical problems and attempts to solve physical separation problems may result in more problems, such as the logistical difficulty of consolidating all students for an assembly in the new school auditorium. However, if the buildings functioned as distinctly separate schools, housing distinctly different age groups (i.e. the New School K-3 and the Old School 4-5 grades), the area could function as a "campus," much like the Greer Elementary/Jack Jouett Middle/Albemarle High complex does at the edge of Charlottesville. - Possible safety and health concerns stemming from the presence of lead paint and asbestos in the Old School building. Financial difficulties associated with remediation/removal of lead paint and asbestos hazards may compromise the building's viable reuse potential as a school. (Complete renovation of the interior is recommended in any reuse scenario). D. Reuse As Satellite Offices For Albemarle County.: Administrative, Social Services, Health Department Albemarle County government and service headquarters are located in the City of Charlottesville. The administrative headquarters in the Lane building (also a former school) is now at capacity, and this County Office Building is, due to its location in the City, not convenient to many rural County residents. Both of these issues could be handled simultaneously through the establishment of satellite County offices and services in the Old Crozet Elementary School. This location would serve the growing western Albemarle/Crozet area, and would at the same time provide additional office space for the County. Pros of Reuse as County Office and Service Facility: + Alleviate space concerns now encountered at the County Offices in the Lane building in Charlottesville. q- Provide a County Office and service location more convenient to western Albemarle rural and Crozet community residents. This takes pressure off of those facilities currently located in Charlottesville. Cons of Reuse as County Office and Service Facility: - Presents potential administrative and logistical difficulties posed by the separation of county services to two locations fifteen miles distant from one another. Adaptire Reuse of the Old Crozet Elementary School 25 - Increased traffic in the area of the new elementary school. - Runs counter to County and communi~' priority of downtown centralization of public services and facilities. Although, with well-thought out and designed physical connectivity to the downtown this potential con can become a pro. - Potential high costs for renovation of building for this use. E. Use as a Larger Crozet Post Office According to the Crozet Community Study, the current Crozet Post Office. located downtown. is beleaguered with inadequate space, accessibility, and safety problems. While it is located in the core of Crozet, parking is inadequate for those who can access Crozet from outlying areas only by car. In addition, drivers must often back into the main downtown road to leave the post office. A Post Office could conceivablv be housed in part of the building, with the remainder used for other public uses. Pros of Reuse as Crozet Post Office: + The Old Crozet School is a larger building than the current downtown post office and could meet the increased needs of the area it serves. The Old School site allows smoother, safer automobile access and more parking spaces. Cons of Reuse as Crozet Post Office: - Makes the post office less accessible to downtown residents and business, especially those residing in the downtown retirement community. - Further decentralizes downtown Crozet through relocation of public service facilities to the more auto-dependent periphery. Again, the potential problems associated with decentralization can be-prevented with sound planning and design for physical connectivity of the Old School to the downtown core. - Traffic increase in the vicinity of the new elementary school. - Potential difficulty in leveraging federal funds to pay the cost of renovation, which likely would exceed the construction of a new post office facility. Adaptive Reuse of the Old Crozet Elementary School 26 F; Mixed-Use Options: Public/Private Partnerships And Combined Use Private and public interests in the Old Crozet School can combine in a variety of shared-cost. shared-use scenarios. The Crozet Communitv Studv includes a section on Public and Semi- Public Services and Facilties that could be referenced for further ideas. Possible scenarios to consider: [1 ] Office Space/Public Use Tandem (Community Center. Library, etc.) [2] Day care/Public Use Tandem (At the time the Crozet Community Study was released in 1995, the closest day care facility to Crozet was approximately ten miles east in Iv3.'.) [3] Artists' Center akin to Charlottesville's McGuffev Center/Public Use Tandem (This Artist's Center could be modeled after Charlottesville's McGuffey Center. a school building owned by the City and rented to artists for work space, performances. and exhibitions.) Pros of Mixed Use/Public-Private Partnership/Combined Use: + Shared-Cost (renovation, maintenance, addition) makes both public and private uses more viable, as no one organization, company, department, etc. would bear the entire renovation, maintenance, and addition costs. This also presents possibilities for use of the historic renovation tax incentive program. + Affords opportunities for mixed or combined use that could conveniently serve the needs of a growing County and community population (day care). + Through sale or lease of part of the building to small businesses for office space, the County could receive some financial return to support the building and the public uses. + Bring economic and/or cultural opportunity to the Crozet Community and western Albemarle County. Cons of Mixed Use/Public-Private Parmership/C0mbined Use: - Potential logistical difficulties in coordinating shared-use between or among disparate public and private uses. - Frequent turnover in private use could disrupt public uses served by the building. - Potential for increased traffic in the vicinity of the new elementary school. Adaptive Reuse of the Old Crozet Elementary School 27 G. Continue To Lease County-Owned Building To Private School Currently, the Old Crozet Elementary is leased by the County, to a Private school, the Crossroads Waldorf School. In the future, this or a similar arrangement could be continued and the school building used into the future for its original purpose. While not serving as a public school, the building could conceivably incorporate public 'County and Community uses through agreements between the County and the leasing private school. Pros of Continued Lease to Private School: Old Crozet School building continues to serve its original purpose. 4. Presence of private school options in the County decreases pressures on the County public school system posed by school-age population growth. County receives some financial retum for what otherwise might be an unused building. Cons of Continued Lease to Private School: - Building maintenance costs borne by the County could exceed rent income. Adaptive Reuse of the Old Crozet Elementary School 28 2; PRIVATE INTEREST OPTIONS In selling the property to a private imerest, the County would relinquish the burden of an aging building but would lose control of the future of a large and conveniently located site. A. Renovate for Affordable or Market Driven Housing B. Sell Building and Grounds to Private School A. Affordable or Market Driven Housing Affordable or Subsidized Housing Affordable housing is acknowledged as a problem in Albemarle County. The majority of residents needing affordable or subsidized housing seek it in the City of Charlottesville, therefore, increasing the burden on the City to provide affordable housing for the City and County. As propeVy and home prices continue to rise in Albemarle. the problem of County affordable housing will only get more pronounced. In the 1970s, the Old Scottsville School--a building with size and design very similar to the Old Crozet Elementary--was converted to apartments by Jordan Development Corporation. Forrest Kerns can be contacted at Jordan Development Corporation for more information about affordable housing, tax incentives, and conversions. The conversion shows that school buildings can be reused for housing. The County could provide much-needed affordable housing opportunities for its residents through conversion of the School to several apartments. The school site is zoned residential. Pros of Reuse for Affordable or Subsidized Housing: + Federal funds are available for renovation of older buildings into affordable housing. Funds are also available for historic preservation. 4. The County currently lacks affordable housing for a steadily growing population--this use would increase opportunity for affordable/subsidized housing for County residents. + Conversion to high density residential--several apartments under one roof--would ultimately save money'and land, as significant amounts of both would be needed to acquire land for affordable housing construction. + Sale to a private developer for creation of affordable or subsidized housing can simultaneously increase affordable housing opportunity for County residents while generating property tax revenue for the County. (If the sale is to a non-profit organization interested in renovating the building for affordable/subsidized housing, there would be no significant tax revenue garnered from the property by the County.) Relatively close proximity of the apartments to the school and to downtown Crozet. Adaptive Reuse of the Old Croze~ Elementa~ School 29 Cons of Reuse for Affordable or Subsidized Housing: - While the Scottsville School was a successful conversion of a school to residential use. the task of converting the Old Crozet School to apartments would likely be extremelv expensive. In that case. the County took on the burden of disposing of hazardous materials and sold the building to the Jordan Development Corporation for $10. Increased traffic circulation on the periphery and in the vicinity of the new elementary school. - The building may not contain enough space to create enough apartments to make a significant impact on the County's need for affordable/subsidized housing and this reuse option therefore may not be viable financially. - The County will no longer hold the site, which is near the downtown core. - Establishing a residential community outside of the designated growth area, no matter how noble or potentially profitable, establishes a precedent that may be difficult to back away from later in similar situations and areas. Market-Driven Medium to High Income Housing The Old Crozet School site is zoned residential and could be marketed for sale to investors and developers interested in renovating the building as high density apartment or condominium- style residences. Pros of Reuse for Market-Driven Medium to High Income Housing: + Concentration of high-density residential development on this site one-third mile from the community core meets land-use goals of the County of Albemarle Land Use Plan and the Crozet Community Study. Building is connected to municipal water and sewer infrastructure. + Sale of the building likely means revenue for the County (property tax) as opposed to expenditure, now currently borne by the County in the form of constant maintenance costs. Cons of Reuse for Market-Driven Medium to High income Housing: - Although the school site is zoned residential, it is not within the County designated growth area. Housing development on the site would not be served by the Lickinghole Creek runoff control basin, and would set a precedent for residential expansion outside the designated growth area, and further residential encroachment into rural areas. Farmland loss and compromised rural character has been the result in similar situations. Adaptive Reuse of the Old Crozet Elementary School 30 - Potential for increased traffic in the vicinity of the new elementary, school. - The County will lose control over the future of a significant building and site for a use that does not directly benefit the general public. - At this time, the market for apartment style housing ~s not strong in Crozet. and this may not be a feasible option B. Sell Building And Grounds To Private School We recommend that Albemarle County maintain ownership of the Old Crozet Elementary School for public use. However, if the County decides to relinquish the School to a private interest, they should consider selling to a buyer interested in using the building as a private school. Pros of Selling to Private School: + Old Crozet School building continues to serve its original purpose. + Presence of private school options in the County decreases pressures on the County public school system posed by school-age population growth. + County receives some financial return for what otherwise might be an unused building. + County could still use the building for public use, through rent arrangements with the private school. + Through sale to a buyer interested in taking responsibility for renovation, the County would avoid renovation costs as well as continued maintenance costs. Cons of Selling to Private School: - County loses building and site close to the downtown core that could be used to accommodate a growing school-age population. - County. loses building and site close to the downtown core that could be used for a variety of other public uses. AdaPtive Reuse of the Old Crozet Elementary School 31 3.' HOLD/MAINTAIN BUILDING FOR FUTURE NEEDS AND USES Albemarle County could simply allow the building to stand empty for the time being until a use becomes apparent. This would eliminate the cost of some maintenance for a time. but when the building was finally used, renovation would probably be more costly. Simply holding the building may be a good option for the short-term, but if the building is allowed to stand empty for too long, it may become an eye-sore, fall victim to vandalism, or fall into irreparable disrepair. DEMOLISH BUILDING Demolition is not a recommended option and should be undertaken only if unforeseen structural deficiencies make renovation impossible. Because of the presence of asbestos and lead paint, demolition of this structure is not an easy option. These materials must be contained and disposed of properly. A. Demolish and Construct Public Use Facility on Site B. Demolish and Sell Site for Residential Development A. Demolish and Construct Public Use Facility On The School Site Pros of Demolishing and Constructing a Public Use Facility On the School Site: 4. If the building is not structurally sound, the County could build a new building for any of thc above public uses and maintain such uses with proximity to the town center. 4. Thc new building could be designed to be ADA accessible and more energy efficient and for a specific purpose. 4. The County could avoid thc costly maintenance of an unrenovated, older building. Cons of Demolishing and Constructing a Public Usc FaCility On the School Site: - The building has been proven to be an important community focal point and has been recommended for historic designation. - The cost of demolition coupled with the cost of new construction exceeds the cost of renovation. Adaptive Reuse o[ the Old Crozet Elententa~ School 32 B; Demolish And Sell Site For Residential Development The School site is zoned R-2 Residential. However, the site is within the Parrot Creek watershed, which is not served by the recently constructed Lickinghole Creek Runoff Control Basin, and therefore is outside the designated growth area boundary. While the land could be sold to private developers or maintained by the County-to develop affordable housing, such use would be in direct conflict with the County Land Use Plan and Crozet Community Study, which recommend that development be contained within the designated growth area. Pros of Demolishing Building and Selling Site for Residential Development: None. Cons of Demolishing Building and Selling Site for Residential Development: - Residential development outside the designated growth area is in conflict with the recommendations outlined in the County of Albemarle Land Use Plan and Crozet Community Study. - Increased traffic in the vicinity of the new elementary school. - The building has been proven to be an important community focal point and has been recommended for historic designation. Adaptive Reuse of the Old Crozet Elementary School 3'_, IX. BIBLIOGRAPHY A. Sources Cited: Albemarle County Final Enrollment Projections. FY 97/98 to FY 01/02, County of Albemarle Board of Education. conversation with Jackson Zimmerman. June 27, 1997. County of .4lbemarle 1997-1998 Real Estate Appraisal, Crozet Library, Old Crozet Elementary School/Crossroads Waldorf School. County of,4lbemarle Land Use Plan, County of Albemarle Planning Department, 1996. County of Albemarle School Board Minutes, April 8. 1924. Crozet and Brownsville School Districts: Facilities Study. Smithey & Boynton Architects. 1987. Crozet Elementary School Bulletin to Parents, February 1, 1987. Crozet Community Study, Crozet Community Study Committee and the Albemarle County Department of Planning and Community Development, 1995. Development of Public Schools in Albemarle County Area from the late 17 hundreds to 1976: A Bicentennial Project of the Retired Teachers'Association of the County of Albemarle. RTACA, 1976. Greenwood School Analysis, County of Albemarle Department of Engineering and Public Works, May 1995. Letter from Daniel J. Simpson, Jr. of VMDO Architects to William Sugg, Director of Facilities Planning, Albemarle County Public Schools, June 6, 1988. Letter from Richard Rife, Stnithey & Boynton to David Papenfuse, November 26, 1986. Meeks, Steven G. and Ray Page McCauley. Crozet: a Pictorial History, Meeks Enterprises, Inc.: Crozet, VA, 1983. Telephone conversation with Al P, easer, Director of School Buildings & Facilities, 4/29/97,4/30/97. Weldon Cooper Center for Public Service, University of Virginia. Adaptive Reuse of the Old Crozet Elementary School 34 B. Further References for Future Work: Carlson, Daniel. Reusing America's Schools: A guide for local officials, developers, neighborhood residents, planners, andpreservationists. The Preservation Press: Washington, DC, 1991. Davis. Judy, Arthur Nelson, & Kenneth Dueker. "The New 'burbs: The exurbs and their implications for planning policy". APA Journal. Winter. 1994. "Economic Benefits of Preserving Old Buildings,"[sponsored by] National Trust for Historic Preservation. Washington, D.C.: Preservation Press, 1982. c 1976. "Federal Legislation and Education in New York State 1997," Chapter IV. The National Dilemma of School Buildings, New York State Education Department. Albany, NY, 1997. Housing Assistance Council. Building on the Past: A Guide to Historic Preservation and Affordable Housing. Washington. DC: HAC, 1988. Jester, T. and Park, S. "Preservation Brief 32: Making Historic Properties Accessible," U.S. Department of the Interior, National Park Service, Cultural Resources, Washington, D.C., 1993. "Rehabilitation Tax Credits: A Taxpayer's Guide," Commonwealth of Virginia, Department of Historic Resources. Richmond, Va., 1997. "The Secretary of the Interior's Standards for the Treatment of Historic Properties," U.S. Department of the Interior, National Park Service, Washington, D.C., 1993. "Virginia's Historical Registers: A Guide for Property Owners," Commonwealth of Virginia, Department of Historic Resources. Richmond, Va., 1995 "Wolves at the Schoolhouse Door: An Investigation of the Condition of Public School Buildings," [a report of the] Education Writers Association. Washington, D.C., 1989. Adaptive Reuse of the Old Crozet Elementary School Contacts: Forrest Kerns, Jordan Development Corporation. Mike Marshall, Crozet Resident and Community Study Co-Author. A1 Reaser, County of Albemarle School Buildings and Facilities. Mary Joy Scala, County of Albemarle Planning and Community Development. Historic Preservation. Mark Wagner, Virginia Department of Historic Resources. Tex Weaver, County of Albemarle Planning and Community Development. John Wells, Virginia Department of Historic Resources. 35 ~tdapttve Reuse of the OM Crozet Elementary School Appendix Photographs I. Crozet Faculty 1924 II. Crozet School 1960 III. Old Crozet Elementary School/Crossroads Waldorf School 1997 A. Front Elevation ~-~ B. Rear Connection Between Original Building and Addition C. Playground and School D. Side Elevation with Two Story Original and Later Addition Adaptive Reuse of the Old Crozet Elementary School A. Front Elevation 1997 Rear Connection Between original Building and Addition 1997