Schools struggle to pay for ventilation
Upgrading ventilation systems is a key way schools can reduce the spread of the coronavirus when campuses reopen, but some districts in California are finding the cost of those upgrades to be insurmountable.
Some districts have recently been able to upgrade their HVAC systems using local bond money. Others hope a newly introduced California Assembly bill will pass and allot extra funding for school facilities. Others are hoping President-elect Joe Biden will push through infrastructure legislation that includes money for schools. But few funding streams are guaranteed, and they may not be sufficient to cover the regular inspections and filter replacements that HVAC systems require.
Because the coronavirus is primarily spread through air droplets, teachers unions and state authorities are urging schools to improve their indoor air quality by installing modern air filters or air purifiers, or replacing their outdated heating, cooling and air ventilation (HVAC) systems entirely. But the costs can exceed hundreds of thousands of dollars, depending on the region, the condition of the existing buildings and the size of the school.
“After roofing, it can be the most expensive project for a school,” said Joe Dixon, retired facilities chief for Santa Ana Unified and a consultant who helps school districts with facilities projects. “But ventilation is important. It keeps kids’ minds fresh, it keeps them healthy. It’s a big issue for any district.”
The state does not keep records of the ventilation systems in California’s 10,000 public schools or which schools might need additional support in funding their HVAC.
In the Woodland District, there is currently over $10 million in unresolved HVAC-related expenses spanning over nine campuses, according to the 2011 Woodland Joint Unified School District Facility Master Plan.
At Whitehead Elementary, $35,000 was needed for new controls for their HVAC system. At Rhoda Maxwell Elementary, $142,436 was estimated for a multipurpose HVAC. Dingle Elementary School had a potential bill of $410,480 for a replacement HVAC at the permanent campus building, and Plainfield Elementary School needed around $539,140 to replace their HVAC throughout the campus,
Campus wide, HVAC interventions were and continue to be needed at Woodland Prairie Elementary for a cost of $1.338,708, SciTech Academy for a cost of $554,344, Douglass Middle School for $1,446,075, Woodland High School for a total of $4,252,276, and Cache Creek High School for $476,448.
It should be noted that these cost estimates given in the plan are nearly 10 years old and not an accurate estimation of current costs.
According to Woodland Superintendent Tom Pritchard, implementation is still ongoing toward completing the next master facility plan. District trustees have approved moving forward with hiring a firm, but the pandemic has made that difficult. There is still no estimate as to when the updated plan will be completed.
The district is looking at ways to support the facilities during the pandemic and beyond.
“Nick Baral is working with his team to do what we can, including making minor repairs and maintenance of our current HVAC systems as well as pursuing higher quality filters,” Pritchard stated late last year. “While we wait for possible Assembly Bill 841 funds, the district will be using its maintenance and operations budget to address any acute needs in the area of HCAV repair.”
While those were shortterm solutions, the newly passed Bond Measure Y, which was on the ballot in November, figures to address those air quality concerns in the long-term.
Gov. Gavin Newsom recently announced a $2 billion plan to reopen schools, beginning as soon as February for younger students and gradually phasing in older grades. His plan, which is optional for schools but includes incentives to participate, calls for widespread testing, contact tracing, masks and other safety measures, including ventilation upgrades.
While ventilation improvements are not required under Newsom’s plan, research shows that well-ventilated, clean air can lessen the spread of the coronavirus as well as other contaminants, including wildfire smoke, dust and air pollution. Clean air can also improve students’ academic achievement, reduce absenteeism and boost health overall for students and staff, according to the Environmental Protection Agency.
For many districts, HVAC upgrades are just one more expense on a long list of needed repairs, said Jeff Vincent, director and cofounder of public infrastructure initiatives at the Center for Cities + Schools at UC Berkeley. Fixing a ventilation system is only the beginning of the investments California needs to make in its aging school buildings, he said.
“Once a vaccine is widespread, it doesn’t mean our school facilities are all of a sudden going to be in wonderful and perfect shape or adequate shape…with many inequities,” Vincent said. “What our research has been showing is that there’s a long-term and persistent underfunding of school facilities.”
Low-income students are more likely to attend schools with poor air quality and with facilities in poor condition, complicating efforts to reopen schools in ways that make them equally safe and all students and staff are protected from virus transmission, he said. As a result, students and staff at those schools face a greater risk of contracting Covid at school, he wrote in a recent report on mitigating Covid transmission in schools.
“Reopening is riskier for low-income students because their facilities tend to be in disrepair and particularly their HVAC,” Vincent said.
Even schools with new HVAC equipment can still have ventilation problems. A study published in January 2020 showed that out of 104 classrooms in 11 California schools, only about 15% met the state’s ventilation standards. The classrooms, surveyed in a joint study by UC Davis and UC Berkeley, were retrofitted with new HVAC equipment within the three years prior to the study. The researchers found that the systems were intact, but the required inspections to keep them in good shape were not regularly completed at each school.
Vincent said the state needs to assess building conditions at every school in order to begin the process of making campuses safe for students and staff.
“Even if we all have vaccines and the virus is almost totally eradicated, there are still thousands and thousands of children going to school every day and sitting in classrooms that have really unhealthy air, or don’t have drinking fountains that all work, or have peeling paint, or are too cold or too hot, or have mold in the walls,” he said. “Those are still negatively affecting children.”
In addition to funds Newsom announced, other state and federal funding is available for schools to make ventilation upgrades, but experts say it’s not adequate to fix all the antiquated or broken ventilation systems in California’s 10,000 schools, said Ian Padilla, a legislative advocate for California’s Coalition for Adequate School Housing.
“(The new funding sources) are good news, but it’s not nearly enough. It’s not a solution,” Padilla said. “It’s a down payment.”
Campus wide, HVAC interventions were and continue to be needed at Woodland Prairie Elementary for a cost of $1.338,708, SciTech Academy for a cost of $554,344, Douglass Middle School for $1,446,075, Woodland High School for a total of $4,252,276, and Cache Creek High School for $476,448.