School Facilities Maintenance Task Force

National Forum on Education Statistics

and the Association of School Business Officials International (ASBO®)

Sponsored by the National Center for Education Statistics and the National Cooperative Education Statistics System

February 2003
U.S. Department of Education

Rod Paige

Secretary

Institute of Education Sciences

Grover J. Whitehurst

Director

National Center for Education Statistics

Val Plisko

Associate Commissioner

The National Center for Education Statistics (NCES) is the primary Federal entity for collecting, analyzing, and

reporting data related to education in the United States and other nations. It fulfills a congressional mandate to 

collect, collate, analyze and report full and complete statistics on the condition of education in the United States;

conduct and publish reports and specialized analyses of the meaning and significance of such statistics; assist state

and local education agencies in improving their statistical systems; and review and report on education activities 

in other countries.

NCES activities are designed to address high priority education data needs; provide consistent, reliable, complete,

and accurate indicators of education status and trends; and report timely, useful, and high quality data to the U.S.

Department of Education, the Congress, the states, other education policymakers, practitioners, data users, and the

general public.

We strive to make our products available in a variety of formats and in language that is appropriate to a variety 

of audiences. You, as our customer, are the best judge of our success in communicating information effectively. 

If you have any comments or suggestions about this or any other NCES product or report, we would like to hear

from you. Please direct your comments to:

National Center for Education Statistics

Institute of Education Sciences

U.S. Department of Education

1990 K Street NW

Washington, DC 20006-5650

February 2003

The NCES World Wide Web Home Page is http://nces.ed.gov

The NCES World Wide Electronic Catalog is http://nces.ed.gov/pubsearch

Suggested Citation:

U.S. Department of Education, National Center for Education Statistics, National Forum on Education Statistics.

Planning Guide for Maintaining School Facilities, NCES 2003-347, prepared by T. Szuba, R. Young, and the School

Facilities Maintenance Task Force. Washington, DC: 2003.

For ordering information on this report, write:

U.S. Department of Education

ED Pubs

P.O. Box 1398

Jessup, MD 20794-1398

Or go to http://www.ed.gov/pubs/edpubs.html or call toll free 1-877-4ED-PUBS

Content Contact:

Lee Hoffman, (202) 502-7356
MEMBERS OF THE SCHOOL FACILITIES MAINTENANCE TASK FORCE iii

MEMBERS OF THE SCHOOL FACILITIES 

MAINTENANCE TASK FORCE

Chair

Roger Young, Executive Director of Business, Haverhill Public Schools, Massachusetts

Members

John P. Bowers, Consultant, Facility Management Consultants, LLC, Belding, Michigan

Edward H. Brzezowski, P.E., Consulting Engineer, Facility Energy Services, Inc., Chester, New Jersey

Janet Emerick, Superintendent, Lake Central School Corporation, Indiana

Mary Filardo, Executive Director, The 21st Century School Fund, Washington, DC

Joan Hubbard, Facility Management Consultant, St. Louis, Missouri

Christine Lynch, Administrator, School Building Assistance, Massachusetts Department of Education

Judy Marks, Associate Director, National Clearinghouse for Educational Facilities, Washington, DC

Patricia Murphy, Budget Administrator, Utah State Office of Education

Frank Norwood, Director, Maintenance and Operations, Katy Independent School District, Texas

Timothy Shrom, Business Manager, Solanco School District, Pennsylvania

John Sullivan, Administrator, School Business Services, Massachusetts Department of Education

David Uhlig, Coordinator, Data Information Systems, Charlottesville City Public Schools, Virginia

Consultant

Tom Szuba, Education Research Consultant, Charlottesville, Virginia

Project Officer

Lee Hoffman, National Center for Education Statistics, Washington, DC

The information and opinions published here are the product of the National Forum 

on Education Statistics and do not necessarily represent the policy or views of the 

U.S. Department of Education or the National Center for Education Statistics.
iv PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

ACKNOWLEDGMENTS

This Planning Guide was developed through the National Cooperative Education Statistics System and funded

by the National Center for Education Statistics (NCES) of the U.S. Department of Education. It is the product

of a collaborative effort between the National Forum on Education Statistics and the Association of School

Business Officials International (ASBO®). It was conceptualized and developed by the School Facilities

Maintenance Task Force of the National Forum on Education Statistics.

Roger Young (Haverhill, MA, Public Schools) served as the chairperson of the School Facilities Maintenance

Task Force. He also initiated and promoted the partnership between the task force sponsors: the National

Forum on Education Statistics and the Association of School Business Officials International (ASBO). Without

Mr. Young’s leadership, this project and the resulting publication of this Planning Guide would never have

materialized. Mr. Young was assisted by project consultant Tom Szuba, who was responsible for the day-to-day

progress of task force activities, including much of the research and writing of this Planning Guide. Mr. Szuba

also managed the final preparation of the manuscript for publication, including overseeing editorial and design

tasks. Lee Hoffman of NCES shared her expertise as both a task force member and project advocate. Her 

contributions were invaluable to the success of the undertaking and cannot be overstated. Oona Cheung of the

Council of Chief State School Officers also assisted with the overall management of this project.

The task force also wishes to acknowledge the efforts of many other organizations and individuals who 

contributed to the development of this Planning Guide. These include Massachusetts ASBO, Michigan ASBO,

Pennsylvania ASBO, Texas ASBO, and the National Clearinghouse for Educational Facilities. Bethann Canada 

of the Virginia Department of Education served as the chairperson of the National Education Statistics Agenda

Committee, which was the task force’s sponsor within the National Forum on Education Statistics. Students in

Katy, Texas, deserve recognition for volunteering their creative skills to draw “maintenance eagle” logos for the

Planning Guide. The submission by Alex Fosnaugh, a student at Mayde Creek High School in Katy, Texas, was

selected for inclusion in the Planning Guide. Marty Taylor edited the document, and The Creative Shop provided

layout and design services.

Finally, the task force would like to express its gratitude to the more than 65 maintenance, operations, education, and other professionals who volunteered their time to review early drafts of the document. These reviews

and site visits provided a “reality check” from users with a broad range of training, expertise, and responsibilities.

Many reviewers contributed their real-world experience from both the school building and school district 

environments, representing education organizations from urban and rural, large and small, and geographically

disparate localities. Other reviewers, including facilities maintenance vendors and service providers, represented

the private sector. Still others represented professional organizations with an interest in improving school facilities

across the nation. Contributions from the reviewers were constructive and substantial. The document was

improved considerably after the task force incorporated feedback gathered during the public review process. 

The following is a list of individuals who shared their expertise and experience as document reviewers.

Joe Agron, Editor-in-Chief, American School and

University Magazine, Overland Park, KS

Karen Anderson, Alliance to Save Energy

Green Schools Program, Washington, DC

Bill Archer, Supervisor of Electrical Trades,

Grand Rapids (MI) Public Schools

Mitch Bart, Director of Facilities, Kent (MI) ISD

Bruce Beamer, Director of Business,

Clarkston (MI) Schools Services

Jim Biehle, AIA, Inside/Out Architecture, Inc.

Clayton, MO

Jerry Blizzard, Director of Maintenance, Crosby (TX) ISD

Daniel Boggio, President, PBK Architects, Houston, TX

Don Bossley, Director of Maintenance, Cleveland (TX) ISD 

Matthew Browne, Energy Manager, Alief (TX) ISD

Clint Byard, Director of Buildings and Grounds,

Jonesboro (AR) Public Schools
ACKNOWLEDGMENTS v

Stephen Calvert, Building & Grounds Supervisor,

Region IV ESC, Houston, TX

Patty Cammack, Commercial Account Manager,

HVAC Mechanical/Trane, Houston, TX

C.G. Cezeaux, Director of Operations, Spring (TX) ISD

Peter Cholakis, Vice President, Marketing VFA, Inc.

Boston, MA

Mike Clausen, Executive Director of Operations,

La Port (TX) ISD

Nancy Comeau, Industrial Hygiene Supervisor,

Commonwealth of Massachusetts

Leo Consiglio, Lincoln Park (MI) School District

Cheryl Corson, Communications Manager,

National Clearinghouse for Educational Facilities

Washington, DC

Lawrence B. Curlis, Operations Manager,

Fort Bend (TX) ISD

John Ewen, Support Services Director,

East Lansing (MI) Public Schools

Jim Farrington, Maintenance Coordinator,

Sheldon (TX) ISD

Michael A. Feeney, Chief, Emergency

Response/Indoor Air Quality Program, Massachusetts

Department of Public Health

Randall Fielding, Editor, DESIGN SHARE, Inc.

Minneapolis, MN

Josephine Franklin, Program Development Manager,

National Association of Secondary School Principals

Reston, VA

Harry Galewsky, P.E., Mechanical and Electrical

Engineering Consultant, Beaumont, TX

Gene Grillo, President, Bradford Environmental

Consultants, Bradford, MA

Paul Gutewsky, Maintenance Manager,

Lamarc (TX) ISD

Charles T. Hall, Siemens Building Technologies, Inc.

K-12 Performance Solutions Team, Buffalo Grove, IL

Len Hampton, Walnut Valley (CA) Unified School

District

Jim Hayden, Director of Buildings and Grounds,

Pinckney (MI) Community Schools

Michael Hayden, Director of Operations & Maintenance,

Carson City-Crystal Area (MI) Schools

Don Hebeler, Operations Supervisor,

Wyoming (MI) Public Schools

Willie Huggins, Director of Maintenance, Klein (TX)

ISD

Brad Hunt, Business Manager/Board Secretary,

Gettysburg Area (PA) School District

Andrew Kezanas, Sales Director, Envirotest, Inc.

Houston, TX

Susan Lang, Executive Director,

Association of School Business Officials of Alberta

Edmonton, Alberta, Canada 

Keith Langford, HVAC Supervisor,

Stafford (TX) Municipal School District

Reagan LaPoint, President, Buckeye Cleaning Center

Houston, TX

Barbara Kent Lawrence, Coordinator, School

Community Facilities Network, The Rural School and

Community Trust, Washington, DC

Gregory L. Lookabaugh, Director, Facilities Services

Customer Support Services, Region IV Educational

Service Center, Houston, TX

Lois Mastro, Assistant Professor, University of Arkansas

at Little Rock

Patrick McCarthy, Regional Sales Manager,

Canberra Corporation, Dallas, TX

Kathy McDonald, Manager of Custodial Services,

Spring Branch (TX) ISD

Charles D. McGinnis, Facilities Director,

South Lyon (MI) Community Schools

Heidi O’Brien, Deputy Regional Director,

Bureau of Waste Prevention, Massachusetts

Department of Environmental Protection

Kagan Owens, Program Director, Beyond Pesticides

National Coalition Against the Misuse of Pesticides

Washington, DC

Cathy Phillip, Operations Manager,

Lakeland (IN) School Corporation

Ed Poprik, Director of Physical Plant,

State College (PA) Area School District
vi PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Paul Potts, Kingscott Associates, Kalamazoo, MI 

James Reed, Maintenance Supervisor, Crosby (TX) ISD

Lawrence Reeves, Director of Maintenance &

Operations, Pearland (TX) ISD

Bernie Rice, Garden City (MI) Public Schools

David Rieger, Grand Rapids (MI) Public Schools

Emitte A. Roque, Executive Director of Buildings &

Property, Aldine (TX) ISD

David Sanders, Director of Support Services,

Friendswood (TX) ISD

Fred Schossan, Director of Physical Operations,

Oak Park (MI) Public Schools

John Spencer, Facilities Manager,

Portage (MI) Public Schools

Calvin Stockman, President, Growth Group, Inc.,

Scottsdale, AZ

Michelle Tanem, Marketing Manager, Education

Johnson Controls, Inc., Milwaukee, WI

John E. Thames, Director of Maintenance,

Aldine (TX) ISD

John Thompson, Director of Operations & Maintenance,

Fraser (MI) Public Schools

Jack Timmer, Director of Building Operations,

Grandville (MI) Public Schools

Glynn Turner, Air Conditioning Technician,

Sheldon (TX) ISD

George Waldrup, Hartland (MI) Schools

Charles Weaver, Vice President, Educational Facilities

Kennedy Associates, Inc., St. Louis, MO

Donald Yeoman, Superintendent,

Tri-Creek (IN) School Corporation
TABLE OF CONTENTS vii

TABLE OF CONTENTS

Members of the School Facilities Maintenance Task Force .......................................................................................... iii

Acknowledgments .................................................................................................................................................................................. iv

Executive Summary .............................................................................................................................................................................. xi

Preface: About This Planning Guide ........................................................................................................................................ xiii

Chapter 1. Introduction to School Facilities Maintenance Planning ......................................................................1

Table of Contents ..........................................................................................................................................................................1

Why Does Facilities Maintenance Matter? ..........................................................................................................................1

Who Should Read This Document? ......................................................................................................................................2

In a Nutshell ....................................................................................................................................................................................4

Planning Guide Framework ........................................................................................................................................................5

In Every Chapter ..........................................................................................................................................................................7

Commonly Asked Questions ....................................................................................................................................................7

Additional Resources ..................................................................................................................................................................9

Introductory Facilities Maintenance Checklist ................................................................................................................11

Chapter 2. Planning for School Facilities Maintenance ..................................................................................................13

Table of Contents ........................................................................................................................................................................13

Effective Management Starts with Planning ....................................................................................................................13

Why Collaborate During Planning (and with Whom)? ..............................................................................................14

Creating a Unified Organizational Vision ..........................................................................................................................16

Links to Budgeting and Planning ..........................................................................................................................................18

Data for Informed Decision-Making ..................................................................................................................................19

Commonly Asked Questions ..................................................................................................................................................20

Additional Resources ................................................................................................................................................................21

Planning for School Facilities Maintenance Checklist ..................................................................................................23

Chapter 3. Facility Audits: Knowing What You Have ....................................................................................................25

Table of Contents ........................................................................................................................................................................25

Why Audit Your Facilities? ......................................................................................................................................................26

How to Conduct Facility Audits ..........................................................................................................................................27

Who Collects the Data? ....................................................................................................................................27

What Data Need to Be Collected? ................................................................................................................28

When Should Data Be Collected? ................................................................................................................31

Data Management ......................................................................................................................................................................32

Data Use ........................................................................................................................................................................................34

Commissioning: A Special Type of Facilities Audit ......................................................................................................35

Commonly Asked Questions ..................................................................................................................................................37
viii PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Additional Resources ................................................................................................................................................................38

Facility Audit Checklist ............................................................................................................................................................41

Chapter 4. Providing a Safe Environment for Learning ................................................................................................43

Table of Contents ........................................................................................................................................................................43

Ensuring Environmental Safety ............................................................................................................................................43

The “Four Horsemen” of School Facilities Maintenance ............................................................................................44

Indoor Air Quality ..............................................................................................................................................44

Asbestos ..................................................................................................................................................................48 

Water Management ............................................................................................................................................49

Waste Management ............................................................................................................................................50

Other Major Safety Concerns ................................................................................................................................................53

Environmentally Friendly Schools ......................................................................................................................................61

Securing School Facilities ........................................................................................................................................................62

Commonly Asked Questions ................................................................................................................................................64

Additional Resources ................................................................................................................................................................64

Environmental Safety Checklist ............................................................................................................................................70

Chapter 5. Maintaining School Facilities and Grounds ................................................................................................73

Table of Contents ........................................................................................................................................................................73

Preventive Maintenance: An Ounce of Prevention Is Worth a Pound of Cure ..................................................74

A Focus on Preventive Maintenance ..................................................................................................................................74

Maintenance and Operations Issues ....................................................................................................................................75

Custodial Activities ....................................................................................................................................................................82

Grounds Management ..............................................................................................................................................................83

Departmental Organization and Management ................................................................................................................85

Maintenance and Operations Manuals ..............................................................................................................................86 

Managing Facilities “Partners” ..............................................................................................................................................86

Work Order Systems ..........................................................................................................................................86

Building Use Scheduling Systems ..................................................................................................................90

Managing Supplies ..............................................................................................................................................90

The Role of Maintenance During Renovation and Construction ..........................................................................92

Commonly Asked Questions ................................................................................................................................................94

Additional Resources ................................................................................................................................................................96

Maintaining School Facilities and Grounds Checklist ..............................................................................................100

Chapter 6. Effectively Managing Staff and Contractors ..............................................................................................105

Table of Contents ......................................................................................................................................................................105 

Hiring Staff ................................................................................................................................................................................105 

Job Descriptions ................................................................................................................................................105
TABLE OF CONTENTS ix

Selecting the Right People ............................................................................................................................107

Dotting Your I’s and Crossing Your T’s ....................................................................................................108

Training Staff ............................................................................................................................................................................111

Newly Hired Employees ................................................................................................................................111

Ongoing Training and Professional Development ................................................................................112

The “Moment of Truth” Chart ....................................................................................................................113

Evaluating Staff ........................................................................................................................................................................113

Maintaining Staff ......................................................................................................................................................................116

Managing Contracted Staff and Privatized Activities ................................................................................................117

Commonly Asked Questions ..............................................................................................................................................118

Additional Resources ..............................................................................................................................................................118

Managing Staff and Contractors Checklist ....................................................................................................................121

Chapter 7. Evaluating Facilities Maintenance Efforts ..................................................................................................123

Table of Contents ....................................................................................................................................................................123

Evaluating Your Maintenance Program ..........................................................................................................................124

Considerations When Planning Program Evaluations ..............................................................................................124

Collecting Data to Inform a Comprehensive Evaluation ........................................................................................126 

Examples of Good Evaluation Questions ......................................................................................................................127

Commonly Asked Questions ..............................................................................................................................................130

Additional Resources ..............................................................................................................................................................131

Evaluating Facilities Maintenance Programs Checklist ............................................................................................132

Appendices 

Appendix A. Chapter Checklists ........................................................................................................................................133

Appendix B. Additional Resources ....................................................................................................................................144

Appendix C. State School Facilities Web sites ..............................................................................................................154

Appendix D. Audit Form Template ..................................................................................................................................156

Appendix E. Record Layout for a Computerized Work Order System ............................................................159

Appendix F. Model Job Description for a Custodial Worker ................................................................................160

Appendix G. Useful Interview Questions ........................................................................................................................165

Appendix H. Using Mapping during the Interview Process ....................................................................................167

Appendix I. Sample Customer Survey Form ..............................................................................................................168

Index ............................................................................................................................................................................................................169

EXECUTIVE SUMMARY xi

EXECUTIVE SUMMARY 

As America’s school buildings age, we face the growing challenge of 

maintaining the nation’s education facilities at a level that enables our 

teachers to meet the needs of 21st century learners. Facilities issues arise at

all educational levels, from prekindergarten through postsecondary, and at all

sites, from classrooms to administrative offices. Challenges arise in new and

old facilities alike, although the types of concerns may differ. 

Because routine and unexpected maintenance demands are bound to

arise, every education organization must proactively develop and implement

a plan for dealing with these inevitabilities. A sound facilities maintenance

plan helps to ensure that school facilities are, and will be, cared for appropriately. Negligent facilities maintenance planning can result in real problems.

Large capital investments can be squandered when buildings and equipment

deteriorate or warranties are invalidated. Failure to maintain school facilities

adequately also discourages future investment in the public education system.

However, school facilities maintenance is concerned about more than

just resource management. It is about providing clean and safe environments

for children. It is also about creating a physical setting that is appropriate and

adequate for learning. A classroom with broken windows and cold drafts

doesn’t foster effective learning. But neither does an apparently state-of-theart school that is plagued with uncontrollable swings in indoor temperature. 

This Planning Guide is designed for staff at the local school district level,

where most facility maintenance is planned, managed, and carried out. This

audience includes school business officials, school board members, superintendents, principals, facilities maintenance planners, maintenance staff, and

custodial staff. The document is also relevant to the school facilities interests

of state education agency staff, community groups, vendors, and regulatory

agencies.

The Planning Guide has been developed to help readers better 

understand why and how to develop, implement, and evaluate a facilities

maintenance plan. It focuses on:

✓ school facility maintenance as a vital task in the responsible 

management of an education organization

✓ the needs of an education audience 

✓ strategies and procedures for planning, implementing, and evaluating

effective maintenance programs

✓ a process to be followed, rather than a canned set of “one size fits all”

solutions

✓ recommendations based on “best practices,” rather than mandates

The document offers recommendations on the following important

issues, which serve as chapter headings: 

✓ Introduction to School Facilities Maintenance Planning

✓ Planning for School Facilities Maintenance

Facilities problems affect teaching

and learning, student and staff

health, day-to-day building

operations, and the long-range

fiscal health of the entire education

organization. To some people’s 

surprise, facilities problems are 

less a function of geography or

socioeconomics and more directly

related to staff levels, training,

and practices—all of which can

be controlled by the organization.

Thus, every school district should

plan to meet the challenges of

effective facilities maintenance. 

It is simply too big and too

important of a job to be

addressed haphazardly.
xii PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

✓ Facilities Audits (Knowing What You Have)

✓ Providing a Safe Environment for Learning

✓ Maintaining School Facilities and Grounds

✓ Effectively Managing Staff and Contractors

✓ Evaluating Facilities Maintenance Efforts 

The Planning Guide for Maintaining School Facilities is the product of 

the National Cooperative Education Statistics System and the collaboration

of the National Forum on Education Statistics (http://nces.ed.gov/forum)

and the Association of School Business Officials International (ASBO®)

(http://www.asbointl.org). The project was sponsored by the National Center

for Education Statistics (NCES) (http://nces.ed.gov), U.S. Department of

Education. Roger Young (ryoung@haverhill-ma.com), Haverhill (MA) Public

Schools, chaired the Forum’s School Facility Maintenance Task Force, which

was charged with developing the document. Lee Hoffman managed the project for the National Center for Education Statistics.

This document is available electronically at no cost via the World 

Wide Web at http://nces.ed.gov/forum/publications.asp. One free copy of 

the Planning Guide for Maintaining School Facilities can be ordered from 

the U.S. Department of Education’s ED PUBS Online Ordering System 

at http://www.ed.gov/about/ordering.jsp or 877-4-ED-PUBS. Multiple 

copies can be ordered for a fee at the U.S. Government Online Bookstore 

at http://bookstore.gpo.gov/index.html or 888-293-6498. For more information

about this Planning Guide or other free resources from the National Forum

on Education Statistics and the National Center for Education Statistics, 

visit http://nces.ed.gov/. 

EXPERIENCE AT THE LOCAL, STATE, AND NATIONAL LEVELS SUGGESTS

THAT EFFECTIVE SCHOOL FACILITY MAINTENANCE PLANNING CAN:

• contribute to an organization’s instructional effectiveness and

financial well-being

• improve the cleanliness, orderliness, and safety of an 

organization’s facilities 

• reduce the operational costs and life-cycle cost of a building 

• help staff identify facilities priorities proactively rather 

than reactively 

• extend the useful life of buildings 

• increase energy efficiency and thereby help the environment 
PREFACE xiii

PREFACE: 

ABOUT THIS PLANNING GUIDE

The National Center for Education Statistics, the National Forum on Education

Statistics, and the Association of School Business Officials International

(ASBO®) are pleased to provide this Planning Guide to education administrators, facilities staff, community members, and other individuals who are interested in the responsible management of our nation’s school facilities. 

We believe that investing in the proper maintenance of school facilities is

both a sound business and wise pedagogical decision. 

A primary objective of this Planning Guide is to provide effective and

practical recommendations for school facility maintenance planning in a

user-friendly format. Thus, each chapter includes:

✓ Table of Contents – to provide an overview and simplify navigation

within the chapter

✓ Chapter Goals – to state the major purposes of the chapter

✓ Best Practice Recommendations – to describe how to accomplish

the goals

✓ Vignettes – to show how maintenance issues can play out in 

the real world

✓ Commonly Asked Questions – to address anticipated concerns 

of readers

✓ Checklists – to summarize recommendations 

✓ Additional Resources – to point readers to related information

While it is hoped that all of the information in this Planning Guide is

valuable to facilities maintenance planners, some points stand out as being

particularly important. To better emphasize these points, a few symbols are

used throughout the document:

A “little birdie” isn’t telling you, 

but the “maintenance eagle” is...

The “maintenance eagle” signifies a vignette that illustrates 

how good facilities maintenance (or a lack thereof) can play 

out in the real world.

“Key” points...

The ring of keys (which can sometimes be seen hanging 

from the belt of school facilities maintenance workers) signifies 

especially important, or “key,” points.

“On the road” to the Web...

The school bus points to additional valuable resources that 

are available in print or on the World Wide Web.

USE THIS 

PLANNING GUIDE! 

Readers 

are permitted

to modify, customize, 

and reproduce 

any part 

of this document.

CHAPTER 1 

INTRODUCTION TO SCHOOL 

FACILITIES MAINTENANCE PLANNING

When maintaining a school, we pay not only for bricks and mortar, 

but also student and staff well-being. Effective school maintenance 

protects capital investment, ensures the health and safety of our children, 

and supports educational performance.

Table of Contents:

Why Does Facilities

Maintenance Matter? ................1

Who Should Read This 

Document? ....................................4

In a Nutshell... ................................5

Planning Guide Framework........7

In Every Chapter...........................8

Commonly Asked Questions ......8

Additional Resources ....................9

Introductory Facilities 

Maintenance Checklist ................11

GOALS: 

✓ To explain how clean, orderly, safe, cost-effective, and instructionally supportive school facilities enhance education

✓ To introduce the purpose, structure, and format of the Planning Guide

CHAPTER 1: INTRODUCTION TO SCHOOL FACILITIES MAINTENANCE PLANNING 1

WHY DOES FACILITIES MAINTENANCE MATTER?

As America’s school buildings age, we face the growing challenge of maintaining school facilities at a level that enables our teachers to meet the needs 

of 21st century learners. While the construction of new school facilities 

supports this task, many older buildings have developed modularly over time. 

A 1920s-era school may have gotten an addition in 1950, which in turn got 

an addition in 1970, and yet another addition in 1990. The task of caring for

these old school buildings, some of which are historically or architecturally 

significant, at a level that supports contemporary instructional practices is 

substantial. At the same time, maintaining the finely tuned workings of new,

more technologically advanced facilities also demands considerable expertise

and commitment.

Thus, it is perhaps not surprising that facilities issues arise at

all educational levels, prekindergarten through post-secondary,

and all sites, both school buildings and administrative offices alike.

Challenges arise in both new and old facilities, although the types of

concerns may differ. For example, even a brand-new building may have problems with inadequate air circulation, which can lead to indoor air quality

(IAQ) problems unless remedied. Older buildings, on the other hand, more

frequently face age-related issues such as inefficient energy systems that can

lead to uncomfortable indoor climate and high utility bills.

What causes facilities problems? Certainly extreme environmental conditions

and a lack of maintenance funding contribute to building deterioration. But

many facilities problems are not a function of geography or socioeconomic

factors but are, instead, related to maintenance staffing levels, training, and

management practices.

Table of Contents:

Why Does Facilities

Maintenance Matter? ................1

Who Should Read This 

Document? ....................................2

In a Nutshell... ................................4

Planning Guide Framework ........5

In Every Chapter ............................7

Commonly Asked Questions ......7

Additional Resources ....................9

Introductory Facilities 

Maintenance Checklist ................11
2 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Because we know that routine and unexpected maintenance demands are

bound to arise, every education organization must proactively develop and

implement a plan for dealing with these inevitabilities. Thus, an organization

must plan to meet the challenges of effective facilities maintenance. It is simply too big of a job to be addressed in a haphazard fashion. After all, the consequences affect teaching and learning, student and staff health, day-to-day

building operations, and the long-range fiscal outlook of the organization.

A sound facilities maintenance plan serves as evidence that

school facilities are, and will be, cared for appropriately. On the

other hand, negligent facilities maintenance planning can cause real

problems. Large capital investment can be squandered when buildings

and equipment deteriorate or warranties become invalidated. Failing to maintain

school facilities adequately also discourages future public investment in the education system.

However, school facilities maintenance is concerned about more than

just resource management. It is about providing clean and safe environments

for children. It is also about creating a physical setting that is appropriate and

adequate for learning. A classroom with broken windows and cold drafts

doesn’t foster effective student learning. However, neither does an apparently

state-of-the-art classroom that is plagued with uncontrollable swings in

indoor temperature, which can negatively affect student and instructor alertness,

attendance, and even health.

School facilities maintenance affects the physical, educational, and financial

foundation of the school organization and should, therefore, be a focus of

both its day-to-day operations and long-range management priorities.

WHO SHOULD READ THIS DOCUMENT?

Meeting legal standards with regard to facilities maintenance is the bare 

minimum for responsible school management. Planners must also strive to

meet the spirit of the laws and the long-term needs of the organization.

Because facilities maintenance planning is constrained by real world

budgets, planners must often think in terms of trade-offs. Thus, they must

weigh routine tasks against preventive maintenance that pays off only over

PAY ME NOW OR PAY ME LATER

“Pay me now or pay me later,” barked the man on the TV commercial for car oil filters. The underlying

message in the ad was clear: If you spent a few dollars now to change the filter in your car, you could

avoid more expensive repairs in the future. This is “preventive maintenance” in its simplest form—

spending a little money now to perform regular inspections and maintenance in order to minimize

future big-ticket costs and prolong the functional lifetime of buildings and equipment.

-Frank Norwood, Director of Maintenance & Operations, Katy (TX), Independent School District

(Adapted with permission from the Texas Association of School Business Officials)

Effective facilities

maintenance

extends the life 

of older facilities

and maximizes 

the useful life of

newer facilities.
CHAPTER 1: INTRODUCTION TO SCHOOL FACILITIES MAINTENANCE PLANNING 3

the long run, while always needing to be prepared for emergency responses

to broken air conditioners, cracked pipes, and severe snow storms. The difficult job of planning for facilities maintenance is most effective when it relies

upon up-to-date information about the condition and use of buildings, campuses, equipment, and personnel. Thus, staff who are intimately involved in

the day-to-day assessment, repair, and maintenance of school facilities must

also play an active role in the facilities maintenance planning process. Yet

facilities maintenance planning is not solely the responsibility of the facilities

department. Effective planning requires coordination of resources and commitment at all levels of the education organization.

Our vision for this Planning Guide for Maintaining School

Facilities is to encourage information-based decision-making in

this crucial, yet often overlooked, aspect of schools management.

Because no two school districts face precisely the same challenges,

this Planning Guide does not attempt to provide a single template for an 

all-inclusive facilities maintenance plan. Rather it focuses on best practices

that can be undertaken to develop a plan that meets the unique needs of 

an education organization. 

GOOD FACILITIES MAINTENANCE COSTS MONEY... 

There is no question about it. But unlike many other investments, the return 

on the expenditure may not result in increased revenues. Instead, facilities

maintenance produces savings by:

1. decreasing equipment replacement costs over time 

2. decreasing renovation costs because fewer large-scale repair jobs

are needed

3. decreasing overhead costs (such as utility bills) because of

increased system efficiency

School facilities maintenance

affects the physical, educational,

and financial foundation of the

school organization and should,

therefore, be a focus of both 

its day-to-day operations and

long-range management 

priorities.
4 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

IN A NUTSHELL...

Experience at the local, state, and national levels suggests that effective

school facility maintenance planning can:

✓ contribute to an organization’s instructional effectiveness and financial

well-being

✓ improve the cleanliness, orderliness, and safety of an education 

organization’s facilities

✓ reduce the operational costs and life cycle cost of a building

✓ help staff deal with limited resources by identifying facilities priorities

proactively rather than reactively

✓ extend the useful life of buildings

✓ increase energy efficiency and help the environment

The Planning Guide does the following: 

✓ argues that school facility maintenance is a vital component in the

responsible management of an education organization

✓ focuses specifically on the needs of an education audience (i.e., it is

written specifically for education administrators and staff at the

building, campus, district, and state levels)

✓ stresses strategies and procedures for planning, implementing, and

evaluating effective maintenance programs

✓ describes a process, not a canned set of “one size fits all” solutions

✓ includes “best practice” recommendations, not mandates

✓ supports recommendations from another National Forum on

Education Statistics publication, Facilities Information Management: 

A Guide for State and Local School Districts

(http://nces.ed.gov/forum/publications.asp)

This Planning Guide is not:

✗ a how-to manual of maintenance procedures and instructions

✗ an attempt to dictate policy-making in local and state education

agencies (although it can and should serve as a guide to policy-makers

as they consider their options and needs)

Facilities maintenance planning

is not solely the responsibility 

of the facilities department.

Effective planning requires

coordination of resources and

commitment at all levels of 

the education organization.

PURPOSE OF THIS PLANNING GUIDE

This Planning Guide is intended to help school administrators, staff, and community members better understand why

and how to develop, implement, and evaluate a facilities maintenance plan.

AUDIENCE FOR THIS PLANNING GUIDE

The primary audience of this Planning Guide is staff at the local school district level, where most facilities maintenance

is planned, managed, and carried out. This includes board members, superintendents, business officials, principals, 

facilities managers, maintenance personnel, and custodians. Secondary audiences include state education agency 

staff, community members, vendors, regulatory agencies, and students in education administration courses.
CHAPTER 1: INTRODUCTION TO SCHOOL FACILITIES MAINTENANCE PLANNING 5

Planning Guide Framework

This Planning Guide includes the following chapters and information: 

Chapter 1: Introduction to School Facilities Maintenance Planning describes

the purpose, scope, intended audience, and organization of this publication.

Chapter 2: Planning for School Facilities Maintenance discusses the vital role

that facilities maintenance planning plays in the management of an effective

learning environment. It also presents a process for developing a vision 

statement, justifying planning from a budgetary perspective, using data to

inform decision-making, and identifying the components of a good facilities

maintenance plan.

Chapter 3: Facility Audits: Knowing What You Have focuses on the necessary,

but sometimes overlooked, step of inventorying school buildings and grounds. 

It also describes how to collect, manage, and use data from a facilities audit.

Chapter 4. Providing a Safe Environment for Learning highlights many safetyrelated issues that demand the absolute attention of both facilities maintenance

planners and staff who are responsible for the operation of a school building.

Chapter 5. Maintaining School Facilities and Grounds details “best practice”

strategies for maintaining facilities and grounds. It also reminds readers that an

ounce of prevention is worth a pound of cure.

Chapter 6. Effectively Managing Staff and Contractors outlines “best practice”

strategies for managing employees and outside contractors. It also emphasizes

the importance of sound human resources management as a precondition for

effective facilities maintenance.

Chapter 7. Evaluating Facilities Maintenance Efforts recommends ongoing

evaluation of an education organization’s facility maintenance program and

presents various approaches for accomplishing this vital task.

Appendix A. Chapter Checklists combines all the chapter checklists into a

single list. 

Appendix B. Additional Resources combines all the chapter lists of additional

resources into a single alphabetical list.

Appendix C. State School Facilities Web sites lists state-specific facilities web

sites, including many developed by states and state departments of education.

The condition of a school facility

is not just an issue for the

facility manager—it affects 

the staff, students, and entire

educational community.

RESEARCH SHOWS...

1. A positive relationship exists between school conditions and student

achievement and behavior. 1

2. Facility condition may have a stronger effect on student performance

than the influences of family background, socioeconomic status,

school attendance, and behavior combined. 2

3. Students are more likely to prosper when their environment is conducive to learning. Well-designed facilities send a powerful message 

to kids about the importance a community places on education. 3
6 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Effective school facilities maintenance plans have...

Administrators who:

✓ recognize that facility maintenance contributes to the physical and 

financial well-being of the organization

✓ understand that school facility maintenance affects building appearance,

equipment operation, student and staff health, and student learning

✓ appreciate that facility maintenance requires funding

✓ acknowledge that strategic planning for facilities maintenance is a team

effort that requires input and expertise from a wide range of stakeholders 

✓ coordinate facility maintenance activities throughout the organization

✓ demand appropriate implementation and evaluation of facilities 

maintenance plans

Facilities staff who: 

✓ understand a wide range of facilities operations and issues

✓ receive training to improve their knowledge and skills related to facilities

maintenance

✓ educate school and district administrators about facility operations

✓ teach other staff how they can help with facilities maintenance

✓ cooperate effectively with policy-makers and budgetary decision-makers

✓ appreciate that facility maintenance decision-making is influenced by

instructional needs

Teachers who:

✓ recognize that facilities maintenance supports student learning

✓ educate students about how to treat school facilities appropriately

✓ communicate their expectations for facilities as they relate to enhancing

student learning

✓ treat facilities with respect

Students who:

✓ see school facilities as their learning environment

✓ treat facilities with respect

Parents and community members who:

✓ recognize that school facilities are the training grounds for future citizens

and leaders

✓ respect decision-making regarding school facility use and maintenance 

✓ contribute to school facility maintenance decision-making as requested

✓ consent to the financial obligations associated with good school facility

maintenance
CHAPTER 1: INTRODUCTION TO SCHOOL FACILITIES MAINTENANCE PLANNING 7

Q&A

Appendix D. Audit Form Template is a sample facility audit form designed for

education organizations.

Appendix E. Record Layout for a Computerized Work Order System is a

resource for education organizations as they select data elements to be included

in a work order system. 

Appendix F. Model Job Description for a Custodial Worker is a resource for

education organizations as they develop their own job descriptions.

Appendix G. Useful Interview Questions lists questions that can guide school

district personnel as they interview potential employees.

Appendix H. Using Mapping during the Interview Process describes a process

that can help decision-makers identify the qualities of an “ideal” candidate for a

given job.

Appendix I. Sample Customer Survey Form is a resource for school districts

as they develop their own evaluation materials.

Index provides an alphabetical list of key topics in the document.

IN EVERY CHAPTER...

Each chapter of this Planning Guide includes:

✓ Table of Contents – to provide an overview and simplify navigation

within the chapter

✓ Chapter Goals – to state the major purposes of the chapter

✓ Best Practice Recommendations – to describe how to accomplish

the goals

✓ Vignettes – to show how maintenance issues can play out in 

the real world

✓ Commonly Asked Questions – to address anticipated concerns 

of readers

✓ Checklists – to summarize recommendations 

✓ Additional Resources – to point readers to related information

COMMONLY ASKED QUESTIONS

What is a facilities maintenance plan?

A facilities maintenance plan details an organization’s strategy for proactively

maintaining its facilities. Effective maintenance plans reflect the vision and

mission of the organization, include an accurate assessment of existing facilities,

incorporate the perspectives of various stakeholder groups, and focus on

preventive measures that ensure that capital investment is managed responsibly.

As with any successful management endeavor, good facilities maintenance

plans integrate best practices of planning, implementation, and evaluation.

An education organization

must plan to meet the 

challenges of effective facilities 

maintenance. It is simply too

big (and important) of a job 

to be addressed haphazardly.
8 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

How will a maintenance plan make our schools better?

Learning does not occur in a vacuum. Students and staff thrive in an 

orderly, clean, and safe environment. Classrooms that are well ventilated,

suitably lighted, and properly maintained actually facilitate learning. Poor

air quality, on the other hand, negatively affects alertness and results in

increased student and teacher absences, which can have a corresponding

impact on student achievement. Moreover, appropriate facilities maintenance extends the life span of older facilities and maximizes the useful 

life of newer facilities. Thus, a facilities maintenance plan contributes to

both the instructional and financial well-being of an education organization and its community.

Why should our school district rethink the facilities plan that we wrote

five years ago?

Facilities plans, like buildings, don’t age well unless they are maintained on an

ongoing basis. For starters, maintenance strategies depend on the condition

of facilities, which changes over time. If the condition of your buildings,

grounds, and equipment have changed in the past five years (which they

Planning for school

facilities maintenance

helps to ensure that

school buildings are:

Clean, Orderly, Safe, 

Cost-effective 

and Instructionally

supportive.

FACILITIES RESOURCES ... JUST A MOUSE CLICK AWAY

The National Clearinghouse for Educational Facilities (NCEF) is the nation's primary source of comprehensive information

about school planning, design, financing, construction, modernization, and maintenance issues. NCEF's web site, which

can be found at http://www.edfacilities.org, includes:

Resource Lists – current, subject-specific, compilations of information on more than 100 school facilities topics. The

lists include links to online publications and related web sites, as well as descriptions of books, studies, reports, and

journal articles. 

Publications – concise explorations of facilities-related subjects and issues that concern educators and affect learning.

Available in paper copies or online.

News – summaries of local, regional, and national developments regarding educational facilities, including links to

online news stories and related NCEF information resources.

Calendar – complete and timely information on regional and national events related to school facilities.

Gallery – photographs and project information on award-winning school designs.

Construction Data – statistics on nationwide school construction activity, with links to sources of school construction

and cost estimating data. 

Ask A Question – responses by NCEF reference staff to school facilities questions submitted via an online question

form. Queries are answered within two to four business days.

Newsletter – highlights of the most recent NCEF publications, events, and news sent to users periodically through an

e-mail publication, EdFacilities Updates.

Links – links to professional organizations, federal, state, and municipal resources, academic research centers, media,

and products and services.

Search – direct access through keywords or phrases to NCEF’s extensive database of information about school facilities.

So whether you are searching for information about capital improvement programs, indoor air quality, or school size and

security, visit http://www.edfacilities.org or call toll-free: 888-552-0624.
CHAPTER 1: INTRODUCTION TO SCHOOL FACILITIES MAINTENANCE PLANNING 9

probably have), your facilities plan should be updated to clarify those steps

that need to be taken to maintain these valuable assets.

Why do I need this Planning Guide to tell me how to keep our schools

and grounds in good condition? 

Your organization may already be keeping its schools and grounds in good

condition. If so, spending a few hours reviewing the recommendations in this

Planning Guide is a small investment relative to the amount of energy you

already put into your facilities maintenance efforts—especially if there’s a

chance (and there is) that you may find something new and useful in this

publication. If your organization doesn’t keep its schools and grounds as well 

as it might, then read on.

ADDITIONAL RESOURCES

Every effort has been made to verify the accuracy of all URLs in this Guide

at the time of publication. If a Web address is no longer correct, try using the

root directory to search for a page that may have moved. For example, if the

link to http://www.epa.gov/iaq/schools/performance.html is not working, try

http://www.epa.gov/ and search for "IAQ."

To err is human... but you’d like to avoid this kind of thing all the same! 

The school board was happy, the community was proud, and the students were ecstatic. The high school had finally invested

in a gymnasium that would meet the needs of the physical education department, the athletic department, and community

organizations alike. After only four years of use, the facility looked to be in great shape, so everyone was shocked to find that

school had been canceled on a Monday morning so that the maintenance staff could combat a flood that had gushed across

the gym floor and into the main building. 

What had happened? A $12 gasket had failed—but it happened to be the one that sealed the 40,000 gallon backup water tank

that lay adjacent to the gymnasium. To make matters worse, the tank’s emergency drain was covered with boxes of books (in a

misguided attempt to increase the building’s storage space). The unfortunate result: school was canceled for two days, the emergency response cost $26,000, and the gymnasium was closed for five weeks while $160,000 worth of repair work was performed.

How could this problem have been avoided? In truth, there were several things that could have saved the district from its woes:

• Acceptable Maintenance – Regular equipment inspections of the backup water tank might have identified a defective 

gasket and prevented the flood. 

• Proper Planning – The water tank should have been placed in a more appropriate location than next to the gymnasium.

• Appropriate Operations – Someone should have realized that covering an emergency drain with boxes wasn’t an 

acceptable storage system!

These and other issues are addressed in this Planning Guide.
10 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Deteriorating School Facilities and Student Learning 

http://www.ed.gov/databases/ERIC_Digests/ed356564.html

A report documenting that many facilities in American public schools are in

disrepair—a situation with implications on the morale, health, and learning of

students and teachers. Frazier, Linda M. (1993) ERIC Clearinghouse for

Educational Management, Eugene, OR. 

Educational Performance, Environmental Management, 

and Cleaning Effectiveness in School Environments 

http://www.carpet-rug.com/pdf_word_docs/0104_school_environments.pdf 

A report demonstrating how effective cleaning programs enhance school 

and student self-image, and may promote higher academic attendance and

performance. Berry, Michael A. (2001) Carpet and Rug Institute, Dalton, GA.

Facilities Information Management: A Guide for State and Local 

School Districts

http://nces.ed.gov/forum/publications.asp

A publication from the National Forum on Education Statistics that defines 

a set of data elements that are critical to answering policy questions related

to elementary and secondary school facility management. Facilities

Maintenance Task Force, National Forum on Education Statistics (2003)

National Center for Education Statistics, Washington, DC.

Impact of Facilities on Learning

http://www.edfacilities.org/rl/impact_learning.cfm

A list of links, books, and journal articles examining the association between

student achievement and the physical environment of school buildings and

grounds. The National Clearinghouse for Educational Facilities, Washington, DC.

Indoor Air Quality and Student Performance

http://www.epa.gov/iaq/schools/performance.html

A report examining how indoor air quality (IAQ) affects a child’s ability 

to learn, including case studies of schools that successfully addressed their

indoor air problems, lessons learned, and long-term practices and policies

that have emerged. Indoor Environments Division, U.S. Environmental

Protection Agency (2000) U.S. Environmental Protection Agency,

Washington, DC.

Maintenance & Operations Solutions: 

Meeting the Challenge of Improving School Facilities 

http://www.asbointl.org/Publications/

An examination of the impact current maintenance and operations (M&O)

practices have on U.S. school performance and possible avenues for improvement through the judicious use of technology and improved methodology.

Facilities Project Team, Association of School Business Officials International

(2000) Association of School Business Officials International, Reston, VA.

Developing a coordinated 

maintenance plan is the first,

and most important, step in

exercising control over the 

destiny of your school buildings!

Meeting legal standards with regard to facilities maintenance is the bare minimum

for responsible school management. Planners must also strive to meet the spirit

of the laws and the long-term needs of the organization.
CHAPTER 1: INTRODUCTION TO SCHOOL FACILITIES MAINTENANCE PLANNING 11

Footnotes:

1 J. B. Lyons, Do School Facilities Really Impact a Child’s Education? (Scottsdale, AZ: Council of

Educational Facility Planners International, 2001). (http://www.cefpi.org:80/pdf/issue14.pdf)

2 L. Morgan, Where Children Learn: Facilities Conditions and Student Test Performance in Milwaukee

Public Schools (Scottsdale, AZ: Council of Educational Facility Planners International, 2000).

3 F. Withrow, H. Long, and G. Max, Preparing Schools and School Systems for the 21st Century

(Arlington, VA: American Association of School Administrators, 1999).

YES NO

ACCOMPLISHED CHECKPOINTS PAGE

Are top-level decision-makers aware that school facilities maintenance

affects the instructional and financial well-being of the organization?

Are top-level decision-makers aware that the occurrence of facilities

problems (and lack thereof) is most closely associated with organizationally controlled issues such as staffing levels, staff training, and other

management practices? 

Are top-level decision-makers aware that having a coordinated and

comprehensive maintenance plan is the first and most important step 

in exercising control over the destiny of the organization’s facilities? 

Has facilities maintenance been given priority status within the organization, as evidenced by top-level decision-makers’ commitment to read

this Planning Guide and refer to these guidelines while planning and

coordinating facilities maintenance? 

Do the organization’s facilities maintenance decision-makers include

school administrators, facilities/custodial representatives, teachers, 

parents, students, and community members? 

INTRODUCTORY FACILITIES MAINTENANCE CHECKLIST

More information about accomplishing these checkpoints can be found on the pages listed in the right-hand column.

1

1

2

2

4

CHAPTER 2 

PLANNING FOR SCHOOL

FACILITIES MAINTENANCE 

GOALS: 

✓ To explain why planning is an essential component of managing school facilities maintenance activities

✓ To communicate that effective facilities management requires the support of many stakeholders throughout 

the organization and community 

✓ To confirm that informed decision-making demands ready access to high-quality data that describe the 

status of the organization’s facilities, needs, and capabilities

CHAPTER 2: PLANNING FOR SCHOOL FACILITIES MAINTENANCE 13

Table of Contents:

Effective Management 

Starts with Planning........................13

Why Collaborate During 

Planning (and with Whom)?......14

Creating a Unified 

Organizational Vision ....................16

Links to Budgeting 

and Planning ......................................18

Data for Informed 

Decision-Making ............................19

Commonly Asked Questions ....20

Additional Resources ....................21

Planning for School Facilities

Maintenance Checklist..................23

An essential component of an effective school program is a well-conceived

school facilities maintenance plan. A properly implemented plan provides

school administrators comfort and confidence when contemplating the

future of their campuses.

EFFECTIVE MANAGEMENT STARTS WITH PLANNING

Unless facilities maintenance planning is a component of a greater

organizational management plan, it is doomed to failure. After all, how

else can maintenance planners be certain that other policy-makers share

their priorities? Or that funds will be available to achieve their goals? And

how else can they learn about demographic and enrollment projections

and the ensuing changes in building demand? Thus, facilities maintenance planning must be an element of the overall organizational 

strategy—part of the “master plan.”

The master plan is the “blueprint” for daily decisionmaking throughout a school district. It provides concrete

documentation about the organization’s needs and intentions.

Moreover, it is a formal way of communicating the district’s

priorities, and establishes necessary documentation for funding 

authorities and other approving organizations. Good plans include 

short- and long-term objectives, budgets, and timelines, all of which

demonstrate organizational commitment to facilities maintenance.

Effective planning also requires that planners evaluate both the organization’s overarching goals and the day-to-day details needed to meet

those targets. Thus, a comprehensive plan serves both as a blueprint

for the here and now and a road map to the future!
14 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Having said this, however, planners must also accept that the future is not now

(despite the adage that suggests differently). In other words, change takes time,

and improvements in organization-wide endeavors most often occur in steps. 

If a school district finds itself in need of a major overhaul in its facilities maintenance management system, it cannot expect to jump to the head of the field in

one or two years. Instead, planners must institute improvements over longer

time frames and accept that progress is measured relative to the organization’s

starting point rather than by comparisons with other organizations that may or

may not be working under comparable circumstances.

WHY COLLABORATE DURING PLANNING 

(AND WITH WHOM)?

In many ways, the process of planning is more important than

the outcome. The process of formulating a plan establishes a

forum through which interested parties have a chance to voice

their opinions about the future of the organization. This opportunity,

and the dialogue (and even debate) that ensues, is an effective way of infusing fresh ideas and new perspectives into school management. Collaborative

planning also helps stakeholders feel that their views are respected and valued. In turn, this atmosphere of respect often fosters staff and community

support for the decisions being made about the future direction of the organization (and, perhaps more importantly, the day-to-day steps that must be

taken to achieve these goals).

GOOD INTENTIONS DON’T KEEP SCHOOLS RUNNING

The school facilities belonged to Ted, or so you’d think from the devoted way in which he cared for them. He was the head of

the facilities maintenance department and took great pride in the condition of the school district’s buildings and grounds. He’d

done a fabulous job for nearly 30 years and knew the needs of the district like the back of his hand. But the long-time superintendent had recently retired, and there was a new sheriff in town. Ted had briefed the newly hired superintendent on the status

and future of the facilities she had inherited and listened politely when she told him about her own five-year plan. Ted hadn’t

agreed completely with her assessment of the future, but thought that he’d give her a year or two to learn on the job. 

Six months later, Ted was tremendously upset when he found out that the district was closing his favorite old elementary

school. He’d never thought the superintendent would actually do it and had repeatedly ignored her warnings—choosing

instead to revamp the facility for 21st century instruction so that he could make a case for keeping the beautiful old building

when the time came. When news of the building’s impending demise arrived, he went straight to the superintendent to tell

her that it was a bad decision, but to no avail. She explained to him that demographic reports showed that the school

wouldn’t be able to meet the needs of the growing population. Moreover, funds had already been allocated for a new building. The school supervisors were on board, she was on board, and it was time for Ted to get on board. Ted took a deep

breath, swallowed his pride, and realized that the team had a new boss—and if he was going to be a team player, he had 

to align his work with her goals. Their efforts had to be coordinated. It was as simple as that.

“Planning” is the formulation

of a strategy for getting an

organization from the here 

and now to the future. As 

circumstances change over time,

strategies for achieving tomorrow’s

successes often change as well.

Good planners are always

mindful of the need to review,

and even revise, plans to meet

the changing needs of the

organization.
CHAPTER 2: PLANNING FOR SCHOOL FACILITIES MAINTENANCE 15

Who is involved in the planning process? Ideally, stakeholders include anyone who has a “sense of ownership” in facilities

decision-making, even though they might not have any legal

rights (or even expectations) to make decisions about school facilities

and property. As the list of stakeholders grows larger, it often makes sense to

include representatives of stakeholder groups (rather than every individual)

as long as the selection process is conducted fairly and equitably.

Steps for effectively engaging stakeholders in the planning process include:

✓ identifying all stakeholders

✓ determining appropriate ways to invite stakeholders to share their

opinions during the planning process (e.g., newspaper ads, web

sites, or direct mail)

✓ contacting stakeholders well in advance of the planning meetings

✓ entering a dialogue that truly welcomes stakeholders’ opinions

✓ inviting stakeholders to share unique skills and expertise they bring

to the process (e.g., you may have engineers, architects, or 

landscapers in the PTA who could lend their expertise)

✓ fostering a consensus-building atmosphere

✓ recognizing dissent as necessary, but not allowing it to derail 

consensus building

✓ including stakeholders in follow-up documentation and 

implementation efforts

DEVELOPING A FACILITIES MAINTENANCE PLAN REQUIRES:

✓ involving stakeholders in the planning process

✓ identifying needs (e.g., improving cleanliness and safety, correcting deficiencies, addressing deferred 

projects, increasing efficiency, decreasing utility bills)

✓ establishing priorities and targets

✓ collecting and using supporting data to inform decision-making

✓ sharing the plan to garner support from management and key stakeholders

✓ allocating funds to pay for planned activities

✓ training staff to implement planned activities

✓ implementing the plan 

✓ being patient while awaiting cost savings or other results

✓ evaluating the plan systematically 

✓ refining efforts based on evaluation findings

✓ reviewing and revising the plan periodically (e.g., every three years)

Why include stakeholders in

the planning process?

• to hear new ideas and 

perspectives 

• to demonstrate that planners

value stakeholder opinions

• to increase the likelihood that

stakeholders will “buy in” to

the plan
CREATING A UNIFIED ORGANIZATIONAL VISION

vision\vizh- n\n: the act or power of seeing; unusual discernment or foresight.

After planners (including stakeholders) have been identified, the first and most

important step in the planning process is achieving agreement on the desired

outcome of the organization’s efforts—that is, what is the group hoping that the

plans will lead to in the future? A good way of clarifying and specifying these

expectations is by developing a vision statement that affirms how an entity

wants to see itself in the future. An individual can have a vision statement, as

can a department, group, or even an entire organization. The purpose of a

vision statement is to develop a shared image of the future, which means gaining consensus about priorities. Thus, if an individual or department in an organization has a vision for its future, it cannot conflict with the vision of the larger

organization within which they work. The vision for the facilities maintenance

department, for example, must be driven by, and aligned with, the mission and

goals of the district it serves; otherwise, the facilities manager and school superintendent will come into conflict—which is not good for the school district and

certainly not good for the facilities manager! 

Some administrators might argue that the goal of the maintenance

department is simply that of the greater district it serves. However, it

becomes difficult to operationalize such a “vision” that is not closely related

to the day-to-day operations of the department. Thus, it is good practice for

the facilities department to collaborate with representatives of the rest of the

organization when generating consensus about its vision but, at the same

time, to create a vision that directly relates to its day-to-day activities.

A vision statement should be a living document, but not short-lived.

Otherwise, it can’t inform long-term decision-making and investment. All 

the same, a vision statement must be reviewed regularly to ensure that it

remains relevant to the potentially changing needs of the organization.

Investing time in creating a vision statement can save energy in the long run 

by reminding staff of their priorities, but it is not an answer in itself—the work

of maintaining a building still needs to get done. The vision statement merely

16 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

OPINIONS WELCOME: STAKEHOLDERS AND THE PLANNING PROCESS

Potential stakeholders in the planning process include, but are not limited to: 

maintenance staff/contractors parents students

custodial staff/contractors PTA representatives community groups/users

superintendent(s) taxpayers foundation representatives

principals school board members public safety officials/regulators

teachers school business officials city/county planners

department of education staff partners (in joint-use facilities) dept. of environmental quality staff

againsters* other government officials expert consultants (architects, 

engineers, demographers, attorneys)

* Againsters are people who make a habit of opposing any kind of change. To minimize the likelihood of last-minute delay tactics, planners must include these 

stakeholders in the decision-making process from the onset.

A vision statement 

is a proclamation 

of how an organization, department,

group, or individual

wants to see itself

in the future.

What does your community

value? The appearance of your

community’s school buildings

says a lot about its values.

Some communities have gone

one step further and actively

planned for their schools to

reflect greater community values.

For example, one school district

in Utah requires that art

museums and climbing walls

be included in all new school

construction to reflect the 

community’s belief in the

importance of art, exercise, 

and nature.

e
CHAPTER 2: PLANNING FOR SCHOOL FACILITIES MAINTENANCE 17

(but not unimportantly) sets the goal against which policies, practices, 

and efforts will be evaluated. For this reason, a vision statement should be

supported by measurable objectives.

The National School Boards Association’s online toolkit 

for “Creating a Vision” (http://www.nsba.org/sbot/toolkit/cav.html)

recommends that when creating a vision statement, it helps to:

✓ describe an ideal future for the organization

✓ think about the organization’s best interests and not individual 

or department interests

✓ stretch one’s thinking

✓ be open to change (even substantial change if that is deemed 

necessary)

✓ be positive and inspiring

✓ be clear

Moreover, when creating a vision statement, it is important to avoid:

✗ closed-mindedness

✗ parochialism

✗ selfishness

✗ disrespect

✗ short-term thinking

✗ partisanship

For more information about creating a vision, visit the following web pages: “Creating a

Vision” (National School Boards Association) at http://www.nsba.org/sbot/toolkit/cav.html; 

“A Visioning Process for Designing Responsive Schools” (National Clearinghouse for

Educational Facilities) at http://www.edfacilities.org/pubs/sanoffvision.pdf; and “Community

Participation in Planning” (National Clearinghouse for Educational Facilities) at

http://www.edfacilities.org/rl/community_participation.cfm.

✗ complacency

✗ infighting

✗ fear of change

✗ apathy

✗ “reality” (“we don’t have the budget

for that anyway”)

EXAMPLES OF UNCLEAR AND CLEAR VISION STATEMENTS

✗ Unclear: The Facilities Maintenance Department will contribute to the school district’s mission of educating our children 

to meet the intellectual, physical, and emotional demands of the 21st century.

While commendable, this vision statement provides little direction for day-to-day decision-making about the operations 

of the department.

✓ Clear: The Facilities Maintenance Department will provide a clean, orderly, safe, cost-effective, and instructionally 

supportive school environment that contributes to the school district’s mission of educating our children to meet the

intellectual, physical, and emotional demands of the 21st century.

This vision statement clearly and succinctly describes the department’s role in the district’s overall mission, and provides

a target that can direct the department’s day-to-day activities.

Creating a “vision” should take

place in a creative atmosphere.

Brainstorming, free-thinking,

and open-mindedness are

essential aspects of an honest

assessment of an organization’s

desired future.

Although a vision

statement should be

of a lasting nature, 

it must be revisited

periodically to 

verify its continued

relevance in an

ever-changing

world.
LINKS TO BUDGETING AND PLANNING

This is not a capital planning guide, but any responsible examination 

of school facilities planning warrants some discussion about the links

between facilities maintenance and facilities construction and renovation.

Capital outlay for school construction is generally a more palatable 

proposition for taxpayers and public officials when a school district

demonstrates that appropriate care and maintenance has been given 

to existing facilities.

Responsible facilities maintenance planning demands that attention be given

to a wide range of other issues that influence organizational budgeting, including insurance coverage, land acquisition, equipment purchases, and building

construction and renovation. While a detailed discussion of these issues is

outside the scope of this Planning Guide, links to other resources that address

these and other budgeting topics can be found at the end of this chapter.

For more information about maintenance costs and budgeting, visit the following 

web pages: “Budgeting for Facilities Maintenance and Repair Activities” at

http://www.nap.edu/books/NI000085/html/index.html and “Maintenance & Operations 

Costs” at http://www.edfacilities.org/rl/mo_costs.cfm.

WHAT A SHARED VISION CAN ACCOMPLISH

An elementary school created a vision statement that emphasized each child learning how to read. The development

process included comprehensive input from staff, students, and community members. Moreover, planners went to

great efforts to publicize the vision within the school and community. Several days after the kick-off ceremony for the

school’s Vision for the 21st Century, the principal noticed that labels had appeared on objects throughout the school.

The water fountains were marked “water fountain,” fire extinguishers were labeled “fire extinguisher,” and the smoke

detectors were marked “smoke detector.” When the principal inquired about the phenomenon, the school custodian admitted that he had posted the labels as his contribution to helping the children learn how to read—and the principal immediately

knew that the team approach to developing and publicizing the school’s vision statement had been a success.

18 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

FACILITIES MANAGERS, GOOD ACCOUNTANTS, 

AND COMMON SENSE WILL TELL YOU THAT:

The maintenance and operations budget is for existing facilities and equipment.

Capital project funding – including staff time devoted to capital projects – must

come from other sources. Otherwise, existing facilities will be neglected whenever there is a construction or renovation project because the maintenance staff

will be drafted into service to work on capital improvements.
CHAPTER 2: PLANNING FOR SCHOOL FACILITIES MAINTENANCE 19

DATA FOR INFORMED DECISION-MAKING

Good data are necessary to inform good decision-making. 

It is as simple as that. Thus, facilities maintenance plans should

be based on a foundation of high-quality data about all school

facilities. Otherwise, planners are forced to work without context, and

strategic planning becomes strategic guesswork. Planners must know what

facilities exist, where they are located, how old they are, and their status/condition. Are equipment and facilities working as designed? As they should? As

they need to be? 

Additionally, planners must consider projected needs for the future. For

example, demographers can provide important estimates of the projected

growth of student populations—that is, how many school-age children will 

be in each neighborhood over the next decade. The only way to ensure that

planners have the information they need to make effective decisions is to 

collect data in a regular, timely, and consistent manner. Data collection 

is a time-consuming (and ongoing) task that cannot be overlooked. For

efficiency’s sake, an education organization may partner with other entities 

that share their interest in school facilities data—for example, the local

Chamber of Commerce, the state government, or even local real estate 

companies. Chapter 3 of this Planning Guide discusses facilities audits 

(i.e., data collections), which are an important area of focus for responsible

facilities managers. The National Forum on Education Statistics has

developed a companion publication, Facilities Information Management: 

A Guide for State and Local School Districts, to help address these issues. 

It can be downloaded at http://nces.ed.gov/forum/publications.asp.

EXPERTS IN RESIDENCE: MAXIMIZING COMMUNITY RESOURCES

The facilities management planning team at Valley School District had worked very hard to devise a strategy that

would ensure a sound future for the small district’s grounds and buildings. Three parents, two teachers, a vice principal,

an assistant superintendent, a school board member, the PTA president, the mayor’s assistant, the facilities manager, his

assistant, and a custodian all came to a consensus regarding the major points of the plan. When the document was

presented to the superintendent, she said that the plan sounded very good but that she wanted to have it reviewed

by some construction and insurance specialists. The facilities manager politely interrupted her, “Excuse me, ma’am,

but I don’t think we need to do that.” The superintendent looked at him with surprise. “Why, Edward, I’m not doubting the planning team’s abilities, but it’s my professional opinion that the plan should be reviewed by experts outside

the field of facilities management.” “Oh, I agree,” Edward responded, “I just wanted to let you know that we’ve

already gotten input from an insurance agent and a developer, and we didn’t need to pay for it either. You see, Mr.

Jackson, who has a child in the high school, is a developer, and Mrs. Ramirez, the PTA president, is a commercial

real estate agent. What’s more, Mrs. Allen, who is also a parent, is an accountant, and she’s verified that all of our

financial projections are sound.” The superintendent looked at the group, “My goodness, you’ve done a thorough

job. And efficient too.” She looked to the community volunteers in particular, “We owe you thanks not only for 

your time, but also for your expertise.” The facilities manager smiled, knowing that he and his team had done a

good job and maximized their community’s resources to benefit the district. The project would go on without delay

or additional expense.

Informed decision-making

requires ready access to 

high-quality data that describe

the status of the organization’s

facilities, its needs, and 

capabilities.
COMMONLY ASKED QUESTIONS

Why plan for school facilities maintenance? 

Facilities maintenance doesn’t occur in a vacuum. After all, grounds and

buildings belong to school districts, not maintenance departments. The

maintenance department’s job is to ensure that facilities and grounds are in

adequate condition to support the mission of the district. Thus, day-to-day

maintenance activities must be guided by a school facilities maintenance plan

that is informed by, and aligned with, a larger organizational plan. Without a

coordinated plan, it is impossible to know whether day-to-day maintenance

operations support current and future organizational priorities.

Why should an organization go to the trouble of including stakeholders 

in facilities maintenance planning? 

Stakeholder feedback provides new perspectives and fresh ideas to the

planning process. Moreover, when stakeholders participate in organizational

planning, they are more likely to buy into the strategies that they have helped

to establish. “Buy-in” becomes especially significant when one recognizes that

likely stakeholders in the facilities maintenance planning process include

maintenance and custodial staff, teachers, parents, students, superintendents,

principals, board members, school business officials, and community groups.

“

”

PHRASES FROM MODEL SCHOOL 

FACILITIES MAINTENANCE VISION STATEMENTS

maintain a healthy school environment

ensure the appropriate use of school space for educational practices

maximize facility use (e.g., nights and weekends) to optimize investment

guarantee equitable allocation of educational resources

create and maintain a physical environment that supports the needs of the academic 

program, staff, students, other users, and visitors who use the campus

operate, maintain, and promote quality facilities, grounds, and services to efficiently and

effectively support the instructional and service programs

provide the physical environment, utilities, and support services necessary to promote 

educational activities

maintain buildings, grounds, and equipment that are fundamental to a healthy academic

environment

provide an atmosphere that allows students, faculty, and staff to meet or exceed their 

personal and departmental goals in support of the academic mission of the schools

supply appropriate environmental services in the most efficient and economical manner 

promote a safe, clean, and aesthetically pleasing campus environment

respond to the environmental needs and requirements of the school district

provide an optimum learning, teaching, and working environment for all students, 

faculty, and staff within the school community

sustain the integrity and appearance of the campus environment while supporting 

the pursuit of the educational process

Q&A

20 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Facility planners need to consider

data collection and use as a

valuable tool in the planning

process. Having “the facts” 

(i.e., good data) is always a

good starting place for making

good decisions.
CHAPTER 2: PLANNING FOR SCHOOL FACILITIES MAINTENANCE 21

Why should an organization bother to develop a “vision statement” for

facilities maintenance? 

A vision statement helps to focus facilities maintenance policies, procedures,

and day-to-day operations on the needs of the larger organization. Without a

vision statement (the target), management risks inefficient use of resources by

squandering time, money, and effort on activities that are not consistent with

the long-term needs of the organization. Moreover, a well-publicized vision

statement reminds staff at all levels of the overarching purpose of their work.

Who reads a vision statement? 

Hopefully, lots of people, but that is a function of how well the organization

disseminates the vision statement. A vision statement only has impact when

it is read. Thus, it should be shared with everyone who maintains, supports,

or uses school facilities. If stakeholders are aware of the organization’s vision

for its future, they can align their own long- and short-term plans to direct

day-to-day activities in support of that vision.

ADDITIONAL RESOURCES

Every effort has been made to verify the accuracy of the URLs listed in this

Guide at the time of publication. If a URL is no longer working, try using the

root directory to search for a page that may have moved. For example, if the

link to http://www.epa.gov/iaq/schools/performance.html is not working, try

http://www.epa.gov/ and search for “IAQ.”

American School and University Annual Maintenance 

and Operations Cost Study

http://images.asumag.com/files/134/mo%20school.pdf 

An annual survey that reports median national statistics for various maintenance and operations costs, including salary/payroll, gas, electricity, utilities,

maintenance and grounds equipment and supplies, outside contract labor,

and other costs. 

Budgeting for Facilities Maintenance and Repair Activities

http://www.nap.edu/books/NI000085/html/index.html

An online publication that focuses on how to estimate future facility maintenance and repair needs. Federal Facilities Council, Standing Committee on

Operations and Maintenance, National Research Council (1996) National

Academy Press, Washington, DC.

Community Participation in Planning

http://www.edfacilities.org/rl/community_participation.cfm

A list of links, books, and journal articles about how community members

can become involved in the planning and design of school buildings and

grounds. National Clearinghouse for Educational Facilities, Washington, DC.

“CLEAN” IS A RELATIVE TERM 

Your local high school can be cleaned by a single person—no kidding! The only catch is that you have to be willing to live

with the job that would be done. Thus, there must be agreement on expectations. Somebody is bound to be unhappy if 

parents expect 4-star hotel conditions but planners only budget for discount motel standards.

Be prepared to meet the needs

of inconvenienced stakeholders—e.g., if major renovations

are scheduled for public fields,

efforts should be made to

identify alternative sites for

community use.
Creating a Vision

http://www.nsba.org/sbot/toolkit/cav.html

An online toolkit from the National School Boards Association for creating

a vision in school organizations.

Maintenance & Operations Costs 

http://www.edfacilities.org/rl/mo_costs.cfm

A list of links, books, and journal articles citing national and regional

maintenance and operations cost statistics and cost-reduction measures for

the upkeep of school buildings and grounds. National Clearinghouse for

Educational Facilities, Washington, DC.

Maintenance Planning, Scheduling and Coordination 

A book focusing on the preparatory tasks that lead to effective utilization

and application of maintenance resources: planning, parts acquisition, work

measurement, coordination and scheduling. Nyman, Don and Levitt, Joel

(2001) Industrial Press, New York, NY, 320pp. 

The Rural and Community Trust 

http://www.ruraledu.org/facilities.html

The web site of The Rural and Community Trust, which works with many

small towns and counties in which the school remains the center of the

community. The Rural and Community Trust provides a network for people

who are working to improve school-community facilities, increase community participation in the facilities design process, and expand the stakeholders

these public resources can serve.

A Visioning Process for Designing Responsive Schools

http://www.edfacilities.org/pubs/sanoffvision.pdf

A guide for helping stakeholders establish the groundwork for designing and

building responsive, effective community school facilities, including an explanation of the benefits of community participation and how to go about the

process of strategic planning, goal setting, articulating a vision, design 

generation, and strategy selection. Sanoff, Henry (2001) National

Clearinghouse for Educational Facilities, Washington, DC, 18pp.

GOOD MAINTENANCE IS :

✓ proactive

✓ a team effort

✓ based on preventive maintenance

✓ money well spent

✓ an effective method of reducing the life-cycle cost of a building

✓ in the best interest of taxpayers

✓ complementary to educational objectives

✓ not a secondary aspect of education

PLANNING + INFORMATION = SUCCESS

22 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES
CHAPTER 2: PLANNING FOR SCHOOL FACILITIES MAINTENANCE 23

YES NO

ACCOMPLISHED CHECKPOINTS PAGE

Is there a facilities maintenance plan? 

Is facilities maintenance planning a component of overall organizational

planning? 

Does the facilities maintenance plan include long- and short-term 

objectives, budgets, and timelines? 

Have potential stakeholders in the facilities maintenance planning

process been identified? 

Have appropriate avenues for publicizing the facilities maintenance

planning process to staff and community stakeholders been investigated

and undertaken? 

Have representative members of stakeholder groups been invited to 

participate in the facilities maintenance planning process? 

Have representative members of stakeholder groups been selected fairly

for participation in the facilities maintenance planning process? 

Have individual views and opinions been a welcomed aspect of the

consensus-building process? 

Have stakeholders been included in follow up efforts to document 

and implement decisions? 

Has a vision statement for school facilities maintenance been 

constructed? 

Is the vision statement for school facilities maintenance aligned with the

vision and plans of the rest of the organization? 

Is the vision statement closely related to the day-to-day operations of

the facilities maintenance staff? 

Have comprehensive, accurate, and timely school facilities data been

used to inform the planning process (see also Chapter 3)?

PLANNING FOR SCHOOL FACILITIES MAINTENANCE CHECKLIST

More information about accomplishing these checkpoints can be found on the pages listed in the right-hand column.

13

13

13

15

15

15

15

15

15

16

16

16

19

CHAPTER 3 

FACILITY AUDITS:

KNOWING WHAT YOU HAVE 

Facility audits require time, energy, expertise and, therefore, resources. 

Although performing a comprehensive and accurate audit will not be 

cheap, it is economical all the same because it is a necessary step in the 

effective and efficient management of school facilities.

CHAPTER 3: FACILITY AUDITS: KNOWING WHAT YOU HAVE 25

Table of Contents:

Why Audit Your Facilities? ......26

How to Conduct 

Facility Audits ................................27

Who Collects the Data? ......27

What Data Need 

to Be Collected? ......................28

When Should Data 

Be Collected?............................31

Data Management ......................32

Data Use ........................................34

Commissioning: A Special 

Type of Facilities Audit..............35

Commonly Asked Questions ....37

Additional Resources..................38

Facility Audit Checklist..............41

GOALS: 

✓ To convey the importance of inventorying buildings, grounds, and equipment

✓ To explain how best to collect, manage, and use facilities data from a facility audit

LET’S GET OUR STORIES STRAIGHT...

OR MAYBE IT’S BETTER THAT WE DON’T

The audit team pulled into the parking lot at the high school. As the maintenance

supervisor and a local structural engineer were on their way into the building, 

the building principal pointed their attention to a well-worn sill on a bank of windows outside the gymnasium. “We’ll have to put that window sill on the list as

being in need of painting,” he noted perfunctorily. “Actually,” the maintenance

supervisor replied, “that job is going to require scraping and maybe even powerwashing. It’s more than just a simple maintenance job, so we’ll mark it as 30 feet

of a $10-per-foot improvement project.” The structural engineer looked critically

at the roof above the window sill. “In my opinion, we’ve got to consider the possibility of a failed lintel due to a damaged roof truss and undersized roof drain.

We’ll need to look at it more closely to be sure.” The principal scratched his head, 

“You know, I was really only concerned about how it looked.” The maintenance

supervisor nodded, “And I was only worried about what it would cost to fix.” The

structural engineer was quick to interrupt him, “You might very well be correct

with your assessment, but the only way to be certain is to check that truss and

drain.” “Well,” the principal smiled, “I guess that three sets of eyes are better

than one.” “Especially when each sees the world from a different perspective,”

laughed the maintenance supervisor. “That’s right,” the engineer agreed, 

“I’m the theorist.” He looked at the maintenance supervisor, “You’re the realist. 

And you, Mr. Principal, represent the bottom line.”
26 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

WHY AUDIT YOUR FACILITIES?

Things change. It is a fact of life and of school facilities maintenance planning. The luster of new buildings and equipment are sure to fade over time.

And as facilities age, their condition changes as well. But change isn’t always

a bad thing. For example, a two-year-old air-handling system might perform

better than a new system because its operators have had 24 months to learn

how to use it and “get out the kinks.” Of course, this assumes that the operators have maintained the equipment responsibly along the way—changing filters

and belts as needed. If, however, the same air handler is operating well after 10

years of service, it is safe to assume that more extensive maintenance efforts

have been undertaken—valves and gaskets will have been replaced and the

compressor pump serviced (probably more than once). 

Because the definition of what constitutes “proper maintenance” changes

over the life of the equipment or building, knowing the age and condition

of a facility or piece of equipment is a prerequisite for maintaining it properly.

Otherwise, maintenance efforts are a hit-or-miss situation—some things only 

get fixed when they break while others get “maintained” on a routine basis

whether they need it or not. When an education organization knows the status

of its facilities and equipment, the need for maintenance, repairs, and upgrades

becomes much clearer—after all, it is tough to argue against good data!

A facility audit (or inventory) is a comprehensive review of a facility’s

assets. Facility audits are a standard method for establishing baseline information about the components, policies, and procedures of a new or existing

facility. An audit is a way of determining the “status” of the facility at a given

time—that is, it provides a snapshot of how the various systems and components are operating. A primary objective of a facility audit is to measure the

value of an aging asset relative to the cost of replacing that asset. Thus,

facilities audits are a tool for projecting future maintenance costs. 

Facilities audits are accomplished by assessing buildings, grounds, and 

equipment, documenting the findings, and recommending service options to

KNOWING THE CONDITION OF YOUR FACILITIES

Facility audits are important because they:

✓ Help planners, managers, and staff know what they have, its condition, service history, 

maintenance needs, and location

✓ Provide facts, not guesswork, to inform plans for maintaining and improving school facilities

✓ Establish a baseline for measuring facilities maintenance progress

✓ Allow in-depth analysis of product life cycles to occur on a routine basis (i.e., measuring 

actual life versus expected life)

The definition of what constitutes “proper maintenance” changes over the life of the

equipment and building. Thus, knowing the age and status of one’s facilities is a 

prerequisite for maintaining them properly.
e

CHAPTER 3: FACILITY AUDITS: KNOWING WHAT YOU HAVE 27

increase efficiency, reduce waste, and save money. Thus, an audit provides the

landscape against which all facilities maintenance efforts and planning occur.

Facility audits should be a routine part of the facilities maintenance

program. However, they are often precipitated by the information needs of

upper management, taxpayers and voters, and legislative or regulatory

bodies. By integrating the findings of annual audits over time, planners

can ascertain realized (versus expected) product life cycles, the impact of

various maintenance strategies and efforts on product life cycles, and the

future demands the aging process might place on the infrastructure of a

school district. This information can be used to increase the efficiency and

cost-effectiveness of facility use and maintenance efforts in the future.

HOW TO CONDUCT FACILITY AUDITS

data \dat- \ n: factual information (as measurements, observations, or statistics)

used as a basis for reasoning, decision-making, or calculation.

A facility audit is a data collection process, pure and 

simple. The aim of the audit is to conduct a comprehensive

inventory that meets the needs of the entire district management

effort – i.e., facilities, technology, and curriculum planners – in a coordinated manner and thereby avoids the need for redundant collection efforts.

Who Collects the Data?

The first step in the auditing process is to determine whose perspective will

guide the audit. Auditors may be school district staff or outside consultants.

Resources play a large role in this decision. Small districts may not be able to

afford an audit specialist whereas larger organizations might employ several.

Above all, auditors must possess a thorough understanding of facility maintenance and operations and have enough time to perform the task properly.

Intangible characteristics of a good auditor include an inquisitive nature,

devotion to details, and the patience to do the job thoroughly. Finally, 

auditors and auditing teams should understand how facilities are used for

instructional purposes on a daily basis.

The terms “audit” and 

“inventory” are often used

interchangeably—the former

referring to the “act of inspecting”

and the latter to the “act of

recording.” This Planning

Guide uses the term “audit” 

to refer to both activities:

inspecting and recording.

RANGE OF EXPECTED EQUIPMENT SERVICE LIFE

Equipment Expected Years Actual Years*

A/C window unit 10 – 15 ?

Steel water-tube boiler 24 – 30 ?

Wood cooling tower 20 – 25 ?

Lighting ballasts 7 – 10 ?

Emergency battery 5 – 7 ?

Carpet 12 – 15 ?

*The third column cannot be completed without an audit.

Note that factors such as 

location (in or out of direct 

sunlight), environmental 

conditions (humid or dry air),

and actual use (as opposed 

to recommended use) can 

greatly affect the expected 

service life of equipment. 

LIFE-CYCLE COSTS: MORE THAN

JUST THE STICKER PRICE 

FINANCING

14%

ALTERATIONS

25%

CONSTRUCTION

11%

OPERATIONS

50%

The initial cost to construct a building typically 

represents only a small portion of the actual 

cost to own the facility over its lifetime. 

Source: HVAC Applications (1999) American

Society of Heating, Refrigeration, and Air

Conditioning, Atlanta, GA.
Regardless of the size of the school district and the organizational affiliation

of the auditors, facility audits are best carried out by teams of two or more

people rather than by an individual. Although the auditor should understand

the general workings of a school facility, he or she should be accompanied by

someone who is intimately familiar with the facility being studied (e.g., a custodian, maintenance staff member, or school principal who works in the facility

on a regular basis). The team approach promotes several desirable outcomes:

encouraging multiple perspectives (e.g., instructional, technical, financial, and

cultural) on the condition of facilities; sharing expertise when making difficult

judgment calls; corroborating and confirming decision-making; and crosstraining staff for future audit and facility management responsibilities.

What Data Need to Be Collected?

After deciding upon an audit team, the next step in planning for a facilities

audit is to define the scope of work—that is, what information needs to be

gathered and how detailed and comprehensive should it be? The simple

answer is “very comprehensive.” It should include data on all facilities, infrastructure, grounds, maintenance staff (e.g., specialized training courses attended),

and equipment (including boilers, HVAC systems), floor finishes, plumbing

fixtures, electrical distribution systems, heating and air conditioning controls, roof types, flooring, furniture, lighting, ceilings, fire alarms, doors and

hardware, windows, technology, parking lots, athletic fields/structures, playground equipment and landscaping, and the building envelope. Other issues

to consider during an audit include accessibility (does a facility meet the

requirements of the Americans with Disabilities Act, or ADA?), clean air,

asbestos, fire, occupant safety, energy efficiency, susceptibility to vandalism, 

and instructional efficiency (e.g., alignment with state and local classroom

standards). 

HIGH-QUALITY FACILITIES DATA CAN BE USED TO:

✓ determine the state and condition of the facility – because without collecting information, assessing an entity’s 

condition is simply guesswork.

✓ establish a baseline for measuring change – such trend analysis (are things getting better or worse?) is only possible 

if the assessor has information about how things used to work at a previous point in time.

✓ assess progress – after all, “progress” is a relative term that has meaning only in the context of baseline measurements.

✓ predict and model the impact of modifications – so that systems analysis can be extended to predictions of future 

performance when based on quality data and sound modeling methods.

✓ assist in decision-making for repairs, renovation, or abandonment – because nothing “informs” sound decision-making

like good “information.”

✓ report district information in state and federal data collections and assessments – which often provide funds to help

meet reporting requirements.

✓ populate Geographic Information Systems (GIS) – and inform new school site selection and other planning decisions. 

✓ justify a bond initiative – which is simply a special type of decision-making process (and nothing strengthens an 

argument like supporting facts based on objective data).

28 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Good auditors are inquisitive,

detail-oriented, and methodical.

They possess a thorough 

understanding of facility 

maintenance and operations,

and have adequate time to 

perform the task properly.
CHAPTER 3: FACILITY AUDITS: KNOWING WHAT YOU HAVE 29

More specifically, building components include, but are not limited to:

✓ rooms

✓ interior walls

✓ interior doors

✓ floors

✓ plumbing

✓ electrical systems

✓ HVAC systems

✓ kitchens

✓ hardware 

✓ egresses

✓ communications equipment (audio, video, and data)

✓ exterior envelope (walls and windows)

✓ roof and roofing materials

✓ foundations and basements

Grounds include, but are not limited to:

✓ courtyards

✓ unimproved fields

✓ athletic fields

✓ playgrounds

✓ parking lots

Equipment includes, but is not limited to:

✓ fixed equipment (motors, compressors, telephones, computers)

✓ tools (lawn mowers, snow blowers, leaf blowers, drills)

✓ vehicle fleets (buses, vans, trucks, cars)

✓ supplies (motor oil, cleaning agents, pesticides, and other 

chemicals)

✓ campus roads

✓ signage

✓ traffic patterns

✓ trees and shrubs

✓ landscaping

WHO DO YOU CALL WHEN YOU NEED A FACILITIES AUDIT?

User assessments are helpful, but most users lack expertise.

Maintenance staff reviews are good, but employees may lack the time to take on

this “extra” responsibility.

Expert facilities consultants are usually very reliable, but can be expensive.

Vision = 

What you hope

Plans = 

What you expect

Data = 

What you know

One can of gum and graffiti

remover (a class 4 flammable)

stored at a school site probably

doesn’t present much of a 

hazard. However, 10 cases in a

single room is a different story.

Planners must get enough

detail from an audit to tell the

difference!
Facilities audits should also include a review of facility records and

reports so that potential problems can be identified before they turn into fullblown problems (e.g., records indicating that filters have not been changed

for nine months might suggest that indoor air quality problems are on the

horizon). Furthermore, a comprehensive audit should also look at the

underlying practices and processes that support the maintenance of facilities.

Doing so can help to ensure that “standard operating practices” are not only

in the plans, but being implemented on a daily basis. Moreover, because

some types of record keeping are regulated (such as boiler maintenance

records, amount and type of fuel used, operation of emergency generators,

and use of pesticides), an audit should verify that required records are being

maintained.

Energy use should also be included in a facilities audit—meaning that all

elements of the building’s structure and operation must be evaluated with

respect to energy use. Energy audits typically include computer-based

modeling of the building. Once a base model is developed to match existing

building conditions, modifications can be introduced to evaluate the impact

of potential system upgrades on annual energy use. In this way, an audit and

energy model can be used to predict the impact of lighting upgrades on a

building’s heating and cooling systems.

THE CASE OF THE “RED HOT” CLASSROOMS

Eileen, the school facilities manager, had a problem. Most of the classrooms in the district’s new science and technology 

magnet school were, to put it simply, hot. Eileen and her top-notch staff were stumped. They had verified that the chiller and

components of the HVAC system were in working order, but the system kept getting overworked and the rooms kept getting

uncomfortably warm. Eileen studied the building specs time and time again, but to no avail. The data made sense: the HVAC

system fit the square footage and 200-student capacity of the building. What was wrong? Did she have bad data? What else

could it be? Once again she logged into the classroom inventory database: 16 students per room, one teacher, one aide, two

doors, six windows, tile floors, six electrical sockets, eight computers—and the light bulb finally went off! “That’s it!” she

yelled aloud to her assistant. “The computers—they give off heat too, and that means that each classroom has the equivalent

of 26 people in it, not 18. That’s the extra load.” Sure enough, Eileen‘s follow-up research on the Internet verified that the

“average” child and “average” computer and monitor both occupied about 30 ft 2

and emitted 300 btu per hour. Her data

were sound after all, and she had solved the mystery of the “red hot” classrooms!

THINK COMPREHENSIVELY...

“Buildings” include not only schools, but athletic facilities, tool sheds, and

remote sites.

“Grounds” include not only unpaved surfaces (e.g., fields) and paved surfaces

(e.g., parking lots), but also pedestrian and vehicular traffic that typify them.

Grounds also incorporate landscaping, which affects not only the aesthetic presentation of school property, but also water flow, energy use, and even 

personal safety.

“Equipment” includes all vehicle fleets—from lawn mowers to school buses 

and district-owned automobiles.

Facilities data can include

operational data and costs 

of a system. Even if overall 

operations are sound, data

analysis can identify areas 

for improvement. Analysis 

of data may also reveal clues

to impending problems that 

no one is even looking for!

30 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES
CHAPTER 3: FACILITY AUDITS: KNOWING WHAT YOU HAVE 31

How audit findings get recorded depends on the data collection system

being used in the organization. Options range from high-end software with

electronic pick lists on palm pilots (or laptop computers) to low-end steno

pads and pencils. Regardless of the recording mechanism, all data must

eventually be converted into an electronic format. If the data are collected

electronically at the outset, they can be exported easily into a database or

spreadsheet. If the data are collected manually, they will need to be keyed into 

a database or spreadsheet—introducing a significant source of possible errors.

Re-keying data is also an inefficient use of staff time. However, if portable 

electronic equipment is not available for the data collection, it may be a 

necessary step in the audit process. 

Once the annual audit is accomplished, facilities staff should review the

findings for accuracy. Moreover, every subsequent modification, upgrade, and

renovation should be integrated into the audit records. Maintaining these

data in an orderly and consistent fashion ensures that planners and repair

people alike know the most current status of the facilities as they make 

their day-to-day and long-term decisions.

When Should Data Be Collected?

The ideal time to initiate a facility audit for the first time is when

the organization undertakes major construction or renovation

activities. However, if major work is not scheduled, a facility

auditing program should be established just the same. Once initiated, audits must be performed on a regular basis (e.g., annually) because

conditions are constantly changing. If facility audits are an ongoing feature

of maintenance management, each year’s data can inform the next year’s

audit and make the task much easier. 

AT A MINIMUM, AN AUDIT SHOULD RECORD THE FOLLOWING:

✓ what (brand name, model numbers, serial numbers, etc.)

✓ quantity and product size 

(e.g., size 4 or “medium”) 

✓ where

✓ age

✓ condition

✓ working as purchased/designed?

✓ working as it should be?

✓ working as it needs to be to meet

the needs of the users?

✓ repair history

✓ specialized upkeep requirements 

(e.g., oil and filter types)

✓ evidence of future needs

✓ recommended service

✓ estimated remaining useful life

A PICTURE IS WORTH A THOUSAND WORDS

Videotaping of sites can be a powerful data collection and documentation tool.

Videos can be taken with digital cameras or converted to digital format without

much trouble. They then provide a record of facility conditions—showing

improvements already made or deficiencies that must be remedied. Videos can

also serve as evidence of ownership, for example, when filing an insurance claim

for items lost in a fire.

Regardless of the recording

mechanism, all data eventually

need to be converted into an

electronic format so they can be

managed, analyzed, and stored

more efficiently. Data should

also be recorded consistently so

that comparisons can be made

over time (a task known as

“trending” or “benchmarking”).
DATA MANAGEMENT

Most school facility managers are extremely competent and have served their

districts well for many years. They are ingenious problem solvers with plenty

of common sense. However, the roles and responsibilities of a facility manager have changed greatly in recent years. Their duties range from asbestos

management to contract procurement, from high-tech computer operations

to refitting a 50-year-old coal boiler. Some of these tasks leave little room for

error. Thus, facility managers must be expert collectors, organizers, and assessors of facilities data if a school district is to have safe and well-maintained

school buildings.

But data collection is not an end in itself. Rather, data collection should

be motivated by and geared toward providing information that results in better management of the organization. Which data are collected may be driven

by diverse information needs: the boss’s monthly report, the school board’s

quarterly report, the state’s annual collection of facilities data, and regulatory

requirements, to name a few. If these reports are not submitted in a timely

manner, someone is going to come looking for them. However, collecting

meaningless data and submitting an equally meaningless report is unlikely to

be of much value to the planning process. On the other hand, collecting and

reporting good data for use in analysis, trending, and planning is a vital step

toward good organizational management.

The facility operations budget typically represents about 10 percent of 

a school district’s entire spending (not including capital funding for major

construction and renovation projects). Thus, facilities warrant the attention 

of an education organization’s top management, who should appreciate that

investing resources in facilities data collection and information systems is an

integral part of any district-wide management plan. These systems do not

have to be expensive, although effective facilities data management is worth

a substantial investment. In fact, trying to manage a school district without

such an effective audit system is by far the most expensive solution of all,

because other resources (human, capital, and operational) might be squandered if they are not being directed by management plans based on accurate

and timely data. 

GOOD DATA COLLECTION AND USE: A FRIEND TO STUDENTS AND ADMINISTRATORS ALIKE

Good data collection and use can be as simple as a log or notation system on a building’s floor-plan diagram.

For example, Cheryl, the school nurse at Homer Elementary, decided to identify every accident incident that

was reported in her school building. When she marked a third fall in the same location on her floor plan, she

told the principal who, in turn, initiated a more detailed investigation. It turned out that a newly hired

custodian was over-applying buffing oil on his dry mop and leaving an extremely slippery residue on the

floor. The custodian was immediately retrained on how to apply the buffing agent correctly, and the training sheet for new staff was updated to discourage similar mistakes. Thanks to Cheryl’s simple (and inexpensive)

data collection tool, the school probably avoided additional injuries to students. 

32 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES
CHAPTER 3: FACILITY AUDITS: KNOWING WHAT YOU HAVE 33

Because facilities data are so valuable, they should be regarded as an organizational asset that must be considered in any

risk management planning—in other words, these data must be

maintained securely. Backup data files should be stored in multiple

safe sites (referred to as “distributed storage”) to decrease the likelihood of

accidental loss or damage. Many organizations, including some schools, contract with outside service providers to store backup files at remote locations. 

Similarly, original facility drawings (as-designed and as-built) are 

irreplaceable, and should be treated as such. They should be time- and

date-stamped, scanned, archived (redundantly), and loaned out only under 

a strictly enforced chain of custody. The facilities department needs to

serve as the custodian of all facilities records or verify that someone else 

is handling the job responsibly.

Data exchange and the ability to move data to upgraded software systems

are two issues that school districts are increasingly encountering. Thus, facilities maintenance data must be stored in a computer database that is robust

enough to allow for easy data import and export. At the very least, the data

should be stored using a standard spreadsheet format with each column representing a data field (or element) and each row representing a data record. 

Images stored in standard formats (such as TIFF and JPEG) are also easily

manipulated between systems. In recent years, document imaging software and

supporting computer equipment have become more affordable. Thus, many

school districts are investing in document imaging systems to reclaim office

space taken up by large storage cabinets. These systems can be used to scan

documents (blueprints, contracts, manuals, purchase orders, etc.) and store

the images on computer hard disks or CDs. The images can be indexed by

keywords for fast searching and retrieval. Some document imaging systems

have optical character recognition (OCR) capabilities that enable image

retrieval based on user queries. 

FEATURES COMMON TO GOOD DATA COLLECTION SYSTEMS FOR FACILITIES AUDITS INCLUDE:

✓ The element list includes all buildings, grounds, and equipment at all sites.

✓ The element list is comprehensive for all rooms and spaces in all buildings.

✓ The element list reflects both permanent features (structures) and temporary features (e.g., traffic patterns, 

snow buildup areas).

✓ Data collections are element driven and do not include fields for long narratives (i.e., the data must be able to fit into 

a spreadsheet format).

✓ Data are collected on an element-by-element basis so that records are maintained about each individual component 

(e.g., for each window a record is kept of its precise location, year of installation, brand of replacement parts, service

dates and descriptions, etc.).

✓ The data are recorded electronically in a format that can be exported into a database or spreadsheet without rekeying

(saving time and reducing clerical errors).

✓ The data are reviewed for accuracy and completeness by the facility management and maintenance team. This team 

prioritizes the findings and modifies the scope of the data collection as new issues are identified.

How does your

organization collect

and use facilities

data? If you don’t

know, your 

organization may

need a more 

systematic approach

to data management.
34 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Although many schools and school districts have automated their data

collection and record-keeping systems, smaller organizations may not have

either the need or the resources to do so. However, a computerized maintenance management system (CMMS) is necessary when staff are responsible

for managing more than about 500,000 square feet of facilities. At that point,

facilities, assets, staff, and scheduling become complex enough to warrant an

investment in CMMS software, equipment, and staff training. Moving to a

CMMS requires resources, manpower and, above all, support from management at all levels of the organization. Good CMMS packages should be

compatible with the district’s other operating systems and software and integrate a wide range of facilities management components—including facilities

(structures and spaces including grounds and equipment), staff, users, work

orders, scheduling, and compliance and regulatory issues. More specifically,

asset management software should track building components, furniture, and

equipment by their age and life cycle, and report preventive maintenance

measures necessary for effective resource management.

DATA USE

Facilities data are not only useful, but also a necessary component of responsible

facilities management—which, for most people, is the only justification for

incurring the costs associated with collecting and storing data. In a general

sense, data from facility audits assist decision-making with respect to repairs,

renovations, or abandonment of a building. More specifically, however, some

facilities data must be readily accessible in the case of emergency (e.g., building blueprints may be important when fighting a fire). Other data are necessary for long-term planning (e.g., expiration dates on roof warranties). Finally,

some information is needed on a day-to-day basis (e.g., fuel requirements and

load capacities on a fleet of buses). In all cases, effective school management

requires that facilities data be accessible in a timely manner. 

Facilities data are

facilities history. 

They are essential 

for warranties,

insurance claims,

operations, and 

planning.

CMMS software is a 

cornerstone of facility 

management for any district

with more than 500,000

square feet of building space.

EXAMPLES OF A FACILITIES AUDIT SPREADSHEET

This “School Building Facilities Management Checklist” is included in its entirety in Appendix D.
CHAPTER 3: FACILITY AUDITS: KNOWING WHAT YOU HAVE 35

For more information about facilities data collections and audits, visit the 

following web pages: Basic Data Elements for Elementary and Secondary Education

Information Systems at http://nces.ed.gov/pubsearch/pubsinfo.asp?pubid=97531; 

Facilities Information Management: A Guide for State and Local School Districts 

at http://nces.ed.gov/forum/publications.asp; Facilities Assessment at http://www.edfacilities.org/

rl/facility_assessment.cfm; and Operation and Maintenance Assessments: A Best Practice for

Energy-Efficient Building Operations at http://www.peci.org/om/assess.pdf.

COMMISSIONING: A SPECIAL TYPE OF FACILITIES AUDIT

Even the best-trained auditors are unlikely to know whether systems are

operating as designed and intended just by looking at them (because 

“systems” can not be evaluated as easily as components can). For this reason,

new and renovated facilities must be commissioned, re-commissioned, or

retro-commissioned.

“Commissioning” is a specific type of facilities audit intended to

verify (and document) that a facility will operate as designed and

meet the demands of its intended use. Commissioning focuses

not on individual elements in a building, but rather on system performance within a facility. A third party (who is not beholden to either the

education organization or the construction contractor) generally carries out

commissioning before site responsibility is transferred from the contractor 

to the school district. Commissioning typically occurs upon completion of 

a construction or renovation project; however, pre-commissioning can

occur as early as the design phase, at which time impartial experts review

WHEN A BAND-AID CAN SAVE YOU MONEY—EVEN IN THE LONG RUN! 

The school board meeting was about to get ugly. The PTA was as hot as the east wing of the elementary school. They wanted that cooling tower repaired—and repaired properly! Hadn’t it broken down last September too? The board president

turned to Ted, the new school facilities manager, for an explanation. Ted began to explain, “Well, we patched several rust

spots last summer, but the tower is really on its last legs.” He was interrupted by the board president: “We were very clear

about our expectations for the repair of capital equipment before you were hired. We will not tolerate a Band-Aid approach

to maintenance in this school district. Is that understood?” Ted handed a spreadsheet to the board president before answering, “Yes sir, a Band-Aid approach is a waste of money 99 percent of the time, but the cooling tower in question is an

exception. You see, it’s 19 years old,” he said, pointing to an entry on the spreadsheet, “and only has a 20-year expected

service lifetime. So it doesn’t make sense to invest in a complete overhaul when the school will be getting a brand-new

piece of equipment next year. It’s not a good use of our maintenance budget.” The board president realized that Ted was

right. He had the data in hand to prove it.

RISK MANAGEMENT ENTAILS PROTECTING FACILITIES DATA

Developing a data storage and security plan for an education organization is a 

substantial task in its own right. The National Forum on Education Statistics provides

guidance in Safeguarding Your Technology: Practical Guidelines for Electronic

Education Information Security, available at http://nces.ed.gov/pubsearch/

pubsinfo.asp?pubid=98297.
blueprints and building specifications for adherence to building codes,

HVAC requirements, and other performance criteria.

Commissioning should be included in all construction and renovation

contracts as a standard requirement prior to the transfer of liability from the

contractor to the school district. Although initial commissioning can occur

as early as the design phase of a project, and more likely upon the completion of construction activities, additional tests should be required throughout

the first year of building use so that components can be examined during the

range of seasonal conditions (e.g., hot and cold, wet and dry). When formulating the details of a commissioning effort, district representatives should

identify all systems to be studied or controlled, the design logic that 

supports the approach, applicable industry standards, and the acceptable

range of system output (which varies with seasonal conditions).

Re-commissioning (the act of “commissioning again”) should occur any

time a building is renovated or substantially modified (e.g., a classroom is

changed into a computer lab) or, in the absence of renovation and modification, on a five-year cycle to ensure that systems are performing appropriately

over time. Re-commissioning involves retesting systems relative, at least in

part, to baselines established during the original commissioning. By adopting

this approach to facility auditing, the status of systems can be measured and

assessed relative to their “as-new” condition.

Retro-commissioning is performed on existing buildings that were never

commissioned. Although a school district may not be able to hold contractors responsible for failing or missing systems identified during retro-commissioning, the data can be useful in establishing baselines and identifying 

system deficiencies. This is especially valuable information for facilities that

have been upgraded or otherwise modified since original construction.

For more information about commissioning, visit the following web pages: Building

Commissioning at http://www.edfacilities.org/rl/commissioning.cfm; Building Commissioning

Association at http://www.bcxa.org; Portland Energy Conservation, Inc. (PECI) at

http://www.peci.org/; and Practical Guide for Commissioning Existing Buildings at

http://www.ornl.gov/~webworks/cppr/y2001/rpt/101847.pdf.

FACILITIES DATA ACCESS AS A COMPONENT OF EMERGENCY PREPAREDNESS

When Jerry, the head of the maintenance office for the school district in his small community, received a call from

the chief of police, he remained calm. “Yes sir,” Jerry said, “I’ll e-mail the building’s blueprints immediately.” He

looked at his watch. “And I can have a paper copy to you in 15 minutes.” As he hung up the phone, he turned to

Eileen, his assistant. “There is an emergency at the high school and the police chief needs information about the

egresses. Print out a copy of the blueprints while I e-mail him an electronic copy.” Within three minutes of receiving

the call, Jerry was speeding toward the high school with a copy of the blueprints in hand to supplement the electronic copy already sent to the chief. The rest of the day’s events would be out of his control, but Jerry’s planning had

ensured that the maintenance office had done everything it could do to help.

36 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Commissioning focuses not on

individual building elements,

but on system performance

within a facility. It is 

tantamount to a “stress test” 

in which major building 

components are systematically

tested to ensure they meet

required specifications.
CHAPTER 3: FACILITY AUDITS: KNOWING WHAT YOU HAVE 37

COMMONLY ASKED QUESTIONS

Why is a facility audit considered to be a data collection? 

A facility audit is an element-by-element assessment, or inventory, of an organization’s buildings, grounds, and equipment. If the large amounts of collected

data (what, where, age, condition, maintenance needs, etc.) are not organized

in a usable format, they will not meet the information needs of users. Thus,

facility audits must be treated as data collections, and managed as such.

How can facilities data inform decision-making? 

Facilities data can, and should, inform both short- and long-term policy

making decisions. Moreover, the data also help with day-to-day operations

and decision-making. For example, suppose a high school’s ice machine

breaks down and the estimate to repair it is one-third of the cost for a new

machine. The repair-or-replace decision should be based on facilities 

data—that is, the age and expected life of the ice machine. 

What information needs to be collected during a facility audit? 

Data should be collected on all buildings, grounds, and equipment at all sites,

buildings, rooms, and spaces. It should include both permanent features

(structures) and temporary features (e.g., traffic patterns and snow buildup

areas). Each element should be described by: what, where, size, number, 

age, condition, whether it is working as purchased or designed (as well as

whether it is working sufficiently well to meet the needs of users), repair

history, sizes and specifications for replacement parts (e.g., oil type and filter

sizes), evidence of future needs, recommended servicing, and estimated

remaining useful life. 

MAJOR STEPS IN THE COMMISSIONING PROCESS INCLUDE:

✓ Establish expected outcomes, such as how building systems should perform, what

occupants need, and acceptable costs. 

✓ Test building systems and equipment to make sure they work correctly and meet

design and operational specifications.

✓ Measure or predict the basic energy efficiency and thermal/environmental 

performance of the building’s energy systems (automatic heating, air conditioning,

refrigeration, lighting).

✓ Decide whether upgrades and modifications to the as-built facility are necessary 

to meet the stated needs of school leaders, teachers, and students. 

✓ Verify that building and system operators have received appropriate training.

✓ Provide building system documentation for future operations and maintenance 

so that the facility will continue to perform reliably and reap the expected 

savings. 

✓ Store the findings of the commissioning effort (i.e., the data) in a secure manner.

Adapted from the Energy Smart Schools web site (http://www.eren.doe.gov/

energy-smartschools/building_maintaining.html).

Q&A
COMMISSIONING HAS ITS REWARDS!

The accountant overseeing the school renovation project had been against commissioning from the start.

“Even if it does cost less than one percent of the project, that’s more money than I’d like to spend... I mean

for that price, we could upgrade the landscape in front of the building,” he had argued to Carl, the maintenance manager who had insisted on the commissioning. Carl always had the same reply, “I know Howard,

but the commissioning will pay for itself, just wait and see. Don’t you know that fifteen percent of all completed buildings are missing components that they have paid for?” In the end, Carl got his way and the

third-party commissioning was performed by a local general contractor. When Carl got the results, he

walked straight into Howard’s office and personally placed them in the accountant’s hands. “See, Howard.

I told you commissioning would pay for itself. It uncovered over $3,000 worth of equipment that we paid

for but is still missing.” Howard looked at the report. “Yes, Carl,” he paused to study the findings a bit

longer, “but do you see that the report shows that the current configuration of the HVAC system is not fully

efficient?” Carl interjected, “But it’s good that we find that out now, Howard.” Howard interrupted him,

“That’s not good, Carl. It’s fantastic. Why, fixing that alone will save us the cost of that commissioning in

just two years. You know, Carl, this commissioning report doesn’t just save us money now, it saves us

money in the future when we’re running the building too.” Carl rolled his eyes, knowing that he had been

right all along, but pleased that Howard had finally seen his point, “Is that so, Howard?”

ADDITIONAL RESOURCES

Every effort has been made to verify the accuracy of all URLs listed in this

Guide at the time of publication. If a URL is no longer working, try using the

root directory to search for a page that may have moved. For example, if the

link to http://www.epa.gov/iaq/schools/performance.html is not working, try

http://www.epa.gov/ and search for “IAQ.”

Basic Data Elements for Elementary and Secondary Education 

Information Systems

http://nces.ed.gov/pubsearch/pubsinfo.asp?pubid=97531

A document providing a set of basic student and staff data elements that serve as

a common language for promoting the collection and reporting of comparable

education data to guide policy and assist in the administration of state and local

education systems. Core Data Task Force of the National Forum on Education

Statistics (1997) National Center for Education Statistics, Washington, DC.

Building Commissioning 

http://www.edfacilities.org/rl/commissioning.cfm

A list of links, books, and journal articles about building commissioning.

National Clearinghouse for Educational Facilities, Washington, DC.

Building Commissioning Association 

http://www.bcxa.org

A professional association dedicated to the promotion of high standards for

building commissioning practices.

38 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES
CHAPTER 3: FACILITY AUDITS: KNOWING WHAT YOU HAVE 39

Building Commissioning Handbook

http://www.appa.org/resources/publications

A book that focuses on building commissioning, including the roles of the

consultant, contractor, test engineer, commissioning agent, and owner; the

process of equipment and systems performance testing; testing checklists;

commissioning terms; and guidance with regard to hiring a commissioning

agent. Heinz, J.A. and Casault, R. (1996) The Association of Higher

Education Facilities Officers, Alexandria, VA, 311pp.

Building Evaluation Techniques

Step-by-step techniques for conducting an effective building assessment,

including the evaluation of overall structural performance, spatial comfort,

noise control, air quality, and energy consumption. Includes sample forms

and checklists tailored to specific building types. George Baird, et al. (1995)

McGraw Hill, 207pp.

Energy Smart Schools

http://www.eren.doe.gov/energysmartschools/building_maintaining.html

An initiative by the U.S. Department of Energy to provide detailed information about how to increase school building energy efficiency and improve the

learning environment. Includes a discussion of school facility commissioning.

Facilities Assessment

http://www.edfacilities.org/rl/facility_assessment.cfm

A list of links, books, and journal articles about methods for assessing school

buildings and building elements for planning and management purposes.

National Clearinghouse for Educational Facilities, Washington, DC.

Facilities Audit: A Process for Improving Facilities Conditions

A handbook presenting a step-by-step approach to all phases of facility

inspection. It is designed to help a facility manager assess the functional 

performance of school buildings and infrastructure and provides information

about how to quantify maintenance deficiencies, summarize inspection

results, and present audit findings for capital renewal funding. Kaiser, Harvey

(1993) APPA, The Association of Higher Education Facilities Officers,

Washington, DC, 102pp.

Facilities Evaluation Handbook: Safety, Fire Protection, and Environmental

Compliance, 2nd Edition 

A guide to help plant and facilities managers conduct inspections and 

evaluations of their facilities in order to identify and address problems in 

the areas of maintenance, safety, energy efficiency, and environmental 

compliance. Petrocelly, K. L. and Thumann, Albert (1999) Fairmont Press,

Lilburn, GA, 200pp.

THE IMPORTANCE OF BENCHMARKING

Effective long-term planning (including both policy and financial initiatives) must be based on accurate information

about the physical condition of facilities and their ability to meet the functional requirements of the instructional program. One way of determining functional ability is through the use of benchmarking, which is the act of charting and

comparing activities, standards, levels of performance, and other factors against a facility’s history, similar facilities

(its peers), or independent building usage data (as can be found in trade publications).

Some types of data management

may be mandated by state 

and local regulations 

(e.g., maintenance records 

on the boiler, amounts and

types of fuel used, the operation

of emergency generators, 

and pesticide use).
Facilities Information Management: A Guide for State 

and Local School Districts

http://nces.ed.gov/forum/publications.asp

A publication that defines a set of data elements that are critical to answering

basic policy questions related to elementary and secondary school facility

management. Facilities Maintenance Task Force, National Forum on

Education Statistics (2003) National Center for Education Statistics,

Washington, DC.

Guide for School Facility Appraisal

A guide that provides a comprehensive method for measuring the quality

and educational effectiveness of school facilities. It can be used to perform a

post-occupancy review, formulate a formal record, highlight specific appraisal

needs, examine the need for new facilities or renovations, or serve as an

instructional tool. Hawkins, Harold L. and Lilley, H. Edward (1998)

Council for Educational Facility Planners International, Scottsdale, AZ, 52pp.

Operation and Maintenance Assessments: A Best Practice for EnergyEfficient Building Operations

http://www.peci.org/om/assess.pdf

A publication that describes what an operations and maintenance assessment

is, who should perform it, the benefits of an assessment, what it costs, and

the process of performing an assessment. Includes a glossary of terms, sample

site-assessment forms, a request for proposal checklist, sample procedures

and plan, and a sample master log of findings. (1999) Portland Energy

Conservation, Inc. Portland, OR, 54pp.

Portland Energy Conservation, Inc. (PECI)

http://www.peci.org/ 

Provides information about commissioning conferences, case studies, procedural

guidelines, specifications, functional tests, and the model commission plan and

guide specifications.

Practical Guide for Commissioning Existing Buildings

http://www.ornl.gov/~webworks/cppr/y2001/rpt/101847.pdf 

A document that describes commissioning terminology, the costs and benefits

of commissioning, retro-commissioning, steps to effective commissioning, and

the roles of team members in the commissioning process. Haasl, T. and

Sharp, T. (1999) U.S. Department of Energy, Washington, DC.

Safeguarding Your Technology 

http://nces.ed.gov/pubsearch/pubsinfo.asp?pubid=98297

Guidelines to help educational administrators and staff at the building,

campus, district, and state levels better understand why and how to effectively

secure an organization’s sensitive information, critical systems, computer

equipment, and network access. Technology Security Task Force, National

Forum on Education Statistics (1998) National Center for Education

Statistics, Washington, DC.

40 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Defining a school, a classroom,

or an instructional space can

be a tricky endeavor and is

beyond the scope of this

Planning Guide. For a

detailed examination of facilities terms and definitions, visit

http://nces.ed.gov/forum/

publications and read Facilities

Information Management: 

A Guide for State and Local

School Districts.
CHAPTER 3: FACILITY AUDITS: KNOWING WHAT YOU HAVE 41

YES NO

ACCOMPLISHED CHECKPOINTS PAGE

Have district planners scheduled a facility audit?

Has a chief auditor been selected (based on expertise, perspective, 

experience, and availability)? 

Has a qualified auditing team been assembled?

Has the scope of work been identified for the audit (i.e., how detailed

and comprehensive should the audit be)? 

Has a data collection system (e.g., collection forms) been selected for

the facilities audit? 

Has an automated data input system been selected as resources allow? 

Have audit findings been submitted in an electronic format that can be

manipulated by district users? 

Have audit findings been reviewed by facilities managers for accuracy

and quality? 

Are the findings from the facilities audit being stored securely as 

valuable organizational assets (e.g., redundantly)? 

Has an automated document imaging system been implemented as

resources allow? 

Has a Computerized Maintenance Management System been installed in

any organization that has more than 500,000 ft2 of facilities to manage? 

Are facilities data being used to inform policy-making, short- and 

long-term planning, and day-to-day operations as appropriate? 

Have facilities been commissioned, re-commissioned, or retro-commissioned as necessary? 

Have commissioning, re-commissioning, and retro-commissioning been

planned to include seasonal analysis of systems? 

Have commissioning, re-commissioning, and retro-commissioning been

planned according to the Energy Smart Schools recommendations? 

Have facilities audit findings been used to establish benchmarks for

measuring equipment life and maintenance progress? 

FACILITY AUDIT CHECKLIST

More information about accomplishing checklist points can be found on the page listed in the right-hand column.

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CHAPTER 4 

PROVIDING A SAFE 

ENVIRONMENT FOR LEARNING

Maintenance efforts must, first and foremost, ensure safe building 

conditions—in other words, safety takes priority over cleanliness, orderliness, 

cost-effectiveness, and even instructional support.

Table of Contents:

Ensuring Environmental 

Safety ............................................43

The “Four Horsemen” of School

Facilities Maintenance..............44

Indoor Air Quality ..............44

Asbestos..................................48

Water Management ............49

Waste Management ............50

Other Major Safety Concerns....53

Environmentally Friendly 

Schools..........................................61

Securing School Facilities ......62

Commonly Asked Questions ..64

Additional Resources ..............64

Environmental Safety 

Checklist ......................................70

GOAL: 

✓ To identify environmental- and safety-related topics that demand an education organization’s undivided attention

ENSURING ENVIRONMENTAL SAFETY

Facilities maintenance is concerned first and foremost with

ensuring safe conditions for facility users—be they students,

teachers, staff, parents, or guests. As important as cleanliness,

orderliness, and instructional support may be to facilities planners,

occupant safety must always be the top priority. Thus, while it may be difficult to define what, precisely, constitutes a “safe” environment, it is fair to

say that ensuring safe conditions is a major component of effective school

facility management.

The role of facilities managers in ensuring building safety has changed

in recent years. One of their chief responsibilities now is to supervise the

implementation of numerous environmental regulations governing school

facilities and grounds and to verify compliance with a host of regulations

and laws. Thus, the successful management of a school environment has

grown well beyond the capabilities of a single person.

Environmental regulations designed to protect people or the environment are many and varied, and may seem overwhelming to the uninitiated

reader. Yet most environmental safety regulations require only minimal 

monitoring and compliance efforts unless a problem is identified. 

The first step in complying with environmental regulations is to

become aware of their existence, intent, applicability, and requirements.

Most of this information is available from regulatory agencies, professional

associations, and on-the-job training. Getting this information may not

always be expensive, but it does demand considerable expertise, either

hired or developed. In any case, compliance with environmental safety

rules pays off relative to the alternative—the possible occurrence of 

CHAPTER 4: PROVIDING A SAFE ENVIRONMENT FOR LEARNING 43

The primary 

responsibility 

of school facility 

planners is to ensure

environmental safety

in school facilities.
significant indoor air problems, underground storage tank leaks, contaminated

drinking water, or other serious environment-related safety or health 

incidents.

THE “FOUR HORSEMEN” OF SCHOOL FACILITIES

MAINTENANCE

Indoor Air Quality (IAQ)

IAQ encompasses almost anything and everything that affects the air in a

building, including radon gas, paint odors, mold, construction dust, asbestos,

and stack emissions. Moreover, as allergens and irritants (such as perfumes

and hair sprays) proliferate, school district maintenance staff must become

knowledgeable about these issues as well. One of the best resources available

is the “Indoor Air Quality (IAQ) Tools for Schools” action kit developed by

the U.S. Environmental Protection Agency (http://www.epa.gov/iaq/schools/),

which provides investigative checklists and hints for problem solving, as well as

additional resources for guiding efforts to assess and improve indoor air quality. 

Poor indoor air quality can affect student and teacher performance by

causing eye, nose, and throat irritation, fatigue, headache, nausea, sinus

problems, and other minor or serious illnesses. Thus, steps must be taken 

to ensure that IAQ causes neither actual nor perceived illness in facility

occupants. Reasonable actions might include the following recommendations,

although official standards may vary from state to state and locality to locality:

✓ Ventilate occupied areas at a minimum rate of 15 cubic feet per

minute (cfm).

✓ Maintain indoor carbon dioxide (CO2) between 800 and 1,000 parts

per million (ppm).

Catastrophic incidents are 

not the preferred method of

learning about environmental

regulations. School districts

need to be proactive in learning

about their responsibilities 

from regulatory agencies, state

departments of education, 

and professional associations.

WOULD YOU WANT TO DRINK THE WATER?

The water inspection team showed up at the school at 7:00 a.m. sharp. Samples from the first fountain showed lead levels

just below the maximum allowed by the EPA. When the second and third fountains showed lead levels above the legal

standards, Phil, the chief inspector, went straight to the principal’s office to explain the situation. Mr. Jackson shook his

head incredulously, “Phil, that can’t be right! We had a water inspection team in here just yesterday and everything was

fine.” He showed Phil the paperwork to prove it. 

“Well,” Phil replied, “we obviously need to revise our work order system because you shouldn’t have been inspected twice

in the same week—but even so, I can’t disregard the results of the tests we just did.” “No you can’t,” Mr. Jackson agreed,

“but you can retest them just to make sure.” Phil nodded and went back to the fountains, retested, and got the same

results. Mr. Jackson looked perplexed, but said, “Okay, Phil, we’ll shut down the bad fountains until we can figure out

what’s going on.” After several days of additional testing, Phil determined that the drinking water failed to meet EPA

requirements each day until the water had been allowed to run long enough to flush out the system. Phil and Mr. Jackson

agreed that the water fountains needed new pipes. After all, it was their legal and ethical responsibility to make sure the

students weren’t drinking contaminated water.

44 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES
CHAPTER 4: PROVIDING A SAFE ENVIRONMENT FOR LEARNING 45

✓ Install both fresh air supply and exhaust ventilation systems in 

occupied areas.

✓ Avoid recirculating previously exhausted contaminants when ventilating.

✓ Ensure adequate make-up air in boilers to minimize backfires and 

carbon monoxide (CO) contamination.

✓ Maintain indoor air relative humidity below 70 percent.

✓ Maintain indoor air temperature at comfortable levels (68-72°F when

the room is being heated and 70-78°F when the room is being cooled).

✓ Inspect for water damage and eliminate standing water and 

elevated humidity.

✓ Clean, dry, or remove water-damaged materials within 72 hours of

wetting.

✓ Change filters and clean drip pans according to manufacturer’s instructions. (Filters in high-pollution areas may require more frequent service.)

✓ Seal construction/renovation from occupied areas to minimize air

exchange.

✓ Minimize use of volatile chemicals (in cleaning agents and pesticides),

especially while the building is occupied.

✓ Replace toxic and noxious chemicals with less harmful products 

as available.

✓ Store toxic and noxious supplies in areas with adequate exhaust 

systems.

✓ Situate vehicle-idling areas away from occupied buildings and ventilation inlets.

✓ Dispose of used cleaning supplies and water-damaged materials immediately and properly (double-bagged in 6-mil polyethylene plastic).

✓ Balance all HVAC, air handling, and ventilation systems every five years.

✓ Periodically test air samples for CO2 (a sign of poor ventilation), CO

(a sign of incomplete combustion), relative humidity (a sign of leaks

and moisture problems), and air temperature.

✓ Sample for microbial growth (e.g., mold) when an IAQ problem is

suspected.

Most districts that find themselves with IAQ troubles get into

this predicament because they fail to respond to warning signs.

Many IAQ issues may not be preventable, but can be “fixed”

when monitoring, well-trained staff, and adequate resources allow

the problem to be identified and addressed in a timely manner.

Indoor air always starts as one thing—outdoor air. Unfortunately, outdoor

air may itself be of poor quality. Today’s requirements for fresh-air exchange

in schools mean that any impurities in the outdoor air will be brought indoors.

Thus someone who is susceptible to hay fever may be able to find relief in

their tightly sealed home, but they won’t find it in a school classroom. 

School staff who ignore IAQ

warning signs may end up

reading about their problems

in the local newspaper.

Indoor air 

actually begins as

outside air!
46 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Good IAQ plans strive for problem solving through systematic investigation and, when all else fails, professional help. District staff must be encouraged

to investigate all complaints thoroughly and promptly. Individual complaints

may indicate either an isolated problem in a secluded area or the intolerance

of a single individual to a contaminant. Repeated or multiple complaints may

indicate larger or growing problems. While the details of IAQ work can be

“scientific” and difficult to understand, more frequently they are straightforward and reflect common sense. For example, IAQ investigations often point

to expected sources such as a classroom’s pet hamster, sprays and perfumes

worn by students and staff, reactions to foods or food supplements, or even

allergic reactions to the aloe in tissues and hand soaps. Investigators should

keep in mind that elementary-school students may have allergies that have

not yet been identified by their parents or physicians.

If there is reason to suspect biological contamination (e.g., molds and

microbes), the lab testing portion of an IAQ investigation begins with a 

study of the molds, bioaerosols, and other “natural contaminants” in the 

outside air for use as a control against which indoor air can be compared.

Usually, HVAC filtration purifies the outdoor air so that indoor air has lower

quantities of the same impurities. When indoor air tests reveal impurities that

do not exist in the outdoor control, it suggests that something is “growing”

inside. If investigators suspect that the problem is chemical in nature (e.g.,

fumes from cleaning agents stored within a facility), then volatile organic

sampling may be undertaken.

Common indoor air pollutants include (but are not limited to):

IAQ – SOMETIMES A MYSTERY FOR THE EVEN THE BEST OF DETECTIVES

Terry, the facilities director, and his staff had done everything they could think of to solve an IAQ complaint from a 

student’s parent, but to no avail. Finally, they hired a consulting company to assess the problem. The HVAC system was

examined from its intake vents, through the ductwork, and into the classroom—and all proved to be in good working order.

Indoor air speciation lab tests revealed no concerns, and outdoor air control samples were all within proper tolerances.

Pollutants from building and housekeeping sources were checked, as were air temperature and humidity. The roof was

inspected for leaks and mold, but nothing could be found. Meanwhile, the child’s parents notified every authority they

could find, and soon the local media were on to the story. A medical doctor had verified that the child was, indeed, reacting to something in the school that was making him ill. In fact, when the student transferred to another school, all symptoms immediately cleared up. 

Finally, after weeks of investigative work, one of Terry’s staff saw a teacher’s aide spraying an insecticide (“but only lightly”)

in the student’s former classroom because she had seen ants in the area. The student was subsequently diagnosed as being

hypersensitive to the pesticide. Terry was able to have the classroom thoroughly cleaned (and the teaching staff trained) 

so the student could return to his class.

✓ tobacco smoke

✓ formaldehyde

✓ volatile organic 

compounds (VOCs)

✓ nitrogen oxides

✓ carbon monoxide

✓ carbon dioxide

✓ allergens

✓ pathogens

✓ radon

✓ dust

✓ lead

✓ pesticides (used in 

or near buildings)
CHAPTER 4: PROVIDING A SAFE ENVIRONMENT FOR LEARNING 47

While this list is far from exhaustive, each of these contaminants needs 

to be understood and properly managed. Many of these compounds are

common outdoor air pollutants as well, and all can be routinely linked to

buildings and air-handling equipment. 

Potential sources of IAQ contaminants include (but are not limited to):

✓ “fresh” air

✓ odors from dumpsters

✓ lab and workshop emissions

✓ cleaning process emissions

✓ insects and other pests

✓ insecticides and pesticides

✓ furnaces and fuel lines

✓ building occupants (e.g., perfumes)

✓ underground sources (e.g., sewer lines and radon gas)

✓ HVAC equipment (which is often a path of distribution)

Building administrators also need to be concerned about creating air

quality problems. For example, landscaping “environmental” areas is a 

popular and worthwhile school revitalization project. However, if not

properly handled, such initiatives can introduce moisture and mold problems

(e.g., from mulch laid outside air-intake vents), lead to fire-exit violations

(e.g., if access to exits are obstructed or impeded), and invite bees and biting

insects (e.g., if pollen-releasing flowers are planted). The answer is not to 

forbid landscape initiatives, but to make sure that projects are carried out with

proper foresight. The right questions – addressing issues such as plot location,

intended use, and potential impact on health and safety – must be asked (and

answered) prior to granting permission for any improvement projects.

For more information about indoor air quality management, visit the 

National Clearinghouse for Educational Facilities’ IAQ resource list at

http://www.edfacilities.org/rl/iaq.cfm, which provides list of links, books, 

and journal articles addressing indoor air quality issues in K-12 school 

buildings, including building materials, maintenance practices, renovation 

procedures and ventilation systems.

Most IAQ problems result 

from inadequate air handling

and ventilation. Low levels 

of contaminants rarely 

accumulate to dangerous 

levels if the building is properly

ventilated.

MOLD, MILDEW, AND MOISTURE

Mold is a particularly prominent and pernicious IAQ problem. Mold spores occur

almost everywhere in the air we breathe, and almost any building surface can

support and nourish mold growth. However, the key factor in enabling mold to

grow and reproduce is the presence of moisture—from leaks or elsewhere. Thus,

moisture control is the primary mechanism for reducing mold growth. Even room

humidifiers, which may be brought in by staff to make a classroom more comfortable, may introduce excess moisture into the building and thus have a net effect

that is harmful.
48 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Asbestos

Asbestos is a naturally occurring mineral found in certain rock formations.

When mined and processed, asbestos fibers can be mixed with a binding

material for use in a variety of products. Asbestos products are strong, fireresistant, corrosion-resistant, and good insulators. In schools, asbestos was

commonly used in building materials and has been found in floor and ceiling

tiles, cement pipes, pipe and boiler insulation, and spray-applied fireproofing.

While the presence of asbestos-containing materials does not in itself pose an

immediate health threat, it is well known that asbestos becomes hazardous

when the microscopic fibers are released into the air, as can occur as a result

of damage or deterioration. 

The type and amount of asbestos in a product varies depending upon application. The condition, location, and exposure of

the material to air are factors in determining the proper response.

Asbestos fibers are so small and light that they can remain airborne

for many hours (increasing the chance for inhalation) if they are disturbed

and released into the air. Preventing the release of asbestos fibers into the air

should be a school district’s primary concern. 

COMMUNICATING NOT JUST WHAT, BUT WHY: CREATING MOISTURE AT DEW POINT

Mary Jane, the principal of Big River Elementary School, was in her second year in the newly built, fully air-conditioned

building. The previous summer, she had had to deal with mold growth in a few areas of the building during the humid

days of August, and she was determined to avoid the problem this year. 

Mary Jane had reported the incident to the maintenance department, and the ensuing investigation revealed that three

HVAC units were not operating as designed in the air-conditioning mode. The HVAC systems were repaired and had been

double-checked at the end of the school year. However, John, the head of maintenance, felt that more preventive work

was warranted, as he suspected that the rooms’ thermostats were being set so low as to create “cold spots” that were

reaching dew point. He left voice-mail messages with Mary Jane and the building’s head custodian to make sure all the

thermostat controls were set no lower than 75 to 78 degrees during the summer break. 

When the first big heat wave hit in late June, Mary Jane asked Pete, the head custodian, to set the thermostats lower. The

custodian reminded her of John’s instructions, to which Mary Jane responded, “I’m all for energy conservation too, but

people can’t work in this heat.” After a few weeks of end-of-the-year cleanup, the school was locked for the rest of the

summer with the thermostats set at 65 degrees. 

When the first teachers arrived in August to begin preparations for the upcoming academic year, they discovered mold

growing in their classrooms. Upon further inspection, Mary Jane found mold throughout the building. She called John, 

who immediately recognized that the problem was beyond the expertise of his maintenance staff, and notified the

superintendent that a major cleanup and air testing project would have to be initiated. As John pursued his investigation,

he noticed how cool many of the rooms were and confirmed that thermostats were set much lower than 75 degrees. 

“Well yes,” Mary Jane said, “but it was so hot in June.” “But Mary Jane,” John explained, “Our HVAC equipment is sized for

building occupancy, which means that it cools a room based on an assumption that 24 children and a teacher will be in

that room giving off body heat. When a classroom thermostat is set at 65 degrees without occupants, the room temperature reaches the thermostat setting so quickly that there isn’t time to dehumidify the air completely. As a result, water

vapor condenses out in the cool spots, which might reach 60 degrees along the floor and metal surfaces. And once there 

is standing water, mold is sure to follow.”

Both Pete and Mary Jane wished that John had explained this all to them before summer break. As it was, it would take

$25,000 to test and clean the rooms and HVAC equipment before school could reopen.

Federal law requires that 

school organizations conduct

asbestos inspections every three

years and perform semiannual

surveillance.
In 1986, the Asbestos Hazard Emergency Response Act (AHERA) was

signed into federal law to regulate the management of asbestos-containing

materials in public and private schools. AHERA regulations apply only to interior building materials and those under covered walkways, patios, and porticos.

AHERA requires local education agencies to:

✓ designate and train an asbestos coordinator

✓ identify friable (i.e., easily crumbled or ground) and nonfriable

asbestos-containing materials

✓ develop and implement an asbestos management plan that reflects

ongoing surveillance, inspections, and response actions

✓ develop and implement a responsible operations and maintenance

program

✓ conduct inspections for asbestos-containing materials every three years

✓ perform semiannual surveillance activities

✓ implement response actions in a timely fashion 

✓ provide adequate staff training and meet certification requirements

✓ notify all occupants (and parents/guardians) about the status of

asbestos-containing materials each year.

In other words, school districts must know where asbestos

materials are located in their buildings, inform occupants, and train

their staff how to work in affected areas. EPA officials conduct 

random checks and audit district records for asbestos monitoring 

and reporting.

For more information about asbestos and asbestos management, visit the 

National Clearinghouse for Educational Facilities’ Asbestos resource list at

http://www.edfacilities.org/rl/asbestos.cfm, which provides lists of links, books, and 

journal articles on how asbestos abatement and management is conducted in 

school buildings, and how schools can comply with federal regulations.

Water Management

Public water supplies are generally categorized as either “community water

systems” or “non-community water systems.” If a school district gets its water

from a local city authority, it is likely on a “community water system.” If a

CHAPTER 4: PROVIDING A SAFE ENVIRONMENT FOR LEARNING 49

Asbestos abatement projects

(i.e., removal or encapsulation)

are usually undertaken by 

outside contractors. District

staff who get involved in

asbestos removal must be

trained, certified and, in 

some instances, have their

health monitored.

Why is it so important that all asbestos-containing materials be 

identified in school facilities? Because this information guides 

day-to-day maintenance and operations. For example, if there is

asbestos in a building’s floor tiles, staff must know not to use the

buffer/sander to clean the area or else hazardous fibers could be

released into the air.
school district uses its own wells as its water source, it would be classified as

a “non-community system.” In 1976, the U.S. Congress passed the Safe Water

Drinking Act, which authorized the U.S. EPA to set standards for maximum

contaminant levels (MCLs) for specified substances in water. Most state

departments of environmental protection also have regulations addressing

water-testing procedures. To ensure compliance with applicable water management regulations, school districts should:

✓ review pertinent federal, state, and local regulations

✓ develop a sampling, monitoring, and reporting plan that is commensurate

with applicable regulatory guidance

✓ verify sampling methods used for testing and monitoring water quality

✓ address all water quality and systems operation deficiencies identified

by the compliance plan

✓ incorporate water management guidelines into future construction and

renovation initiatives.

Lead in drinking water has been shown to have a substantially detrimental impact on human health. The U.S. EPA requires that schools take adequate measures to ensure that lead-lined water coolers are repaired, removed,

or replaced. Schools are also required to test and remove lead contamination

from all sources of drinking water.

If a school district receives its water from a community system, watertesting requirements may be the responsibility of the local water authority. 

If, however, a school district has its own wells, it may have to comply with

numerous water-testing requirements (such as for nitrates, chlorination, and

turbidity), although state and local requirements vary. 

In some areas, schools face water shortages. Moreover, once an adequate

water source is identified, storage levels must be properly maintained,

monitored, and treated. Because schools normally operate in peak-use

time frames, water treatment equipment has to be sized to handle peak

demand. Water-related considerations may affect the size of the boiler room

as well as space for storing service equipment and chemicals. Effective water

systems management requires a well-trained staff or a professional firm hired

to perform the monitoring and testing. In many states, certificates and permits

are required to perform these services. 

Waste Management

Waste management is a catch-all term that includes trash removal, recycling,

and the disposal of hazardous waste. Trash removal is probably the most

high-profile aspect of waste management in a school setting. In many jurisdictions, it is illegal to dump, burn, or otherwise dispose of solid waste 

(e.g., paper, wood, aluminum, trash) without a permit. Thus, school districts

must be aware of applicable local and state laws and regulations concerning

solid waste disposal. 

Recycling may also play an important role in an education organization’s

waste management plan. Many townships and cities require recycling. In

other areas, school districts may have to choose between the environmental

and social benefits of recycling and the incremental costs incurred to recycle. 

THE THREE R’S 

OF 21st-CENTURY

EDUCATION

Caring for the environment is consistent with 

the aims of 21st-century

education:

Reading = R = Reduce

WRiting = R = Reuse

ARithmetic = R = Recycle

50 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES
In any case, both solid waste and recyclables should be removed from 

occupied areas as soon as possible after being collected. Storage facilities

(even temporary storage areas) must be located away from occupied areas

to minimize the risk of fire and infestation.

The Right-to-Know Act (http://es.epa.gov/techinfo/facts/pro-act6.html)

requires planning and assessment for a range of hazardous waste materials—

from small-engine machine shop oil to science laboratory chemicals.

Chemicals used by maintenance and custodial personnel may need to be

noted on a material safety data sheet (MSDS) to verify that proper procedures for their use, storage, and disposal have been followed. No potentially

hazardous material should be brought into a school facility without being

properly labeled and having an MSDS on file. Staff must recognize the

potential volatility of chemical agents that can enter breathable air when they

are handled improperly. For example, many people know that when the roof

leaks, wood can get wet and mold can grow. Fewer people know that the

bleach used to clean mold stains may itself have serious health ramifications

if the space is not properly ventilated during use. Thus, the ongoing review

of systems, monitoring, and testing is critical to the recognition and handling

of potentially hazardous materials.

Certain hazardous waste materials, including asbestos, also require that

the organization sign a waste manifest for the receiving dump or waste site.

For example, the dumping of soil contaminated by leaking fuel oil during a

tank removal project may require the district to sign a waste manifest before

the solid waste management facility will accept the contaminated dirt. This

manifest may assign ownership and potential liability to the district in the

event of a future site-cleanup mandate. In some cases, storage facilities may

offer (for an additional cost) to burn the material, thereby avoiding the waste

manifest procedure and negating potential future liabilities. These decisions

require forethought, due diligence, and disclosure—and may warrant the

advice of the district’s legal counsel.

The disposal of medical waste, including blood-borne pathogens (BBPs),

requires additional supervision and planning. “Universal precautions” is an

approach to infection control that requires all human blood and certain bodily

fluids to be handled as though they were infectious. Thus, all persons who

clean, or otherwise come in contact with, bodily fluids should routinely take

appropriate barrier precautions to prevent skin and membrane exposure. This

includes wearing gloves, masks, protective eyewear, gowns, and mouthpieces

(e.g., during resuscitation). The disposal of needles and sharp instruments also

requires special care (e.g., used needles should never be recapped or broken by

hand). All building surfaces exposed to bodily fluids should be decontaminated

by cleaning with a bleach/water solution at a 1:10 ratio or another EPAapproved tuberculocidal cleaning agent. All cleaning tools should be disposed 

of immediately after use (and double-sealed in 6-mil polyethylene plastic bags).

It is advisable for decision-makers to refer to local hospitals, clinics, and doctor

offices for guidance in this area. Procedures for handling medical waste from the

nurse’s office and athletic training facilities should be clearly written, and all staff

involved in cleanup and transport of such waste must be adequately trained.

Storage and transportation of such materials is regulated, and disposal may

require the services of certified or licensed individuals or firms.

CHAPTER 4: PROVIDING A SAFE ENVIRONMENT FOR LEARNING 51

Most states and many localities

have laws that restrict the 

disposal of certain types of

waste in public disposal facilities.

For example, Massachusetts

restricts the placement of 

cathode ray tubes (CRTs), 

computer screens, televisions,

fluorescent bulbs, and lithium

batteries in the trash because 

of the presence of mercury in

their components. Planners

must consult with authorities

about specific waste guidelines

applicable in their area.

“Universal precautions” is an

approach to infection control

that requires all human blood

and certain bodily fluids to be

handled as though they were

infectious. Thus, all persons

who clean, or otherwise come

into contact with, bodily fluids

should take appropriate barrier

precautions to prevent skin and

membrane exposure.
An issue that further complicates proper cleaning practices is that janitorial staff are advised to wear latex gloves when handling hazardous materials

(and even general cleaning agents), although some individuals may have

severe allergies to latex gloves. Therefore, employees must be monitored for

skin or respiratory reactions when wearing latex gloves. If the use of latex

gloves by students is warranted (e.g., in chemistry labs), such procedures 

also require monitoring, and may justify parental notification.

Wastewater management (sewage plants) is another topic that some

schools may need to be concerned about. Whether wastewater goes to a 

local community waste plant, an in-house waste treatment plant, or an on-site

drainage field, school staff should have a thorough understanding of their wastewater management responsibilities. Regardless of ownership, water treatment

facilities must be managed and run by certified operators. District-owned facilities face special operational concerns that stem from the great fluctuations in

demand placed on the system due to the variability of the school schedule. 

On a daily basis, facilities must handle peak flow during school hours (and

even more specifically during windows between class periods). Weekends and

holidays, on the other hand, present intervals of very low demand. Prolonged

dormancy associated with summer vacation pose additional start-up issues

each fall. Therefore, staff must be prepared to schedule equipment use, maintenance, and testing accordingly. Care of on-site systems should include annual

inspections, pumping, and regular maintenance as needed. Kitchens should have

grease traps to prevent grease from being transported to drainage beds in the

system. The drainage beds themselves should be well marked. Wastewater

from science labs and maintenance shops (both potentially carrying hazardous

materials) must be managed from their source all the way to the treatment

facility. These pipes must also be protected from accidental damage (on more

than one occasion a local school organization has placed playground equipment

right on top of a sewer bed or driven equipment poles through a drainage pipe).

TRAINING STAFF TO RECOGNIZE ENVIRONMENTAL HAZARDS

While not every member of the maintenance staff needs to be an expert at remedying all the environmental hazards that can

arise in school facilities, all maintenance workers should be trained to identify the signs of common environmental problems

they may encounter. For example, recognizing suspicious materials, vulnerable conditions, and potential dangers enables

them to take the first step (alerting others) toward protecting themselves, other building occupants, and the facility in general.

It also ensures that most potential problems will be remedied before they become full-fledged catastrophes.

Many states have programs to provide schools with on-site assistance in 

complying with occupational health and safety regulations. Check with your State

Department of Labor (or Public Health) or contact http://www.osha.gov/html/

consultation.html for more information. Most on-site consultation programs are

free of charge but recipients may be obligated to remedy serious health and

safety problems identified during the visit. The company that provides your

organization’s worker compensation insurance may also be willing to help

assess your facilities for dangerous or unhealthy conditions.

52 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES
OTHER MAJOR SAFETY CONCERNS

The list below denotes several prominent environmental safety issues that

can occur in schools:

✓ chlorofluorocarbons (CFCs)

✓ emergency power systems

✓ hazardous materials

✓ integrated pest management

✓ lead paint

✓ mercury

A brief description of each of these potential environmental problem

areas follows. Additional information can be found at the U.S. EPA’s main

index page at http://www.epa.gov/ebtpages/alphabet.html.

Chlorofluorocarbons (CFCs) – The release of ozone-depleting compounds –

such as chlorofluorocarbons (CFCs) and hydrochlorofluorocarbons

(HCFCs), which are found in air conditioning and refrigeration equipment –

should be minimized. School districts should ensure that all personnel 

servicing refrigerants are certified to do so and are using proper tools and

equipment. Moreover, systems must be designed to include redundant valve

settings as necessary to minimize the release of CFCs and HCFCs during

routine maintenance.

Emergency Power Systems – Failure to protect the supply of power to school

buildings can have both short- and long-term consequences—from damage to

computers to school cancellations. One strategy for dealing with the possibility of power interruption is the installation of backup energy and power systems. This may mean installing large, multipurpose, on-site power generators

for general use or smaller, portable uninterruptible power supplies (UPSs) for

especially valuable equipment.

Hazardous Materials – The use and storage of hazardous materials is an

important school facility management issue. Long-term exposure to chemicals

(e.g., cleaning agents or reactants in chemistry labs) can cause serious health

problems. Chemicals can also be fire hazards. Thus, all hazardous materials

must be identified and catalogued for proper management (e.g., assigning disposal and storage responsibilities). The Emergency Planning and Community

Right-to-Know Act of 1986 (EPCRA), sometimes referred to as SARA Title

III, does not place limits on which chemicals can be stored, used, released,

disposed, or transferred at a facility, but it does require the facility to document,

notify, and report relevant information to occupants. Right-to-Know requirements affecting a school district include: 

✓ emergency planning

✓ community Right-to-Know reporting requirements

✓ emergency release notification

✓ toxic chemical release inventory reporting

CHAPTER 4: PROVIDING A SAFE ENVIRONMENT FOR LEARNING 53

Products that generate CFCs

are no longer permitted to be

produced or sold in the United

States. HCFC production will

be phased out in 2003.

For more information about the Right-to-Know Act,

visit http://es.epa.gov/techinfo/facts/pro-act6.html.

✓ personal protective equipment

✓ polychlorinated biphenyls (PCBs)

✓ radon

✓ storm water runoff

✓ underground storage tanks (USTs)
Whether chemicals are being used to meet custodial or instructional 

needs, decision-makers should investigate whether alternative, less 

toxic, supplies can be used. For example, “green experiments” and 

“microexperiments” (see http://www.epa.gov/greenchemistry/ and

http://www.seattle.battelle.org/services/e&s/P2LabMan/) can be substituted 

for traditional science lab experiments. In any case, hazardous materials 

must be handled with care (using gloves and goggles, as appropriate), ordered 

in quantities that minimize the accumulation of excess stock, and stored in

flame-resistant, lockable, safety cabinets. In addition to storing hazardous materials safely, they must be disposed of in a way that is consistent with common

sense and applicable local, state, and federal regulations. This decision is sometimes complicated by the degradation of certain hazardous materials, which can

become an especially serious problem. (In one school in New England, the local

bomb squad had to be called in to remove old, degraded ether from a chemistry

lab.) Good record keeping of hazardous material use and supplies can minimize

these types of occurrences.

For more information about hazardous materials management, visit the National

Clearinghouse for Educational Facilities’ Hazardous Materials resource list at

http://www.edfacilities.org/rl/hazardous_materials.cfm, which provides a list of links, books, and

journal articles about the identification, treatment, storage and removal of hazardous materials found in school buildings and grounds.

Integrated Pest Management (IPM) – Nearly every school will occasionally

experience problems with pest infestation. An IPM program has the goal of

eliminating or drastically reducing both pests and the use of toxic pesticides in

schools. IPM is based on prevention, monitoring, and nontoxic pest control

methods such as sanitation improvements, structural repairs, and mechanical,

biological, behavioral, or other nonchemical initiatives. Rather than focusing

on pesticide use, IPM aims to identify the conditions that foster pest problems

and devise ways to change those conditions to prevent or discourage pest

activity. These methods include modifying the environment to inhibit pest

breeding, feeding, or habitat and using pest-resistant or pest-free varieties of

seeds, plants, and trees. IPM strategies may also include changing the behavior of a building’s occupants to help prevent problems—for example, occupant

education that leads to decreased food waste and litter, improved cleaning

practices, pest-proof waste disposal, and preventive structural maintenance. 

The identification and use of “least toxic pesticides” becomes necessary 

when nontoxic methods of pest control have not completely addressed pest

concerns. “Least toxic pesticides” include:

✓ boric acid and disodium octobrate tetrahydrate 

✓ silica gels

54 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Policy-makers should expressly

prohibit the use of some 

materials in schools. For 

example, explosives and known

or suspected carcinogens should

never be permitted in a school

environment.

Pesticides are often temporary

fixes that are ineffective over

the long term. Sound IPM

ensures that pest buildups are

detected and suppressed before

major outbreaks occur.

“Hazardous” can be a relative term—that is, something that poses a hazard to one person may not necessarily be hazardous to others. For example, latex gloves are innocuous to the vast majority of people, but can be deadly to a person

with a severe latex allergy. To avoid potential problems from allergens, many states have developed registry programs 

to identify students with severe allergies. School districts should encourage allergy-prone students, parents, and staff to

register with these valuable resources where they are available.
✓ diatomaceous earth

✓ nonvolatile insect and rodent baits in tamper-resistant containers (or

for crack and crevice treatment only) 

✓ microbe-based pesticides

✓ pesticides made with essential oils (not including synthetic pyrethroids)

and without toxic synergists

✓ materials for which the inert ingredients are nontoxic and disclosed

The term “least toxic pesticides” does not include any pesticide that:

✗ is determined by the U.S. EPA to be a possible, probable, or known

carcinogen, mutagen, teratogen, reproductive toxin, developmental neurotoxin, endocrine disrupter, or immune system toxin; 

✗ is in EPA’s toxicity category I or II; or 

✗ is applied using a broadcast spray, dusting, tenting, fogging, or baseboard spraying

Whenever a chemical agent (even a “least toxic pesticide”) is used, staff

should be instructed to apply it according to the instructions on the label

without deviation. In some states, the axiom “the label is the law” applies.

Good practices for pesticide use include:

✓ requiring that all persons who apply pesticides and other pest control

agents be licensed by the state or locality

✓ requiring that all persons who apply pesticides and other pest control

agents renew their certification every three years to keep abreast of

evolving technologies and standards

✓ notifying students, parents, and school staff prior to the application of

pesticides in and around schools

✓ maintaining records of pesticide application for at least three years 

(more for longer-lasting agents such as termiticides). Records should

include the application date, application site (be as specific as possible),

pesticide brand name, pesticide formulation, EPA registration number,

total application amount (strength, rate, and duration), and the name and

identification number of the certified individual applying the pesticide. 

Schools that choose to have their own staff apply pesticides should

obtain a business license, which documents applicable local and state 

requirements for the certification of personnel and insurance protection.

For more information about pesticides and integrated pest management, 

visit www.beyondpesticides.org for summaries of the 33 state laws governing 

integrated pest management, pesticide restrictions, and right-to-know. Also, 

visit the National Clearinghouse for Educational Facilities’ IPM resource list at

http://www.edfacilities.org/rl/pests.cfm, which provides a list of links, books, 

and journal articles about the use of pesticides, integrated pest management 

guidelines, specifications, training, implementation and management in school 

buildings and grounds.

CHAPTER 4: PROVIDING A SAFE ENVIRONMENT FOR LEARNING 55

A school district is responsible

for ensuring that its contractors

take appropriate measures to

ensure compliance with all

safety regulations.
56 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Lead Paint – Lead has been shown to have a detrimental impact on human

health. Lead-based paint poses numerous health risks during its application,

deterioration, and subsequent release into the air and water. When assessing

a building for lead exposure, considerations include building age, facility use,

and occupant age and activity. Results from dust, soil, and air sampling are

also necessary for designing control strategies. Abatement options include

the removal and replacement of affected parts (e.g., windows and doors 

covered with lead-based paints), stripping of paint (which, because of the

associated health risks, must be performed by hazardous waste removal 

specialists), encapsulation, and enclosure. Actions must also be taken to

ensure the appropriate handling and disposal of hazardous materials 

generated by lead-based paint removal. 

Mercury – Mercury is a silver-colored heavy metal that is liquid at room temperature. A person can be exposed to mercury by breathing contaminated

air, swallowing or eating contaminated water or food, or having skin contact

with mercury. When liquid mercury is exposed to the atmosphere, it emits

vapors that are dangerous to human health. At high doses, mercury exposure

can cause a range of nervous system problems, including tremors, inability to

walk, convulsions, and even death. At levels more commonly seen in the

United States, the effects of mercury exposure are usually more subtle,

although still potentially serious, and include damage to the senses and brain. 

School organizations must be aware of their use of mercury and mercury-containing products and develop policies to ensure that students, staff, and

SIX ESSENTIAL FEATURES OF AN IPM PROGRAM

Monitoring This includes regular site inspections and pest trapping to determine the types and infestation levels

of pests at each site.

Record-Keeping A record-keeping system is essential for determining trends and patterns in pest activity. 

Information recorded during each inspection or treatment includes pest identification, population 

estimates/distribution, and plans for future prevention.

Action Levels Pests are rarely eradicated. An “action level” is the population size that triggers remediation efforts.

Action levels are based on health, economic, or aesthetic risk.

Prevention Preventive measures are introduced into all existing structures and all designs for future structures.

Prevention is the primary means of pest control in an effective pest management program.

Tactics Criteria Chemicals should be used only as a last resort, but when needed, the least-toxic agents should be

applied in a way that minimizes exposure to humans and all nontarget organisms.

Evaluation A regular evaluation program is necessary for determining the success of current pest management

strategies and plans for future IPM strategies.

Adapted from Beyond Pesticides/National Coalition Against the Misuse of Pesticides 701 E Street, SE • Washington DC 20003 • 202-543-5450 • www.beyondpesticides.org

Lead paint must be identified

so that it isn’t disturbed (e.g.,

by sanding or scraping). Once

lead paint is disturbed, it must

be remedied at considerable

expense. If it is not disturbed,

it can be safely encapsulated 

by simply painting over it.
other building occupants are protected from mercury exposure and mercuryrelated health risks. At a minimum, all mercury-containing equipment (e.g.,

fluorescent lights, mercury vapor lamps, metal halide lamps, high-pressure

sodium lamps, neon lamps, light switches, relays, thermostat probes, thermometers, and laboratory solutions) should be handled according to universal

hazardous waste protocols, including during disposal. Moreover, as mercurycontaining equipment reaches the end of its useful life, it should be replaced

with mercury-free alternatives. Most environmental experts recommend that

schools adopt mercury-free purchasing policies, conduct mercury audits, and

train teachers and staff to respond appropriately in the event of a mercury

spill. Deficiencies in an employer’s mercury management and training program

that contribute to potential exposure can be cited by environmental and

workplace authorities. 

For more information about mercury, visit the EPA’s mercury site at

http://www.epa.gov/mercury/index.html.

Personal Protective Equipment – The personal protective equipment (PPE) 

program, as initiated by the Occupational Safety and Health Administration

(OSHA), the Centers for Disease Control and Prevention (CDC), and many

states, is intended to protect employees from the risk of injury and illness by

creating a barrier against workplace hazards. In general terms, PPE requires

employers to conduct an assessment of their workplace to identify environmental or safety hazards to which employees are exposed that require the

use of protective equipment. Employers should have a written program to

evaluate hazards, indicate appropriate control measures, provide (and pay

for) protective equipment, train staff to use protective equipment properly, 

certify that such training has occurred, and hold yearly inspections and reviews

to determine whether these efforts are preventing employee injury and illness.

Deficiencies in personal protective equipment programs that lead to exposure,

physical harm, or death can result in citations and monetary penalties.

For a more detailed description of PPE requirements, visit the OSHA PPE site at

http://www.osha.gov/SLTC/personalprotectiveequipment/ or the CDC PPE site at

http://www.cdc.gov/od/ohs/manual/pprotect.htm.

Polychlorinated Biphenyls (PCBs) – PCBs discharged into the environment

pose a risk to humans and wildlife. In schools, PCB sources may include

leaking fluorescent lights and electrical transformers. The use of PCB transformers near food or feed sources, or in commercial buildings (including

schools), should be prohibited. Surveys must be performed to identify and

remedy all potential sources of PCBs.

Radon – Radon is a naturally occurring gas that poses a danger to people if it

accumulates in unventilated areas and is inhaled for long periods of time (potentially causing lung cancer). Airborne levels greater than 4 pCi/L are considered

“high” and must be remedied. As part of a school’s indoor air quality management, radon levels should be tested on a regular basis. Moreover, base levels for

radon must be established for all buildings. Radon testers must be certified.

For more information about radon, visit the EPA’s Radon resource list at

http://www.epa.gov/iaq/radon.

CHAPTER 4: PROVIDING A SAFE ENVIRONMENT FOR LEARNING 57

If maintenance problems arise

that potentially affect the

health or safety of occupants

(e.g., indoor air quality 

concerns or fire escape issues),

the best policy is to address

them immediately and disclose

them as appropriate. Knowing

that someone is in danger

without warning them is at

best unethical, and perhaps

even legally negligent. Parents,

students, and staff have a legal

“right-to-know” if they are

being exposed to hazardous

materials or unsafe conditions.
58 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

ENSURING SCHOOL SAFETY REQUIRES AVOIDING “THE DIRTY DOZEN” OF

PLAYGROUND SAFETY 

1. Improper protective surfacing – The surface or ground under and around playground equipment

should be soft enough to cushion a fall. Improper surfacing material under playground equipment is

the leading cause of playground-related injuries. Hard surfaces such as concrete, blacktop, packed

earth, or grass are not acceptable in fall zones. In fact, a fall onto one of these hard surfaces could be

life-threatening. Acceptable surfaces include hardwood fiber, mulch, sand, and pea gravel. These surfaces must be maintained at a depth of 12 inches, kept free of standing water and debris, and prevented from becoming compacted through routine maintenance efforts. Synthetic or rubber tiles and

mats also are appropriate for use under play equipment. 

2. Inadequate fall zone – A “fall zone” or “use zone” is the area around and beneath playground

equipment where a child might fall. A fall zone should be covered with protective surfacing material

and extend a minimum of 6 feet in all directions from the edge of stationary play equipment such as

climbers and chin-up bars. The fall zone at the bottom or exit area of a slide should extend a minimum of 6 feet from the end of the slide for slides 4 feet or less in height. For slides higher than 4 feet,

add 4 feet to the entrance height of the slide to determine how far the surfacing should extend from

the end of the slide. Swings require a much larger fall zone. It should extend twice the height of the

pivot or swing hanger in front of and behind the swings’ seats. It should also extend 6 feet to the side

of the support structure. 

3. Protrusion and entanglement hazards – A protrusion hazard is a piece of hardware that might be

capable of impaling or cutting a child if a child should fall against it. Some protrusions also are capable of catching strings or items of clothing, causing entanglement that could result in strangulation.

Examples of protrusion and entanglement hazards include bolt ends that extend more than two

threads beyond the face of the nut, hardware configurations that form a hook or leave a gap or space

between components, and open “S”-type hooks. Rungs or handholds that protrude outward from a

support structure may be capable of causing eye injury. Special attention should be paid to the area at

the top of slides and sliding devices. Ropes should be anchored securely at both ends and not be

capable of forming a loop or a noose. 

4. Entrapment in openings – Enclosed openings on playground equipment must be checked for head

entrapment hazards. Children often enter openings feet first and attempt to slide through the opening.

If the opening is not large enough it may allow the body to pass through the opening and trap the

head. Thus, no openings on playground equipment should measure between 3 1/2 inches and 9 inches in diameter.

5. Insufficient equipment spacing – Improper spacing between pieces of play equipment can cause

overcrowding of a play area, which may create hazards. Fall zones for equipment that is higher than

24 inches above the ground cannot overlap. Therefore, there should be a minimum of 12 feet

between two play structures to provide room for children to circulate and prevent the possibility of a

child falling off one structure and striking another. Swings and other pieces of moving equipment

should be located in an area away from other structures.

6. Trip hazards – Tripping hazards are created by play structure components (or other items) 

on the playground. Exposed concrete footings, abrupt changes in surface elevations, containment

borders, tree roots, tree stumps, and rocks are all common tripping hazards that are found in or

near play equipment.
CHAPTER 4: PROVIDING A SAFE ENVIRONMENT FOR LEARNING 59

7. Lack of supervision – Playground supervision directly relates to the overall safety of the environment. A play area should be designed so that it is easy for a caregiver to observe children at play.

8. Age-inappropriate activities – Children’s developmental needs vary greatly from age 2 to age 12. In

an effort to provide a challenging and safe play environment for all ages, playground equipment must

be appropriate for the age of the intended user. Areas for preschool-age children should be separate

from areas intended for school-age children. 

9. Lack of maintenance – A systematic preventive maintenance program is required to keep playgrounds in “safe” condition. There should not be missing, broken, or worn-out components, and all

hardware should be secure. The wood, metal, or plastic should not show signs of fatigue or deterioration. All parts should be stable, without apparent signs of loosening. The surfacing material also must

be maintained, and signs of vandalism should be noted, remedied, and subsequently monitored.

10. Pinch, crush, shearing, and sharp-edge hazards – Components in the play equipment should be

inspected to make sure there are no sharp edges or points that could cut skin. Moving components

such as suspension bridges, track rides, merry-go-rounds, seesaws, and some swings should be

checked to make sure that there are no moving parts or mechanisms that might crush or pinch a

child’s finger. 

11. Platforms without guardrails – Elevated surfaces such as platforms, ramps, and bridgeways should

have guardrails that will prevent accidental falls. Equipment intended for preschool-age children

should have guardrails on any elevated surface higher than 20 inches. Equipment intended for schoolage children should have guardrails on elevated surfaces higher than 30 inches.

12. Equipment not recommended for the public – Accidents associated with the following equipment

have resulted in the Consumer Product Safety Commission recommending that they not be used in

playgrounds: 

✓ heavy swings (such as animal-figure swings) and multiple-occupancy glider-type swings;

✓ free-swinging ropes that may fray or form a loop;

✓ swinging exercise rings and trapeze bars that are considered to be athletic equipment and,

therefore, are not recommended for public playgrounds. Overhead hanging rings with

short chains (generally four to eight rings) are acceptable on public playground equipment. 

To receive a copy of “The Dirty Dozen” brochure, send a request, along with a self-addressed,

stamped envelope, to the National Playground Safety Institute, 22377 Belmont Ridge Road, Ashburn,

VA 20148.

* Pressure-treated wood is another important concern for outdoor facilities. While it lasts longer than

untreated wood, it can release chemical contaminants (including arsenic) that make the area dangerous for children and adults. Thus, the use of treated wood should be phased out in the school

setting. When pressure-treated wood is removed from the playground, both the wood and the soil

or sand on which it rested should be removed because of the likelihood of soil contamination.

Adapted from the National Playground Safety Institute, a program of the National Recreation & Park Association

(http://www.uni.edu/playground/about.html).
60 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

For more information about playground safety, visit the National Clearinghouse for

Educational Facilities’ Playground Safety resource list at http://www.edfacilities.org/rl/playgrounds.cfm, which provides a list of links, books, and journal articles about playground

design for varying age levels, including resources on safety, accessibility, equipment, surfaces,

and maintenance. 

Storm-Water Runoff – Storm-water runoff is water from rain or snow that runs

off of streets, parking lots, construction sites, and residential or commercial

property. It can carry sediment, oil, grease, toxics, pesticides, pathogens, and

other pollutants into nearby streams and waterways. Once this polluted

runoff enters the sewer system, it is discharged into local streams and waterways, creating a major threat to drinking water and recreational waters. 

To minimize such contamination, storm-water runoff standards have been

established by the U.S. EPA, state, and local authorities.

For more information about storm water runoff, visit the EPA’s Storm-Water Runoff 

regulations site at http://www.epa.gov/fedsite/cd/stormwater.html.

Underground Storage Tanks (USTs) – USTs have been a particularly high-profile environmental issue during the past few decades. Leaking USTs can contaminate groundwater and lead to the accumulation of potentially explosive

gases. If USTs contain hazardous materials, both people and the environment

can be threatened. Although each state defines USTs somewhat differently

(e.g., some states consider commercial heating-oil tanks to be USTs), recommended practices for the use and disposal of any UST include:

✓ surveying for groundwater channels and reservoirs before selecting a

site for UST installation

✓ considering UST abandonment strategies prior to finalizing installation

decisions

✓ adjusting levels of scrutiny according to the type of liquid or gas to be

stored (e.g., hazardous materials demand extra caution)

✓ instituting a precautionary testing program for all USTs (including

tightness-testing, visual inspection by a certified inspector, and soil and

groundwater surveying in the vicinity)

✓ maintaining original UST construction and installation records (and

backup copies)

✓ maintaining detailed inventory records (e.g., percent filled, filling dates,

and amounts)

✓ maintaining detailed records of testing and inspection results

✓ requiring product suppliers to notify the maintenance manager when

new delivery people will be filling the UST so that their work can be

reviewed for quality 

✓ keeping a spill response kit on the premises at all times

✓ removing or sealing the UST according to applicable regulatory 

standards upon abandonment or discontinued use
CHAPTER 4: PROVIDING A SAFE ENVIRONMENT FOR LEARNING 61

Environmental health and safety is regulated by several authorities, including federal regulations, state laws, local laws, district

policies, and good, old fashioned, common sense. While these guidelines cite several relevant federal laws, they cannot detail

the wide range of individual state, local, and district-level regulations, many of which vary considerably between jurisdictions.

For more information about federal and state regulations, visit the U.S. Environmental Protection Agency’s Links to EPA

Regional Office and State Environmental Departments web page at http://www.epa.gov/epapages/statelocal/envrolst.htm.

ENVIRONMENTALLY FRIENDLY SCHOOLS

There is a growing emphasis on creating environmentally friendly school

buildings, sometimes referred to as “green schools,” “sustainable schools,” or

“high-performance schools.” The term “environmentally friendly” was once

considered to be synonymous with both higher initial costs and higher operating costs. However, this assumption is no longer valid. School buildings

and budgets can benefit immensely from the “green” concept when properly

applied. This goal is best accomplished by emphasizing long-term, sustainable systems, including the concept of building life-cycle costs (i.e., the total

cost of acquisition and ownership of a building or system over its useful life,

including capital costs, energy costs, and maintenance and operating costs). 

The sustainable high-performance school concept seeks to introduce 

a comprehensive environmental approach to all aspects of school design,

construction, operations, and maintenance. The benefits include:

✓ improved occupant health, motivation, and productivity

✓ improved flexibility when designing facilities

✓ reduced energy use, water use, maintenance costs, insurance costs, 

and operation costs

The U.S. Green Building Council (http://www.usgbc.org) provides evaluation tools through the Leadership in Energy and Environmental Design

(LEED) initiative. LEED is an assessment system designed for rating new

and existing buildings. It evaluates environmental performance from a “whole 

GOOD FACILITIES MANAGEMENT ALLEVIATES BOTH HEALTH AND FINANCIAL CONCERNS

The county’s newly renovated middle school was only four years old when staff in the lower level of the new

addition began complaining about curling book pages, musty smells, and the onset of respiratory ailments. An initial 

evaluation of the building showed the appearance of a variety of molds—not a good sign! 

Over the next two years, tens of thousands of dollars were spent on testing, consultants, cleaning, and carpet replacement.

It wasn’t until investigators reviewed the facility’s “as-built” drawings that a cause was discovered. It seems the building

contractor had run into a clerical snafu during HVAC installation and had received a univent system that was larger than

ordered. Since the mistake was on the part of the manufacturer, the contractor went ahead and installed the larger component. Unfortunately, the oversized cooling coils in the system moved air so quickly that it was being cooled without being

dehumidified—and the excess water vapor that was left in the air was free to condense throughout the building, causing

paper to yellow, mold to grow, and occupants to get sick.

Because the school board had relieved the building contractor of liability upon completion of the renovation, several board

members were reluctant to consent to the project to replace and downsize the univents and install power exhaust fans. But

the fact that students and staff alike were falling ill meant that they had no choice but to deal with the hundred thousand

dollar problem!
62 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

WEB SITES DESIGNED TO HELP WITH THE DEVELOPMENT AND

CONSTRUCTION OF HIGH PERFORMANCE SCHOOLS INCLUDE:

The National Best Practices Manual for Building High Performance Schools 

http://www.eren.doe.gov/energysmartschools/order.html 

Energy Design Guidelines for High Performance Schools

http://www.eren.doe.gov/energysmartschools/order.html

High Performance School Buildings

http://www.edfacilities.org/rl/high_performance.cfm

building” perspective over the building’s entire life cycle, and provides a

definitive standard for what constitutes a “green” building. LEED is based on

accepted energy and environmental principles and strikes a balance between

proven effective practices and emerging concepts. 

SECURING SCHOOL FACILITIES

security \si-’kyur- t-e\ n: freedom from danger; freedom from fear or 

anxiety; measures taken to guard against crime or attack.

“Securing” a facility refers to ensuring the physical security of both a facility

and its occupants—and requires a comprehensive approach to planning. 

At a minimum, planners must consider the following issues:

Locking systems

✓ Install locks on doors and windows as appropriate.

✓ Maintain locking devices responsibly so that keys and combinations 

are protected.

✓ Change locks that get compromised.

✓ Assign locking responsibilities to individuals and perform spot-checks

to ensure the job is being handled properly. 

✓ Prohibit manipulation of locks and entries (e.g., propping doors open).

Equipment protection

✓ Secure particularly valuable equipment (e.g., computers) with heavyduty cables and locks.

✓ Keep an up-to-date log of all valuable equipment, including equipment

location, brand, model, and serial number.

✓ Label equipment in a visible way to deter theft (e.g., with fluorescent

paint, permanent markers, or engraving equipment).

✓ Simultaneously label equipment in an unobtrusive way (e.g., labels 

hidden inside the computer case so they are less likely to be noticed

and removed by thieves) so that items can be identified if they are

stolen and later recovered.

✓ Never leave expensive portable equipment unattended (e.g., don’t leave

a laptop computer on the desk in an unlocked office).

Securing school facilities relies

mostly on common sense. Locks

can be installed, but entrances

will remain security breaches 

if people insist on propping

doors open.

e
Visibility

✓ Keep vehicle routes clear in terms of the field of view (e.g., trim hedges

and branches around intersections, stoplights, and signs).

✓ Keep pedestrian paths clear in terms of the field of view (e.g., trim

hedges and branches along sidewalks). 

✓ Keep pedestrian paths well lighted.

✓ Install security lighting and motion detector lighting outside of back

windows and doors.

Police/security facilities 

✓ Train security personnel to behave professionally at all times.

✓ Install metal detectors at building entries as necessary.

✓ Install surveillance cameras in otherwise unobservable parts of the

buildings as necessary.

Fire protection

✓ Maximize structural fire protection by building full-height walls and

fireproof ceilings.

✓ Install fire-response equipment as appropriate (e.g., automatic sprinklers and well-marked manual fire extinguishers).

Communications systems

✓ Provide administrators (or all staff) with wireless handsets equipped

with 911 panic buttons.

✓ Develop and practice an emergency communications action plan 

for contacting local fire, police, and medical authorities in an 

emergency.

Crisis management/disaster planning

✓ Perform a risk assessment to identify potential threats and risks facing

the organization.

✓ Convene top-level managers to determine appropriate crisis and 

disaster response for the organization.

✓ Include staff from throughout the organization in disaster-response

efforts.

✓ Include representatives from outside the organization as necessary 

for coordinating response with police, fire safety, and emergency 

services.

✓ Write a disaster-response plan that can be understood by staff 

members who will be expected to implement it.

✓ Practices crisis-management and disaster-response activities.

Visit http://nces.ed.gov/pubsearch/pubsinfo.asp?pubid=98297 to read the

detailed school security planning guidelines presented in Safeguarding Your

CHAPTER 4: PROVIDING A SAFE ENVIRONMENT FOR LEARNING 63
Technology, an online publication of the National Forum on Education 

Statistics.

For more information about school security, visit the following web pages: 

Keep Schools Safe at http://www.keepschoolssafe.org; National School Safety Center 

at http://www.nssc1.org/; and Safe and Drug-Free Schools Program at

http://www.ed.gov/offices/OESE/SDFS.

COMMONLY ASKED QUESTIONS

Does the school environment really affect student learning? 

Yes. Any factor that affects student health is likely to influence student attendance and alertness as well. For example, if a classroom has poor indoor air

quality, the likelihood of students suffering from respiratory illness increases

substantially—which results in higher absenteeism rates. Moreover, when

teaching staff are exposed to unhealthy environmental conditions, they are

more likely to miss school more often as well, resulting in more substitute

teachers and disrupted instructional programs.

How does a school district become better informed about the regulations

and laws with which they must comply? 

Numerous federal, state, and local laws that are intended to protect both 

our children and the environment must be complied with (and, in some

instances, followed to the letter) when managing school facilities. School

districts can request assistance from both federal and state regulatory

agencies in ensuring that existing regulations are understood and are being

properly implemented. Districts might also contact peer organizations to

exchange information and ideas about compliance strategies.

How does an organization know when it has met its obligation to provide

safe, healthy, and environmentally friendly facilities? 

There is no way to confirm 100-percent effectiveness on these fronts.

However, a district that makes the effort to learn about the issues and 

laws, proactively complies with the regulations, trains staff thoroughly, and

performs self-evaluations regularly should feel confident that it is doing

everything it can to ensure occupant health and safety and to preserve the

environment. On the other hand, ignoring or otherwise neglecting these 

serious issues (in other words, hoping for the best) is not an acceptable

management strategy from the perspective of either the public or the regulatory

agencies charged with protecting the public.

ADDITIONAL RESOURCES

Every effort has been made to verify the accuracy of all URLs listed in this

Guide at the time of publication. If a URL is no longer working, try using the

root directory to search for a page that may have moved. For example, if the

link to http://www.epa.gov/iaq/schools/performance.html is not working, try

http://www.epa.gov/ and search for “IAQ.”

64 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Q&A
Asbestos

http://www.edfacilities.org/rl/asbestos.cfm

A list of links, books, and journal articles about how asbestos abatement 

and management is conducted in school buildings, and how schools should

comply with federal regulations. National Clearinghouse for Educational

Facilities, Washington, DC.

Beyond Pesticides

http://www.beyondpesticides.org 

A nonprofit membership organization formed to serve as a national network

committed to pesticide safety and the adoption of alternative pest management strategies.

California Collaborative for High Performance Schools (ChiPS)

http://www.chps.net

A group that aims to increase the energy efficiency of public schools in

California by marketing information, service, and incentive programs directly

to school districts and designers. The goal is to facilitate the design of highperformance schools—environments that are not only energy efficient, but

also healthy, comfortable, well lit, and contain the amenities needed for a

quality education.

Children’s Environmental Health Network

http://www.cehn.org

A national multidisciplinary project dedicated to promoting a healthy environment and protecting children from environmental hazards. The site presents a variety of useful publications and materials.

Creating Safe Learning Zones: The ABC’s of Healthy Schools

http://www.childproofing.org/ABC.pdf

A primer prepared by the Healthy Buildings Committee of the Child

Proofing Our Communities campaign to offer guidance about constructing,

maintaining, and renovating healthy schools.

Disaster Planning and Response

http://www.edfacilities.org/rl/disaster.cfm

A list of links, books, and journal articles about building or retrofitting

schools to withstand natural disasters and terrorism, developing emergency

preparedness plans, and using school buildings to shelter community members during emergencies. National Clearinghouse for Educational Facilities,

Washington, DC.

Energy Design Guidelines for High Performance Schools

http://www.eren.doe.gov/energysmartschools/order.html

A manual written by the U.S. Department of Energy to help architects and

engineers design or retrofit schools in an environmentally friendly manner.

U.S. Department of Energy, Washington, DC. 

Green Schools

http://www.ase.org/greenschools/

A comprehensive program designed for K-12 schools to create energy awareness, enhance experiential learning, and save schools money on energy costs.

CHAPTER 4: PROVIDING A SAFE ENVIRONMENT FOR LEARNING 65

Why is it so important that all

asbestos-containing materials

be identified in school facilities?

Because this information guides

day-to-day maintenance and

operations. For example, if

there is asbestos in a building’s

floor tiles, staff must know not

to use the buffer/sander to clean

the area or else hazardous fibers

could be released into the air.
Hazardous Materials

http://www.edfacilities.org/rl/hazardous_materials.cfm 

A list of links, books, and journal articles about the identification, treatment,

storage, and removal of hazardous materials found in school buildings and

grounds. National Clearinghouse for Educational Facilities, Washington, DC.

Healthier Cleaning & Maintenance: Practices and Products for Schools 

A paper that provides guidance to schools with regard to selecting, purchasing, and using environmentally preferable cleaning products. Healthy Schools Network, Inc. (1999) New York State Association for Superintendents of

School Buildings and Grounds, Albany, NY, 8pp.

Healthy School Handbook: Conquering the Sick Building Syndrome and

Other Environmental Hazards In and Around Your School 

A compilation of 22 articles concerning “sick building syndrome” in educational facilities, with attention given to determining whether a school is

sick, assessing causes, initiating treatment, and developing interventions.

Miller, Norma L., Ed. (1995) National Education Association, Alexandria, VA, 446pp.

Healthy Schools Network, Inc. 

http://www.healthyschools.org/

A not-for-profit education and research organization dedicated to securing

policies and actions that will create schools that are environmentally responsible for children, staff, and communities. 

High Performance School Buildings 

http://www.edfacilities.org/rl/high_performance.cfm

A resource list of links and journal articles describing “green design,” a 

sustainable approach to school building design, engineering, materials selection,

energy efficiency, lighting, and waste management strategies. National

Clearinghouse for Educational Facilities, Washington, DC.

Indoor Air Quality (IAQ)

http://www.edfacilities.org/rl/iaq.cfm

A list of links, books, and journal articles about indoor air quality issues in 

K-12 school buildings, including building materials, maintenance practices,

renovation procedures, and ventilation systems. National Clearinghouse for

Educational Facilities, Washington, DC.

Indoor Air Quality (IAQ) Tools for Schools

http://www.epa.gov/iaq/schools/

A U.S. Environmental Protection Agency kit showing schools how to carry

out a practical plan for improving indoor air problems at little or no cost by

using straightforward activities and in-house staff. The kit includes checklists

for school employees, an IAQ problem-solving wheel, a fact sheet on indoor

air pollution issues, and sample policies and memos.

Integrated Pest Management

http://www.edfacilities.org/rl/pests.cfm

A list of links, books, and journal articles about integrated pest management

guidelines, the use of pesticides, staff training, and program implementation

and management in school buildings and grounds. National Clearinghouse

for Educational Facilities, Washington, DC.

66 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES
Janitorial Products: Pollution Prevention Project

http://www.westp2net.org/Janitorial/jp4.htm

A site sponsored by the U.S. Environmental Protection Agency that includes

fact sheets, product sample kits, purchasing specifications, and other materials to advise users on the health, safety, and environmental consequences of

janitorial products.

Keep Schools Safe

http://www.keepschoolssafe.org

A site resulting from a partnership between the National Association of

Attorneys General and the National School Boards Association to address

the subject of school violence. A bibliography on school violence resources is

provided, as is information specific to school security, environmental design,

crisis management, and law enforcement partnerships.

Lead-Safe Schools 

http://socrates.berkeley.edu/~lohp/Projects/Lead-Safe_Schools/

lead-safe_schools.html 

A site established by the Labor Occupational Health Program at the

University of California at Berkeley to house publications about lead-safe

schools, provide training to school maintenance staff, and offer a telephone

hotline to school districts and staff.

LEEDTM Rating System 

http://www.usgbc.org/ 

A self-assessing system designed for rating new and existing commercial,

institutional, and high-rise residential buildings. It evaluates environmental

performance over a building’s life cycle and provides a definitive standard 

for what constitutes a “green” building. LEED is based on accepted energy

and environmental principles and strikes a balance between known effective

practices and emerging concepts.

Mercury

http://www.epa.gov/mercury/index.html

A web site of the U.S. EPA intended to provide information about reducing

the amount of mercury in the environment. It includes both general and

technical information about mercury and mercury-reduction strategies.

Mercury in Schools and Communities

http://www.newmoa.org/newmoa/htdocs/prevention/mercury/schools/

Information from the Northeast Waste Management Officials’ Association

(NEWMOA), which was funded by the Massachusetts Department of

Environmental Protection and the Massachusetts Executive Office of

Environmental Affairs to assist in identifying and removing elemental 

mercury and products containing mercury from schools and homes.

National Best Practices Manual for Building High Performance Schools 

http://www.eren.doe.gov/energysmartschools/order.html 

A manual by the U.S. Department of Energy to help architects and engineers

design or retrofit schools in an environmentally friendly manner. U.S.

Department of Energy, Washington, DC.

CHAPTER 4: PROVIDING A SAFE ENVIRONMENT FOR LEARNING 67

The goal of an IPM program 

is to control pest activity while

minimizing the use of pesticides

and the subsequent risks to

human and environmental

health.
National Program for Playground Safety

http://www.uni.edu/playground/about.html

A site that describes playground safety issues, safety tips and FAQs, statistics

and additional resources, and action plans for improving playground safety.

National School Safety Center

http://www.nssc1.org/ 

An internationally recognized resource for school safety information, 

training, and violence prevention. The web site contains valuable summaries of

school safety research, including contact information for locating the studies.

Playgrounds

http://www.edfacilities.org/rl/playgrounds.cfm

A list of links, books, and journal articles about playground design for varying

age levels, including resources on safety, accessibility, equipment, surfaces, and

maintenance. National Clearinghouse for Educational Facilities, Washington, DC. Poisoned Schools: Invisible Threats, Visible Actions

http://www.childproofing.org/poisonedschoolsmain.html

A report that includes more than two dozen case studies of schools built on

or near contaminated sites or where children have otherwise been exposed

to pesticide use in and around school buildings. Gibbs, Lois (2001) Center

for Health, Environment and Justice, Child Proofing Our Communities

Campaign, Falls Church, VA, 80pp.

Radon Prevention in the Design and Construction of Schools and Other Large Buildings

http://www.epa.gov/ordntrnt/ORD/NRMRL/Pubs/1992/625R92016.pdf

A report outlining ways in which to ameliorate the presence of radon in

schools buildings. The document presents the underlying principles (suitable

for a general audience) and also provides more technical details for use by

architects, engineers, and builders. U.S. Environmental Protection Agency

(1994), Washington, DC, 51pp.

Safe and Drug-Free Schools Program

http://www.ed.gov/offices/OESE/SDFS

A program dedicated to reducing drug use, crime, and violence in U.S.

schools. The web site contains many full-text publications on school safety

and violence prevention.

Safeguarding Your Technology 

http://nces.ed.gov/pubsearch/pubsinfo.asp?pubid=98297

Guidelines to help educational administrators and staff understand 

how to effectively secure an organization’s sensitive information, critical 

systems, computer equipment, and network access. Technology Security Task Force, National Forum on Education Statistics (1998) National Center

for Education Statistics, Washington, DC.

Safety and Security Design

http://www.edfacilities.org/rl/safety_security.cfm

A list of links, books, and journal articles about designing safer schools, 

conducting safety assessments, implementing security technologies, and 

preventing crime through environmental design. National Clearinghouse 

for Educational Facilities, Washington, DC.

68 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES
Safety in Numbers: Collecting and Using Crime, Violence, and Discipline

Incident Data to Make a Difference in Schools

http://nces.ed.gov/pubsearch/pubsinfo.asp?pubid=2002312 

Guidelines for use by school, district, and state staff to improve the effectiveness of disciplinary-incident data collection and use in schools. It provides

recommendations on what types of data to collect and how the data can be

used to improve school safety. Crime, Violence and Discipline Task Force,

National Forum on Education Statistics (1998) National Center for

Education Statistics, Washington, DC

Storm Water Runoff

http://www.epa.gov/fedsite/cd/stormwater.html

A list of Storm Water Management Regulatory Requirements provided by

the U.S. EPA.

THOMAS Legislative Information on the Internet

http://thomas.loc.gov

A site maintained by the U.S. Congress to provide status reports on proposed

legislation.

Underground Fuel Storage Tanks

http://www.cefpi.org/issue4.html

A briefing paper about the responsibilities associated with owning and securing an underground fuel storage tank. McGovern, Matthew (1996) Council of

Educational Facility Planners International, Scottsdale, AZ, 5pp. 

U.S. Environmental Protection Agency (EPA)

http://www.epa.gov/

The main web site of the U.S. EPA, which works closely with other federal

agencies, state and local governments to develop and enforce regulations

under existing environmental laws. EPA Regional Office and Linked 

State Environmental Departments can be found at http://www.epa.gov/

epapages/statelocal/envrolst.htm

U.S. Green Building Council

http://www.usgbc.org

A web site intended to facilitate interaction among leaders in every sector of

business, industry, government, and academia with respect to emerging

trends, policies, and products affecting “green building” practices in the

United States.

CHAPTER 4: PROVIDING A SAFE ENVIRONMENT FOR LEARNING 69
70 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

YES NO

ACCOMPLISHED CHECKPOINTS PAGE

Do facilities planners recognize that occupant safety is always their

overarching priority? 

Has the organization contacted regulatory agencies (e.g., the EPA), 

the U.S. Department of Education, its state department of education,

professional associations, and peer institutions to obtain information

about applicable environmental regulations? 

Does the organization have a plan for responsibly managing indoor air

quality? 

Does the organization have a plan for responsibly managing asbestos? 

Does the organization have a plan for responsibly managing water 

quality and use? 

Does the organization have a plan for responsibly managing waste 

handling and disposal? 

Does the organization have a plan for responsibly managing CFCs and

HCFCs? 

Does the organization have a plan for responsibly managing emergency

power systems? 

Does the organization have a plan for responsibly managing hazardous

materials? 

Does the organization have a plan for responsibly managing integrated

pest management? 

Does the organization have a plan for responsibly managing lead paint?

Does the organization have a plan for responsibly managing mercury? 

Does the organization have a plan for responsibly managing personal

protective equipment? 

Does the organization have a plan for responsibly managing PCBs? 

Does the organization have a plan for responsibly managing radon? 

Does the organization have a plan for responsibly managing 

playgrounds? 

Does the organization have a plan for responsibly managing storm

water runoff? 

ENVIRONMENTAL SAFETY CHECKLIST

More information about accomplishing checklist points can be found on the page listed in the right-hand column.

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48

49

50

53

53

53

54

56

56

57

57

57

58

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CHAPTER 4: PROVIDING A SAFE ENVIRONMENT FOR LEARNING 71

Does the organization have a plan for responsibly managing 

underground storage tanks? 

Does the organization have a plan for introducing environmentally

friendly school concepts to new construction and renovation projects? 

Does the organization have a plan for responsibly managing locking

systems? 

Does the organization have a plan for protecting equipment? 

Does the organization have a plan for ensuring pedestrian and vehicle

visibility?

Does the organization have a plan for policing/securing facilities? 

Does the organization have a plan for responsibly managing fire 

protection? 

Does the organization have a plan for protecting communications systems? 

Does the organization have a plan for responsibly dealing with potential

crises and disasters? 

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62

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CHAPTER 5 

MAINTAINING SCHOOL FACILITIES 

AND GROUNDS

A comprehensive facility maintenance program is a school district’s foremost 

tool for protecting its investment in school facilities. Moreover, preventive 

maintenance is the cornerstone of any effective maintenance initiative.

Table of Contents:

Preventive Maintenance: 

An Ounce of Prevention 

Is Worth a Pound of Cure ......74

A Focus on Preventive 

Maintenance................................74

Maintenance and Operations 

Issues..............................................75

Custodial Activities ..................82

Grounds Management ............83

Departmental Organization 

and Management ..................85

Maintenance and Operations

Manuals ....................................86

Managing Facilities 

“Partners” ....................................86

Work Order Systems ............86

Building Use Scheduling 

Systems ....................................90

Managing Supplies................90

The Role of Maintenance 

During Renovation and

Construction ..............................92

Commonly Asked Questions ..94

Additional Resources ..............96

Maintaining School Facilities 

and Grounds Checklist..........100

GOALS: 

✓ To remind readers that an ounce of prevention is worth a pound of cure

✓ To convey strategies for planning and implementing “best practices” for maintaining facilities and grounds

CHAPTER 5: MAINTAINING SCHOOL FACILITIES AND GROUNDS 73

GOOD MAINTENANCE: A WIN-WIN SITUATION 

Russell Elementary School had its act together, and Jenny, the district’s

facilities manager, wanted to let everyone know it. “Principal Dalton, your

school has worked very hard this year to conserve energy. According to

reports I’ve received, you have a school-wide “turn-off-the-lights program,”

you insist on “energy saver” mode on all resting computers, and you 

maintain strict climate control on a year-round basis. Because your 

students and staff have done so much to conserve energy and protect the

environment, I am pleased to issue your school a check for $2,000 out of

the money you saved the district this year in utility bills. Please earmark 

the funds for student field trips and assemblies.” What Jenny chose not 

to mention was that the school’s utility bill had decreased by more than

$6,000 that year for a variety of reasons, including considerable forethought

on her part while planning a major renovation to the building. Still, the 

building staff had motivated the kids to do their part as well, and for that, 

they deserved the reward!
PREVENTIVE MAINTENANCE: AN OUNCE OF

PREVENTION IS WORTH A POUND OF CURE

Under the guise of “saving money,” many school districts (and other organizations for that matter) practice what is known as “breakdown maintenance”—a

maintenance program in which nothing is done to a piece of equipment until it

breaks down. And then, after the equipment breaks, the least expensive repair

option is used to return the equipment to service. While this may sound like

a cost-saving approach to maintenance, precisely the opposite is true. 

Breakdown maintenance defers repairs and allows damage 

to accumulate, compounding an organization’s problems. On the

other hand, regularly scheduled equipment maintenance not only

prevents sudden and unexpected equipment failure, but also reduces

the overall life-cycle cost of the building.

Maintenance entails much more than just fixing broken equipment. In fact,

a well-designed facility management system generally encompasses four categories of maintenance: emergency (or response) maintenance, routine maintenance, preventive maintenance, and predictive maintenance. The one everyone

dreads is emergency maintenance (the air conditioner fails on the warmest day 

of the year or the main water line breaks and floods the lunchroom). When 

the pencil sharpener in Room 12 finally needs to be replaced, that is routine

maintenance. Preventive maintenance is the scheduled maintenance of a piece 

of equipment (such as the replacement of air conditioner filters every 10 weeks

or the semiannual inspection of the water fountains). Finally, the cutting edge 

of facility management is now predictive maintenance, which uses sophisticated

computer software to forecast the failure of equipment based on age, user

demand, and performance measures.

A FOCUS ON PREVENTIVE MAINTENANCE

A good maintenance program is built on a foundation of preventive 

maintenance. It begins with an audit of the buildings, grounds, and equipment (see Chapter 3). Once facilities data have been assembled, structural

items and pieces of equipment can be selected for preventive maintenance.

When designing a preventive maintenance program, heating and cooling 

systems are always a good place to start, but planners should think creatively

because there may be other components that would be good candidates for

preventive maintenance.

Once the items (structures, equipment, and systems) that should receive 

preventive maintenance have been identified, planners must decide on the

74 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

“Breakdown maintenance” 

is not in the best interest of 

the taxpayer, the maintenance

department, or students 

and staff.

Good preventive

maintenance 

practices interrupt

the cycles that 

perpetuate high 

energy use and 

short equipment

life cycles.

OVERALL EFFICIENCY

THE MAINTENANCE SPECTRUM
frequency and type of inspections. Manufacturers’ manuals are a good place

to start when developing this schedule; they usually provide guidelines about

the frequency of preventive service, as well as a complete list of items that

must be maintained. Many manufacturers will assist customers in setting up

preventive maintenance systems (if for no other reason than they get the

additional business of selling replacement parts). 

Once the information is assembled, it must be formatted so that preventive maintenance tasks can be scheduled easily. Ideally, scheduling is handled 

by a computerized maintenance management program (see Chapter 3).

However, a district that does not have such a system can accomplish the task

with a stack of 3” x 5” index cards and a dozen manila folders (one for each

month). One side of the index card should contain information about the

equipment and the services that need to be performed. The back side of the

card is used to record the date on which service is performed, the name of

the technician, and the cost of materials. After each inspection, the card gets

placed in the manila folder assigned to the month of the next inspection. For

example, if the initial inspection is in February and the inspection is a semiannual, the card would be returned to the August folder. This simple system

should meet the needs of a smaller school district. However, larger districts

should invest in a computerized maintenance management system designed

specifically for school districts.

For more information about preventive maintenance, visit the National Clearinghouse for

Educational Facilities’ Maintenance Page at http://www.edfacilities.org/rl/maintenance.cfm,

which provides list of links, books, and journal articles on how to maximize the useful life 

of school buildings through preventive maintenance, including periodic inspection and 

seasonal care.

MAINTENANCE AND OPERATIONS ISSUES

A number of specific maintenance topics are addressed in the following 

paragraphs. Every school organization in the nation may not encounter every

one of these issues since school facilities and circumstances facing school 

districts vary enormously. Additional information about relevant environmental

topics can be found at the U.S. Environmental Protection Agency’s Web index

page at http://www.epa.gov/ebtpages/alphabet.html.

Access Controls – Keys and key control are a major concern for all districts.

For example, who has the authority to issue keys? A great grand master 

keying system – a pyramid system that allows several doors to be opened by

one master key – is well worth the investment. (All major manufacturers of

CHAPTER 5: MAINTAINING SCHOOL FACILITIES AND GROUNDS 75

Record keeping is important 

for many reasons, including

justifying costs associated 

with preventive maintenance. 

A computerized maintenance

management system (see Chapter

3) is designed to track preventive

(and other) maintenance costs.

Districts that don’t have 

automated systems should track

costs manually.

When planning preventive maintenance, decision-makers should consider how to most efficiently schedule the work—

i.e., concurrently with academic breaks or other planned work. For example, preventive maintenance work such as boiler pipe replacements can be conducted while the boiler is out of commission for routine maintenance (such as when

cleaning the scale and mud from inside the boiler or cleaning the manhole and handhold plates). Whereas emergency

events demand immediate attention whenever they occur, preventive maintenance activities can be scheduled at a 

convenient time. Because a rigorous preventive maintenance system results in fewer emergency events, it tends to

reduce disruptions to the school schedule.
lock systems produce great grand master keys.) Also, the concept of a “key”

has changed rather dramatically over the past decade or so. Electronic locks

that open by card, code, or password are now being used in many schools.

Some systems record the time and identification number of each person who

opens a door. Whether traditional metal keys or electronic “keys” are used,

top-level school managers and the school board should establish a clear and

concise “key policy.” 

Boilers – Boilers, which can be used to generate hot water for domestic 

use (e.g., kitchens, showers, and bathrooms) or for heating buildings, should

definitely be included in an organization’s preventive maintenance program.

Most large boilers are subject to state or local inspection laws, which typically require that the boiler be maintained on a regular basis (at least annually)

and that maintenance records be kept on-site. Records of hours of operation

and fuel use must also be maintained on-site and made available to inspectors. Moreover, permits may be required for boilers that generate more than

10,000,000 btu/hour. Energy-saving techniques include equipping boilers

with hot-water temperature resets (which adjust the temperature of the hot

water being produced based on the outside temperature) and using boiler

economizers to capture and recycle heat that would otherwise be lost in 

the stacks. 

Electrical Systems – Electrical equipment must be maintained like any other

piece of equipment, whether it is a distribution pole with transformers or a

breaker box for controlling a classroom’s electrical power. Professional engineers and electricians should help to determine preventive maintenance tasks

and schedules for electrical components. Thermographic scanning, which

identifies overheating in connections, motors, bearings, and other electrical

switchgear, can be an important tool for determining the condition of electrical

gear (the principle behind the test is that a loose connection, bad bearing, 

or bad breaker bars will produce more heat than a proper connection).

Thermographic scanning devices are not expensive and should be part 

of every district’s standard maintenance toolkit. Another new technology,

motor current analysis, checks the line current going to a motor and can 

be used to identify unacceptably high resistance and other defective parts 

in a motor before it fails. With the widespread use of computers, the proper

maintenance of electrical systems is more important than ever in 21st-century

schools. Reliance upon extension cords and an excessive number of power

76 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Keys are only one of many

methods for controlling building

access. People who are 

authorized to be in a district

facility should be clearly 

identifiable, even from a 

distance. Thus, it is wise to

require maintenance and 

operations staff to wear 

district-issued uniforms when

working at school sites. (Even a

T-shirt with “Evergreen School 

District Maintenance Staff”

silk-screened across the front

can serve as an “official” 

uniform when worn with

khaki work pants and boots.

Identification badges with an

individual’s picture are another

effective means for identifying

individuals who are authorized

to enter a school.

A good maintenance plan is

preventive—i.e., preventive

work orders outnumber 

emergency work orders.
poles is an indication that permanent upgrades to the electrical system are

needed. However, upgrading existing electrical systems in old buildings must

be carefully managed. Building codes vary by locality, but whatever procedures,

standards, and inspection requirements exist are designed for standardization

and safety and must be carefully followed by school personnel.

Energy Management – The cost of energy is a major item in any school budget. Thus, school planners should embrace ideas that can lead to reduced

energy costs. Energy Management Systems are computer-controlled systems

that operate HVAC units. They can automatically turn on and off air conditioning, lights, and boilers according to pre-programmed instructions entered

by facilities staff. Investment in Energy Management Systems will generally

be recouped within a few years. The following guidelines will help a school

district to accomplish more efficient energy management:

✓ Establish an energy policy with specific goals and objectives.

✓ Assign someone to be responsible for the district’s energy management

program, and give this energy manager access to top-level administrators.

✓ Monitor each building’s energy use.

✓ Conduct energy audits in all buildings to identify energy-inefficient units.

✓ Institute performance contracting (i.e., contracts requiring desired

results rather than simply a list of needed products) when replacing

older, energy-inefficient equipment.

✓ Reward schools that decrease their energy use.

✓ Install energy-efficient equipment, including power factor correction

units, electronic ballast, high-efficient lamps, night setbacks, and 

variable-speed drives for large motors and pumps.

✓ Install motion detectors that turn lights on when a room is occupied

(and off when the room is unoccupied).

CHAPTER 5: MAINTAINING SCHOOL FACILITIES AND GROUNDS 77

Some schools save energy by

closing at 5 p.m. one night a

week—meaning no after-school

clubs, athletic events, or community use for that evening.

The inconvenience to users 

is minimal compared to the

substantial savings, which

include not only lower utility

bills but also improved staff

sanity since it is the one night 

a week everyone will go home

at a reasonable hour!

FOCUS ON ENERGY EFFICIENCY

Direct Digital Controls (DDCs): DDCs are a state-of-the-art method of controlling temperature with sensors and computers.

Thermostats are replaced by a sensor that transmits the current room temperature to a computer, which has been 

programmed with a desired “target” temperature and signals the controller to raise or lower the room temperature as

needed to reach the target. DDCs are not yet standard with most Energy Management Systems, but they can be purchased

as an upgrade or retrofitted to existing systems.

Two-Pipe and Four-Pipe HVAC Systems: HVAC water systems heat and cool buildings by transferring hot or cold water

through a system of pipes. One method of moving the water through a building uses a “ two-pipe” system, in which one

pipe is used to supply the water to the point of use and the other is used to return the water to its source. Because only

two pipes need to be installed, it is initially less expensive than a “four-pipe” system. The drawback is that chilled and hot

water can’t both be supplied at the same time. In other words, a building is either being heated or being cooled in its

entirety at any given time. If, for example, the south face of a building heats up faster than the shaded north face, there

is no way to heat one part of the building while another part is being cooled. 

In contrast, a four-pipe system (which is basically a dual two-pipe system) allows both chilled and hot water to be sent 

to different parts of a building at the same time. Because four-pipe systems minimize the need for unnecessary heating

or cooling, they are recommended in all new building construction and renovation. Although they cost more to install,

their operational savings will quickly recoup the costs and lead to substantial energy savings over a building’s life.
For more information about energy management, visit the National Clearinghouse for

Educational Facilities’ Energy Page at http://www.edfacilities.org/rl/energy.cfm, which 

provides list of links, books, and journal articles on various methods of heating, cooling,

and maintaining new and retrofitted K-12 school buildings and grounds.

Fire Alarms – Fire drills should be held on a monthly basis 

both to test fire alarms and practice occupant response to fire

emergencies. During school breaks when buildings are not occupied, detailed inspections of all fire alarms should be performed.

This includes testing all pull stations, smoke detectors, and heat detectors

located in building ductwork. (Note that the installation of smoke and heat

detectors in HVAC ducts is a recent, but important, revision to many building codes.) Some states require that a licensed contractor perform fire alarm

inspections.

Floor Coverings – Selecting appropriate floor coverings for a school is an

important issue that planners must address during renovation and new construction. Often lunchrooms, main halls, and secondary halls are covered in

terrazzo, vinyl composition tile (VCT), or quarry tile. These coverings have

hard surfaces that are easily cleaned and do not collect dirt. In classrooms

where noise control is important, carpets with an impermeable backing,

which prevents the passage of water or dirt and are easily cleaned, may be

used. Carpets can also be purchased with adhesives already attached to the

backing, which helps to ensure complete adhesion without the emission of

volatile organic compounds (VOCs). Some primary schools use area rugs

78 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Experienced facilities managers

recommend that all grout be in

earth tones (or on the dark side

of the color spectrum) because

light-colored grout tends to

stain and discolor over time,

often to the point that it is 

difficult to restore or repair.

FOCUS ON FLOORS: A COMMON CUSTODIAL TASK

A large part of custodial responsibilities in a school building involves the cleaning of various types of flooring. 

In heavy-traffic areas such as corridors, classrooms, and cafeterias, an effective cleaning regimen might be:

CARPETS HARD SURFACES

✓ Shake floor mats in entryways ✓ Shake floor mats in entryways

✓ Vacuum daily ✓ Dry-mop daily

✓ Apply spot remover as needed ✓ Apply spot remover as needed

✓ Deep-clean prior to start of school year ✓ Wet-mop three times/week

✓ Deep-clean during holiday break ✓ Spray-burnish every other week

✓ Scrub-clean twice yearly ✓ Strip and finish yearly

Although carpets help to protect floors, they are difficult to keep clean. They collect dirt and pesticides, and incubate 

fungi and bacteria when moisture gets trapped. Adhesive backing can also give off harmful fumes. (Some new school

buildings are being constructed without carpets to alleviate these health concerns.) If, however, the floor-covering inventory

includes carpet, then provisions must be made for proper cleaning. A hot-water extractor should be available at each school

and used weekly to remove stains and dirt. Carpets should be steam-cleaned annually with a professional-quality steam

cleaner that generates water at least 140oF and an extraction capability of 60 pounds per square inch. Note, however, that

carpets must be dried within 24 hours of wet-cleaning to prevent mold from growing. Carpet bonnets, which attach over

a buffer wheel, should never be used because they damage carpets. Larger districts should have in-house staff who are

capable of repairing buffers, vacuum cleaners, and other types of carpet-cleaning equipment. Equipment manufacturers

will advise customers about training repair people and obtaining replacement parts.

For more information about recommended carpet and rug care, visit the Carpet and Rug Institute (CRI) at http://www.carpet-rug.com/. The CRI

also has a site that focuses on carpet use in schools, including such topics as indoor air quality, allergies, and carpet selection, installation, and care

at http://www.carpet-schools.com/.
rather than carpets because they can be easily removed and cleaned at the

end of the school year or as needed. Periodic cleaning of both carpets and

rugs is necessary to minimize the likelihood of dirt and other contaminants

causing indoor air quality problems. Ceramic floor tile is an excellent surface

material for bathrooms or other areas with high exposure to water. Good

specifications for a high-performance, soft-surface floor covering include:

✓ nylon type 6.6

✓ face weight no greater than 20 ounces

✓ 100 stitches per square inch

✓ vinyl pre-coated as primary backing

✓ close-cell vinyl cushion

✓ permanently fused to tufting blanket

✓ no moisture penetration after 10,000 impacts

✓ no backing or seam degradation after 50,000 cycles from Phillips Chair

Caster Test

✓ factory-applied non-wet, low-VOC adhesive with no off-gassing

(required) 

✓ permanent chemically welded seams

✓ warranty non-prorated for 20 years against zippering, delamination,

edge ravel, excessive surface wear, and loss of resiliency

For more information about floor care, visit the National Clearinghouse for Educational

Facilities’ Floor Care Page at http://www.edfacilities.org/rl/floor_care.cfm, which 

provides list of links, books, and journal articles on the maintenance of a variety of floor

coverings in K-12 school classrooms, gymnasiums, science labs, hallways and stairs.

Gym Floors – Gym floors are generally constructed with vinyl composition

tile (VCT), one of several grades of maple flooring, sheet rubber, or other

synthetic materials. Regardless, all floor types must be kept clean and properly maintained. VCT floors must be periodically stripped and re-waxed to

ensure a safe surface. Wood floors require annual screening and resealing

with a water-based sealant. They should also be sanded, re-marked, and

resealed in their entirety every 10 years. Synthetic floors (including sheet rubber

but excluding asbestos tile) require monthly cleaning and scrubbing with buffers.

Heating, Ventilation, and Air Conditioning (HVAC) Systems – All schools require

HVAC systems to control indoor climate if they are to provide an environment that is conducive to learning. In fact, oftentimes a district’s ability to

convene classes depends on acceptable climate control. If the air conditioning is broken on a 90oF day or the heating system is malfunctioning on a

30oF day, school gets canceled. It’s as simple as that. Different regions of the

country may place emphasis on different elements of the HVAC system, but

the bottom line is the same: HVAC components must be maintained on a

timely and routine basis. This preventive maintenance will ensure reliability,

reduce operating costs, and increase the life expectancy of the equipment. 

CHAPTER 5: MAINTAINING SCHOOL FACILITIES AND GROUNDS 79
Two effective ways to improve HVAC performance are through air balancing and water balancing. Air balancing ensures that the desired amount of air 

reaches each space in the building, as specified in the mechanical plans. Water balancing ensures that the flow of water from the chiller and boiler 

is in accordance with the mechanical plans. Water balancing is normally performed before air balancing. Balancing is usually conducted upon installation

of new equipment and at 5- to 8-year intervals. Balancing should also be 

conducted when building space is substantially modified or room use is changed dramatically. For more information about HVAC systems, visit the National Clearinghouse for

Educational Facilities’ HVAC Page at http://www.edfacilities.org/rl/hvac.cfm, which 

provides list of links, books, and journal articles on HVAC systems, including geothermal

heating systems, in school buildings.

Hot Water Heaters – Hot water heaters in schools range in size from small 

10-gallon heaters to the larger 100- to 300-gallon units. Preventive maintenance

programs must be established for each hot water heater. At a minimum, 

maintenance should include inspection for failing safety devices and leaks

(especially if fired by natural gas).

Kitchens – Kitchens present special problems for school districts: not only

must equipment be maintained properly to ensure reliability, but 1) a high

state of cleanliness must be maintained in all food preparation areas; 2) the

use of certain cleaning agents may be discouraged in food preparation areas;

and 3) ovens and stoves pose special fire safety concerns. Floor surfaces are

also of particular concern in kitchens since they must be easy to clean yet

slip-resistant. Recommended floor surfaces for kitchens include terrazzo,

vinyl composition tile (VCT), quarry tile, and sealed concrete. Kitchen equipment is a prime candidate for inclusion in a preventive maintenance program. Painting – Painting should be done on a regular schedule that is published

well in advance of work dates to minimize inconvenience to building occupants. Painting needs will be determined largely by the type of surface, the

type of paint applied previously, and surface use (e.g., a window pane may be

expected to receive less wear than a chair rail). A wall constructed of concrete

masonry units (CMU) and painted with a two-part epoxy can last 8 or 10

years whereas drywall will require painting every 5 or 6 years. Bathrooms,

special education areas, and other high-traffic areas will require painting on a

more frequent schedule. A durable, cleanable (i.e., able to be cleaned by the

custodial staff with their standard tools), paint from a major manufacturer

should be used for indoor areas. Water-based latex paints are a good choice because they are low in volatile organic compounds (VOCs) and do not produce noticeable odors. Surfaces must be properly prepared for painting, which

may require the use of a primer to cover stains and discolored patches.

Plumbing – Like other major building components, plumbing should be

included in the preventive maintenance program. Sprinkler systems, water

fountains, sump pumps, lift pumps, steam traps, expansion joints, and drains

are likely targets for preventive maintenance. Standing water must be avoided

at all costs since it damages building materials and can lead to mold concerns

that affect indoor air quality.

80 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES
Public Address Systems and Intercoms – These communications tools are vital to

the management of school buildings and, in an emergency, the safety of

building occupants. Public address (PA) systems must be connected to the

emergency power system to ensure uninterrupted communications in the

event of a power failure. Public address systems and intercoms should be

tested on a daily basis during the broadcast of a school’s morning announcements. If broadcast systems fail to perform properly, they must be repaired

immediately.

Roof Repairs – Roofs should be included in a preventive maintenance 

program and inspected on a regular schedule. The key to maintaining good

roofs is the timely removal of water from the surface and substructure of the

roof. Thus, all leaks and damaged tiles must be repaired as soon as possible

to prevent water damage and mold growth. On composition built-up roofs,

hot tar is the only appropriate repair method. Single-ply and modified roofs

should be repaired in accordance with the manufacturer’s instructions. Staff

should read carefully all warranties issued with new roofs to ensure that

required maintenance is conducted according to specification so as to avoid

invalidating the warranty protections. For example, failing to inspect or repair

a roof on an annual basis (and document such efforts) may be considered 

justification for a manufacturer invalidating a warranty. 

The facility manager must verify the annual assessment of each roof

within the district, recording the date of installation, type of roof, type and

thickness of insulation, type of drainage, and type and frequency of repair

work. Detailed drawings or photographs that show the location of repairs

should be maintained, as should contact information for the installing contractor. This information is extremely important in the event of a major roofing problem or an insurance or warranty claim. Whatever type of roof is

selected, it should be installed by a reputable (and bonded) roofer and should

include a non-prorated warranty.

For more information about roof repairs, visit the National Clearinghouse for Educational

Facilities’ Roof Repair Page at http://www.edfacilities.org/rl/roof_maintenance.cfm, which

provides list of links, books, and journal articles discussing maximizing the life cycle 

performance of school roofs, as well as roof inspection strategies, scheduling, 

documentation, and repair resources.

Water Softeners – Water softeners are often used in hot water lines in those

regions of the country where the water has a high concentrate of calcium.

Water softeners remove the calcium from the water, which prolongs the life

of dishwashers and other kitchen equipment.

CHAPTER 5: MAINTAINING SCHOOL FACILITIES AND GROUNDS 81

Schools are subject to federal regulations, state law, local law, district policy and, hopefully, good, old-fashioned 

common sense. While these guidelines cite relevant federal regulations they cannot fully describe the wide range of

individual state, local, and district-level regulations, many of which vary considerably between jurisdictions. For more

information about federal and state regulations, visit the U.S. Environmental Protection Agency’s Links to EPA Regional

Office and State Environmental Departments web page at http://www.epa.gov/epapages/statelocal/envrolst.htm. 
CUSTODIAL ACTIVITIES

The first step toward establishing an effective custodial program is to determine the district’s expectations of its custodial services. This requires input

from both the school board (who ultimately will fund the program) and the

building administration (who will live with the results of the program).

Facilities managers must then determine how to staff and support custodial

efforts to meet these expectations. Managers must also determine the chain 

of command for custodial staff. In smaller districts, the head custodian often

reports to the school principal. In larger districts, the custodial staff generally

work directly for a central administrator who is trained in custodial operations

and has ultimate responsibility for the cleanliness of the district’s buildings. 

Another management decision concerns the type of custodial cleaning 

to be used: area cleaning or team cleaning. Area cleaning is a traditional

approach to custodial work, still commonly used in small districts, in which 

a custodian is responsible for all aspects of cleaning (e.g., vacuuming, dusting,

trash removal) in a specific area. By contrast, team cleaning relies on specialists,

with one person handling all the vacuuming, one person washing all the

chalkboards, one person cleaning all the bathrooms, etc. 

In theory, team cleaning is more efficient than area cleaning: thus, a 

four-person team can be expected to clean more than four times the square

footage of a “generalist” custodian in the same time period. This approach is

also equipment-efficient—each team of four needs only one vacuum cleaner;

82 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

ESTABLISHING EXPECTATIONS FOR CUSTODIAL EFFORTS

Planners, administrators, and community members must agree on what constitutes “cleanliness.” While there is not 

a nationwide standard for describing standards of cleanliness, a five-tiered system of expectations is emerging to help

guide decision-making:

Level 1 cleaning results in a “spotless” building, as might normally be found in a hospital environment or corporate suite. At this level, a custodian with proper supplies and tools can clean approximately 10,000 to 11,000

square feet in an 8-hour period.

Level 2 cleaning is the uppermost standard for most school cleaning, and is generally reserved for restrooms,

special education areas, kindergarten areas, or food service areas. A custodian can clean approximately 18,000

to 20,000 square feet in an 8-hour shift.

Level 3 cleaning is the norm for most school facilities. It is acceptable to most stakeholders and does not pose

any health issues. A custodian can clean approximately 28,000 to 31,000 square feet in 8 hours.

Level 4 cleaning is not normally acceptable in a school environment. Classrooms would be cleaned every other

day, carpets would be vacuumed every third day, and dusting would occur once a month. At this level, a custodian can clean 45,000 to 50,000 square feet in 8 hours.

Level 5 cleaning can very rapidly lead to an unhealthy situation. Trash cans might be emptied and carpets vacuumed on a weekly basis. One custodian can clean 85,000 to 90,000 square feet in an 8-hour period.

The figures above are estimates. The actual number of square feet per shift a custodian can clean will depend on 

additional variables, including the type of flooring, wall covers, and number of windows, all of which must be taken 

into account when determining workload expectations.

Area cleaning is the traditional

approach in which a single 

custodian is responsible for all

aspects of cleaning (vacuuming,

dusting, trash removal, etc.) in

a specific area. Team cleaning

is performed by a team of 

specialists where one uses the

vacuum, another a dust mop,

and yet another empties 

wastebaskets or cleans the

chalkboards.
whereas each “generalist” custodian needs his or her own vacuum, mop,

broom, and floor waxer. On the down side, a specialist who vacuums for

eight hours at a time may burn out more quickly than a custodian who has

more varied duties (although this can be minimized by “rotating” team members’

cleaning duties). Team cleaning also tends to inhibit the personal interaction

between custodians and faculty that is characteristic of area cleaning.

Many districts have used both approaches to cleaning successfully. The key

variable is the degree of cleanliness the district desires relative to its willingness

to incur increased personnel and equipment costs. In general, area cleaning

results in cleaner facilities because a single custodian is responsible for an entire

area, allowing him or her to become intimately familiar with the specific needs

of the area. Team cleaning, however, tends to be somewhat less expensive.

For more information about custodial activities, visit the National Clearinghouse for

Educational Facilities’ Cleaning Page at http://www.edfacilities.org/rl/cleaning.cfm, which

provides list of links, books, and journal articles on custodial standards and procedures,

equipment, safety, and product directories for the cleaning and maintenance of schools

and colleges.

GROUNDS MANAGEMENT

The entire school grounds must be properly maintained on a routine and 

preventive basis. School grounds can be defined as the full extent (i.e., corner

pin to corner pin) of all school property, including school sites, the central office,

and other administrative or support facilities. This includes, but is not limited, to: 

✓ courtyards

✓ exterior lighting and signage 

✓ outdoor learning equipment

✓ pools

✓ museums

✓ bike trails

✓ modular facilities

✓ paved surfaces (e.g., sidewalks, parking lots, and roads)

✓ athletic fields (including synthetic surfaces such as Astroturf)

✓ vacant property owned by the district

CHAPTER 5: MAINTAINING SCHOOL FACILITIES AND GROUNDS 83

Properly maintained athletic

turf, physical education fields,

and playgrounds can help to

improve student health and

safety. Specifically, well-rooted,

flat, and divot-free surfaces

reduce the occurrence of leg

and foot injuries.

SHOULD CUSTODIANS PERFORM LIGHT MAINTENANCE ACTIVITIES? 

In many large school districts, job overlap is frowned upon—both from the perspective of “time off-task” and union

agreements. In smaller districts, it wouldn’t be realistic to expect a maintenance person to drive out from central office

just to change a light bulb or replace a fuse, especially when there is an on-site custodian who is perfectly capable of

doing the job. Small organizations will argue that this is plain common sense. Big districts may claim that it upsets the

organizational chart. There’s no right answer: local decision-making depends on local circumstances.
Some school districts have responsibility for managing areas of special

concern, including (believe it or not): 

✓ wetlands

✓ caves

✓ mine shafts

✓ sinkholes

✓ sewage treatment plants

✓ historically significant sites

✓ other environmentally sensitive areas

Other grounds-related factors that demand consideration include:

✓ use of fertilizers/herbicides

✓ watering and sprinkler systems

✓ use of recycled water (gray water) for plumbing, watering fields, etc.

✓ drainage

✓ scheduling “rest” time (e.g., time for new grass to grow after the 

football season)

✓ weighing the aesthetic benefits of flower beds versus the health costs 

of increased allergy events and bee stings

✓ use of the grounds as a classroom (e.g., “science” courtyards and 

field labs)

Planners must determine the frequency and level of maintenance service

desired for grounds and outdoor equipment. For example, should the grass 

be cut once or twice a week? Is this schedule modified during peak and low

growing seasons? Is a grassy area’s use taken into consideration when determining its maintenance needs? Clearly, fields used for gym classes require 

less attention than the varsity baseball infield.

For more information about managing grounds, visit the National 

Clearinghouse for Educational Facilities’ Grounds Maintenance Page at

http://www.edfacilities.org/rl/grounds_maintenance.cfm, which provides list 

of links, books, and journal articles on managing and maintaining K-12 school

and college campus grounds and athletic fields.

84 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Larger education organizations

may want to have someone 

on the grounds crew who is 

certified in the application of

pesticides and herbicides. For

more information about this

issue, see the discussion about

Integrated Pest Management

(IPM) in Chapter 4.

KEEPING A SCHOOL CLEAN ISN’T ONLY THE CUSTODIAN’S RESPONSIBILITY

Some schools have adopted the “30-second rule” in which everyone in the building stops what they are doing and

cleans the room they are in during the last 30 seconds of the day. (Most parents seem to approve of their kids getting

used to cleaning up their space at the end of each day!)

In other schools, the student council is hired (via a donation from the maintenance department) to make sure that

trash stays off of the floor.

Another approach is to give a “Golden Trash-Can Award” to the homeroom that is kept the cleanest during the 

week—with the winners earning a pizza party from the maintenance department at the end of the month.
DEPARTMENTAL ORGANIZATION AND MANAGEMENT 

The ideal organization of the maintenance and operations department

depends on the size of the school district—in square miles and the number

and distribution of campuses. Large districts often use the “area support 

management concept,” in which the district is divided into two or more

areas, each with its own direct-support team that provides comprehensive

maintenance. Each team would include skilled craftsmen such as painters,

plumbers, electricians, HVAC repairmen, general maintenance personnel, 

and grounds personnel. Other tasks for which there is less demand – such as

kitchen equipment specialists, small-engine specialists, cabinetmakers, roofers,

and locksmiths – are supported from a central location. An alternative

approach is to group staff according to their skill or craft – for example, all 

electricians work for the lead electrician, all plumbers work for the lead

plumber, and so on. Both approaches to maintenance and operations 

organization are valid provided the chosen system supports current district

needs and can adapt to future growth. Because local circumstances vary so 

greatly, there is no national staffing standard for determining the number 

of plumbers, roofers, or electricians needed by a district. However, several

professional organizations offer guidelines based on the amount of building

square footage that needs to be maintained. Other factors that must be 

considered include the size of the district in miles, the age of the buildings,

the maintenance history of the buildings, funds available for maintenance

activities, and the expectations of the community and school administration.

CHAPTER 5: MAINTAINING SCHOOL FACILITIES AND GROUNDS 85

RECOMMENDED LEVELS OF SERVICE FOR BASIC GROUNDS CARE:

Acceptable = staff 1:20 acres

Standard = staff 1:18 acres

High = staff 1:15 acres

RECOMMENDED LEVELS OF SERVICE FOR ATHLETIC FIELD AERATION:

Acceptable = once (1)/year

High = five (5) times/year

These recommendations must be modified to accommodate local 

circumstances. For example, a school district that is responsible for 

managing five acres of wetlands would need to adjust staffing levels 

to ensure the preservation of this property.

MARKETING MAINTENANCE

Few people notice when facilities are clean and working properly (although the opposite is far from true!). Facilities

staff are often uncomfortable calling attention to their own good work, but they shouldn’t be. After all, top-level

administrators should occasionally be reminded of the important role that well-maintained facilities play in the 

effective operation of an education institution.
Maintenance and Operations Manuals 

Every maintenance and operations department should have a policies and

procedures manual that governs its day-to-day operations. The manual

should be readily accessible (perhaps via an Intranet or the Internet), and

written at a level consistent with the reading ability of department members.

At a minimum, the manual should contain:

✓ mission statement

✓ personnel policies

✓ purchasing regulations

✓ accountability measures

✓ asbestos procedures

Managing Facilities “Partners” 

Schools belong to their communities. Individuals and groups in a community

often take “ownership” in their schools’ facilities in the sense that they initiate

efforts to improve building condition, technological capabilities, and recreational equipment. This is a good thing—certainly parent-teacher associations,

booster clubs, and business circles are all friends of our school systems.

Having said this, facilities managers must supervise any activities undertaken

by these organizations to upgrade or otherwise modify school facilities. For

example, internet cabling installed by parents and community members must

be coordinated with the rest of the building’s electrical system and recorded

on wiring diagrams. Similarly, all upgrades to playground structures, whether

installed by maintenance staff or “amateurs,” must meet safety requirements.

Thus, facilities managers must be proactive in their communications with

community groups so that all well-intentioned aid to our schools proves to

be a benefit to student learning, recreation, health, and safety.

Work Order Systems

Work order systems help school districts register and acknowledge work

requests, assign tasks to staff, confirm that work was done, and track the cost

of parts and labor. At the simple end of the spectrum, a work order system

can be a manual, paper-based, tracking tool. On the more complex, but perhaps

more efficient (depending on the size of the organization) side, work order 

systems come in the form of computerized maintenance management systems

(CMMS as discussed in Chapter 3). Such systems have become increasingly

affordable and easy to use. Their purpose is to manage work requests as 

efficiently as possible and meet the basic information needs of the district.

CMMS software must also be user friendly so that it can be implemented

with minimal training (although training needs are inevitable and should not

be overlooked). Many CMMS systems offer “bells and whistles” that are not

needed for accomplishing primary maintenance management tasks and, in

fact, often unnecessarily complicate the user interface.

86 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Maintaining schools also

entails maintaining corollary

and special-needs facilities 

such as trailers and modular

buildings. These facilities

demand all the support

required by “regular” buildings,

and usually merit additional

attention because of their 

construction limitations.

Modified management 

standards may be required

(e.g., they may fill up with 

carbon monoxide or lose heat

more quickly). Even the field

house at the football stadium

where the PTA sets up its 

hotdog stand is a special-needs

facility because it is used for

food preparation and, therefore,

must meet high standards 

of cleanliness.

✓ repair standards

✓ vehicle use guidelines

✓ security standards

✓ work order procedures

“Jury-rig” 

is not a synonym 

for “repair.” 

To repair equipment

means to return it 

to its original 

operating state.
The CMMS should be network- or Web-based, be compatible with standard

operating systems, have add-on modules (such as incorporating the use of

hand-held computers), and be able to track assets and key systems. Source

codes must be accessible so that authorized district staff are able to customize

the system to fit their needs as is necessary. In terms of utility, a good CMMS

program will:

✓ acknowledge the receipt of a work order

✓ allow the maintenance department to establish work priorities

✓ allow the requesting party to track work order progress through 

completion

✓ allow the requesting party to provide feedback on the quality and 

timeliness of the work

✓ allow preventive maintenance work orders to be included

✓ allow labor and parts costs to be captured on a per-building basis 

(or, even better, on a per-task basis)

At a minimum, work order systems should account for:

✓ the date the request was received

✓ the date the request was approved

✓ a job tracking number

✓ job status (received, assigned, ongoing, or completed)

CHAPTER 5: MAINTAINING SCHOOL FACILITIES AND GROUNDS 87

GOOD INTENTIONS AND A PRIME EXAMPLE OF HOW NOT TO SAVE MONEY

Each year the parents at Central Elementary School raised funds for much-needed playground equipment, which they

installed themselves. Jim was proud of their efforts, but he knew it was his responsibility to supervise their work. So Jim

met with the PTA president and school principal on a Friday afternoon in May to discuss the installation of a new swing set.

He had reviewed the city’s map of the building site for gas lines, water pipes, and telephone connectors and had carefully

selected the spot for the equipment. “I am sorry I can’t be here with you tomorrow,” he apologized, “but if you just set the

swing at the bottom of the hill, it will be fine. I’ll be by first thing on Monday morning to perform a safety inspection and

lay rubber chips around it so the kids can be playing on it by lunch time.” Everyone smiled and nodded, and Jim left for

the weekend, not imagining that anything could go wrong.

The call came from Jim’s assistant at 11:00 a.m. on Saturday morning. Jim left his son’s soccer game and went straight to

Central Elementary. He was shocked by what he saw: fire trucks were everywhere, and an entire city block had been evacuated. The police chief explained that a natural-gas line had been cut. “But how?” Jim thought, “The swing set wasn’t to be

anywhere near that line.” Then Jim saw a hole in the ground more than 20 yards from where he had instructed the parents to place the swing. “Well,” the PTA president explained sheepishly, “The early morning sun was right in our eyes when

we were at the spot you selected, and we didn’t want the kids to have to squint when they were swinging, so we thought

we’d move to a shadier spot. Bad idea, I guess, huh?” 

Jim realized the situation was the result of more than one bad idea. Not only had the parents acted on their bad idea, but

trusting the parents to install the swing unsupervised had been an even worse idea on his part. They could have been

killed if the gas line had exploded. As it was, the city had to spend thousands of dollars on emergency service and repairing the break—all for a $900 swing set. Jim frowned. Things would have to be different next time.

Work order system documentation

should be used to augment and

help interpret facility audit 

findings.
✓ job priority (emergency, routine, or preventive)

✓ job location (where, specifically, is the work to be performed)

✓ entry user (the person requesting the work)

✓ supervisor and craftsperson assigned to the job

✓ supply and labor costs for the job

✓ job completion date/time

Staff from every building and campus in a district should have the

ability to initiate a work request and determine its status. However, it is 

a good policy to limit “official” requesting authority to a single person at

each site so that better internal oversight is maintained (e.g., to prevent

multiple requests being submitted for the same job). Many organizations provide staff with a one-page work request (in either paper or

electronic form) that is then submitted to the person responsible for

evaluating and entering requests into the work order system. 

Once a work order reaches the maintenance department, a control 

number is issued and the work is given a priority rating. The task is

then assigned to a craftsman and a supervisor. Upon completion of the

work, the craftsman records all labor and parts needed to complete the

job. The work order is then submitted to the maintenance office for

close-out. But first the supervisor must determine that the quality of 

the work meets or exceeds departmental standards. Because it is

unrealistic to check every work order that goes through the maintenance

office (even in small districts), good supervisors often take a two-step

approach to evaluation: 1) randomly inspecting a small percentage 

(e.g., 3 percent) of completed work orders; and 2) in every case, 

providing the requesting party an opportunity to respond to a 

customer satisfaction survey.

Upon closing out a work order, all information about the request

should be placed in a data bank for future historical and analytical 

use (e.g., for determining the yearly cost of building maintenance).

Sophisticated CMMS enable the data to be analyzed in detail and 

at different scales (e.g., weekly, monthly, and annual reporting; as 

well as by room, building, and campus), depending on user need.

88 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

JOB PRIORITIES

Some tasks are urgent (e.g., there is a giant leak in the girls’ bathroom). 

Others are less pressing (e.g., there is a dent in the paper towel dispenser in 

the boys’ bathroom). Thus, assigning “job priority” is a necessary step in any

good work order system. Some facility managers use the following system:

Emergency overtime is authorized

Routine overtime is not authorized; complete in order of receipt

Preventive overtime is not authorized; complete according to the 

maintenance schedule

How many people need to

“touch” a work order before 

the task gets completed? 

That depends on the size and

organization of the school 

district. However, a good rule

of thumb is that work order

systems should be streamlined

to minimize the number of

people involved in delivering,

approving, and performing

a job.

Are You Being Well Served?

Maintenance & Operations

XYZ School District

The maintenance staff has completed the 

following work order in this area. Please feel

free to write down any questions or comments

in the space below, or call [insert number here].

Thank you for the feedback, because your

opinion matters to us.

Work Order # __________________

Job Description _________________

COMMENTS: ___________________

_____________________________

_____________________________

_____________________________

_____________________________

_____________________________
CHAPTER 5: MAINTAINING SCHOOL FACILITIES AND GROUNDS 89

BASIC ELEMENTS OF A WORK ORDER SYSTEM FOR SCHOOL DISTRICTS

Primary Types of Users

Work order initiators: Typically school-based personnel, including school secretaries, teachers, and principals

Work order recipients: Typically facilities management staff, including the facilities maintenance manager and secretary

Typical Workflow

A maintenance need is identified at a school district facility. Information required to request a work order includes:

✓ Contact name: A person in the facilities department to contact about the work order

✓ Contact phone: The telephone number of the contact person

✓ Contact e-mail: The e-mail address of the contact person

✓ Room number/location: The building, room, or other site where the work is to be performed

✓ Work requested: A short description of the work to be performed

✓ Job type: Carpentry, custodial, electrical, environmental, glazing, grounds, maintenance, heating, 

masonry, new construction, painting, plumbing, roofing, supplies, systems, or vehicles

✓ Urgency: Typically a yes/no indicator as to whether the work order is urgent; may also be a “pick list”

(e.g., urgent, routine, preventive)

✓ Requested date of completion: When the school-based personnel initiating the work order would like 

to have it completed. (Note that the actual date the work is scheduled by maintenance staff may differ

because of work loads or other factors.)

A good CMMS will automatically generate the following:

✓ Job number: A unique number that identifies the work order (often sequential)

✓ Received date: The date the work order was requested

✓ Entry user: Verifies the ID name/password of the person authorized to request a work order

The maintenance administrator adds the following to the work order:

✓ Work person: The person to whom the work order is assigned

✓ Scheduled date: When the work is to occur (not necessarily the requested date) 

✓ Work order priority: Emergency, routine, or preventive

✓ Status code: For example –

O (Open) – The work order has not yet been assigned

A (Assigned) – The work order has been assigned to a worker and is in process

C (Completed) – The work order has been completed

R (Reopened) – The work order was completed but is now reopened

D (Deferred) – A work order will not be assigned at the current time

Comments: Additional instructions or guidance as necessary

After the assignment and scheduling information is entered, the work order record is updated in the 

database so the person who initiated the job can view the status of the request. Time and materials data 

are optional and may or may not be entered against a work order. These data are tracked in a separate 

but related database.

A record layout that incorporates the basic data elements for an effective computerized work order system is 

shown as Appendix E.
For more information about work order systems, visit the National 

Clearinghouse for Educational Facilities’ Facilities Management Software 

Page at http://www.edfacilities.org/rl/software.cfm, which describes and evaluates 

computer-aided facilities maintenance management systems for handling priorities, 

backlogs, and improvements to school buildings.

Building Use Scheduling Systems

Another use for computers in facilities maintenance is the employment of 

an automated building use scheduling system for planning special events

(activities such as athletic contests, PTA meetings, and holiday concerts that

occur during non-instructional hours). The building secretary enters into a

database all special activities in the facility that will require extended heating,

cooling, or lighting. Information captured for each activity includes: the 

date of the event, expected attendance, beginning and ending time, specific 

location within the building where the activity will occur (e.g., classroom

#201, the gymnasium, or the auditorium), HVAC and lighting needs, person

authorizing the event, and a contact name. The HVAC department can 

print a list of all special needs on a weekly basis, allowing staff to schedule 

its systems for appropriate heating, cooling, and lighting in the particular

areas where these after-hour events are taking place. The Facilities Manager 

can also access the building use scheduling the activities. 

Managing Supplies

A large portion of a school district’s maintenance budget goes to purchasing

supplies for day-to-day maintenance and custodial work. Managing supply

inventories efficiently may not seem like a difficult task, but a considerable

amount of planning is required to ensure that valuable funds are not tied 

up in excess inventory. 

90 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Publishing an annual calendar

of school or district events helps

prevent duplicate scheduling of

resources and facilities. To be

most useful, the calendar

should be posted to a network

or web site so that it is easily

accessible and new events can

be added as they are scheduled.

A REASONABLE EXPECTATION

Marty Simmons was a reasonable man, everyone at Lincoln High School agreed. As principal, Marty rarely had

time to waste, so when the lock on the door to the teacher’s lounge broke, he promptly instructed his secretary

to notify Jack, the maintenance supervisor for his building. Twenty-four hours later, when the lock hadn’t been

repaired, Marty called the maintenance department himself. Linda, the maintenance secretary, said the supervisor was in a meeting, but she was sure he was handling the job. Two days later, Marty called again. This time

Jack caught the brunt of the frustrated administrator’s impatience. “Jack, how tough can it be to fix a lock? I’ve

got teachers who need a quiet place to retreat during the day and they deserve their privacy. What’s wrong with

you guys?” He was surprised by Jack’s calm reply: “ I know it’s not a big job, Marty, but I’ve finally been authorized to get that heavy-duty, tamper-resistant lock you’ve wanted for so long. It will be here tomorrow. I thought

it would be well worth the wait.” Marty smiled. He had wanted that type of lock installed for years and it was

surely worth a day or two’s delay. “But why didn’t you just tell me so I wouldn’t have wasted my time worrying

about the repair job?” he asked. It was a reasonable question, Jack realized (after all, Marty was a reasonable

guy). “Hmm,” Jack wondered out loud, “maybe it’s time I got that work order system that I’ve always wanted. It

would have allowed you to see the status of the job right from your desk.” “Yes,” Marty replied, “you should

definitely get that system—so that I don’t call and chew you out for no good reason any more.”
Parts purchased for storage should meet one of the following criteria:

✓ High-volume purchases generate cost savings that exceed the cost 

of storage. 

✓ The parts may be needed at any time for emergency repairs.

✓ The parts are difficult to obtain or take a long time to get delivered.

Many facility managers take advantage of consignment cabinets that vendors supply at their cost. That is, a vendor stocks the district’s storage space,

but the district does not pay for the material until it is used. What’s in it for

the vendor? Well, the consignment cabinet translates into guaranteed business for the vendor whenever the district needs the stored parts or supplies. 

Another effective system for managing equipment inventories is the use

of open purchase orders or open procurement cards, which can be issued to

a local store (e.g., a $1,000 purchase order at the hardware store that is valid

for a 30-day period). As parts are needed for a project, craftsmen go to the

store, select the items, and sign the purchase ticket. At the end of the 30-day

period, the purchase order is closed out and paid. To verify the legitimacy of

all purchases, receipts must include an itemized list of the items purchased,

the name and ID number of the staff person, and the work order number.

Centralized Versus Decentralized Parts Storage. Both site-based storage and 

central storage systems have costs and benefits. Site-based storage keeps

parts where they will be needed—i.e., maintenance staff don’t have to wait for

supplies to arrive from central office. On the other hand, supplying multiple

sites leads to increased costs associated with redundant inventories. When

vendor-supplied consignment cabinets are used, redundant inventories don’t

cost the district any extra money except for the storage space. Another drawback with site-based storage is that inventory management is difficult, leaving

the district vulnerable to property loss from theft (making effective key control for supply facilities essential). Whether centralized or decentralized, the

inventory management system must be integrated with other facilities and

financial management software in use (e.g., the organization’s CMMS).

Standardization of Parts and Equipment. It makes sense to 

standardize equipment and parts whenever possible. After all, if a

district has three different brands of chillers (or even three different

models of the same brand), then it will need three different kinds of

replacement parts – a waste of storage space. Moreover, staff training requirements increase since maintenance workers will need to know how to service

three different pieces of equipment instead of one. Unfortunately, many

school districts must adhere to low-bid contracting, which can result in a 

CHAPTER 5: MAINTAINING SCHOOL FACILITIES AND GROUNDS 91

Every dollar in parts

sitting on a shelf 

is a dollar 

that is not 

available for 

classroom 

instruction.

Consignment cabinets save

money and time—they contain

supplies that are provided by

vendors, but not paid for by

the district until they are used.

For routine replenishment of

supplies, a “just in time” system

may be used. For example,

because HVAC filters are needed

on a routine and predictable

schedule, they don’t need to be

stored in-house; instead, they

can be ordered in bulk for

delivery by a vendor the day

before they will be used.

A large portion of the custodial budget goes to the purchase of cleaning chemicals.

Thus, chemical dispensers that automatically mix chemical concentrates with water

at the proper ratios can result in significant savings by ensuring proper mixing, 

as well as reduced waste and theft of cleaning agents. Other custodial supplies 

can also be purchased in bulk and managed using appropriate inventory control

procedures.
different vendor getting a given contract in successive years. One way to

overcome this problem is to include language in all procurement contracts

that requires vendors to provide services and equipment that is consistent

with the existing infrastructure and staff expertise. 

When selecting parts, keep in mind that you may not always need the

best product—for example, if your HVAC system has a 10-year life expectancy, there is no need to purchase a top-of-the-line 15-year pump as a corollary

component. But neither does it make sense to buy cheap 15-year shingles 

for a new building that has a life expectancy of 40 years.

THE ROLE OF MAINTENANCE DURING RENOVATION

AND CONSTRUCTION

There are two prevailing approaches to planning a renovation or construction

project. The first is an item-by-item (or building block) approach; it is driven

by school need and the final project cost is calculated only after needs have

been addressed. The risk is that the total cost often comes in far higher than

anticipated because actual needs sometimes get confused with perceived need

(or even a wish list). The second approach is the “top-down method,” in

which building features are selected based on a preconceived “acceptable” total

cost of the project. Often, total project cost gets translated into cost per square

foot, which then dictates what options and features are available. The risk with

this approach is that the district gets only what it thinks it can afford and not

necessarily what it needs. Most renovation and construction projects blend 

the two approaches to planning—in other words, some tasks will rely upon

item-by-item planning, whereas other aspects will use the top-down approach. 

When establishing selection criteria for an architect, consider what experience the firm has with designing environmentally friendly schools, including

components such as active and passive solar heating, ground-water recycling,

garden space, and low-VOC (volatile organic compound) building materials.

Another key to successful renovation and construction 

is the assembly of a diverse project team consisting not only of

school staff (e.g., business personnel, maintenance and operations

staff, principals, and teachers), but also construction professionals,

architects, engineers, and general contractors. Other stakeholders such as

students, parents, and other community representatives should also be

included in the planning efforts. Each stakeholder should be encouraged to

share his or her opinions about the needs and expectations of the new or

renovated facility. Of course there will be disagreements during this phase,

but the net effect of this exchange of ideas should be positive if the interactions are managed respectfully. 

This team of stakeholders should review all plans and construction documents throughout the project (e.g., at 25, 50, 75, and 100 percent complete)

to minimize the likelihood of last-minute surprises and objections. Key team

members, such as the district’s business personnel and maintenance staff,

must review the construction documents prior to the release of procurement

guidelines because any changes thereafter will invariably result in additional

costs to the school district. Generally, the mechanics of the bid process are

mandated by local or state law (e.g., fixed bids or competitive sealed proposals).

92 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

If constrained by “low bid”

requirements, district planners

might consider switching 

to performance-based 

specifications to ensure they 

get the equipment they want.

The facilities manager should

be one of the team leaders in

any renovation or construction

project. After all, he or she is

the school district’s in-house

expert on building management and knows how the 

district’s maintenance and

operations departments can best

support a new or renovated

facility. To best accomplish 

this task, the facilities manager

must keep an open mind to 

the needs of all stakeholders

throughout the planning

process.
These types of decisions should be made only after consultation with the 

district’s architects and legal advisors.

Although construction staff need to limit access to work 

sites and ensure site safety, district representatives have every

right to expect access to the work site on a regular basis (after 

all, it is the district’s property and the contractor works for the district). Thus, during construction, members of the maintenance and operations

department (or locally hired and trusted plumbers, electricians, etc.) should visit

the construction site regularly to observe the quality of the work, monitor the

placement of valves and switches, and verify overall project progress. Digital

cameras, video recorders, and still photos are valuable tools for documenting

construction activities. On large projects, the district’s chief project officer, 

the architect, general contractor, and subcontractors should meet on 

a weekly basis to discuss progress and problems. All such discussions

should be well documented. 

As construction begins to wind down, the project may be designated 

as having reached “substantial completion”: although work may not be

100 percent complete, the building can be used for its intended purpose.

Building “ownership” is customarily transferred to the district at this point,

meaning that the contractor is no longer responsible for utility or insurance bills. Upon designation of “substantial completion,” however, the

architect must prepare a “punch list” to identify those components that 

are not yet complete (or which do not meet the district’s quality 

standards). 

CHAPTER 5: MAINTAINING SCHOOL FACILITIES AND GROUNDS 93

The topic of building renovation and construction is, quite literally, 

a separate book. There are many excellent resources available to the education

community, including those available from:

American Institute of Architects

http://www.aia.org

American School and University Magazine

http://www.asumag.com

Council of Educational Facility Planners International

http://www.cefpi.org

National Clearinghouse for Educational Facilities

http://www.edfacilities.org

SchoolDesigns.com

http://www.schooldesigns.com/

School Planning and Management Magazine

http://www.spmmag.com

U.S. Department of Energy, Energy Smart Schools 

http://www.eren.doe.gov/energysmartschools/

In this Planning Guide, we address only those renovation and construction

issues that directly relate to facility maintenance planning.

Digital cameras,

video recorders, 

and still photos are

valuable tools 

for documenting 

construction activity.
The school district should retain the last payment to the contractor to ensure

that the balance of the work is completed in a timely manner.

Finally, it has been estimated that 15 percent of all new buildings have missing system components for which the owner has

paid. Thus, construction contracts should require that a third

party commission the facility before contractors are relieved of

their contractual obligations. Commissioning is discussed in greater detail in

Chapter 3 of this document and in the PECI document Model Commissioning

Plan and Guide Specifications (http://www.peci.org/cx/mcpgs.html).

COMMONLY ASKED QUESTIONS

How does preventive maintenance save on costs? 

Equipment failure is often a direct result of wear and tear on parts that

should be replaced on a periodic basis (such as filters, belts, gaskets, and

valves). Preventive maintenance is designed to minimize these breakdown

events by attending to these deteriorating components in a timely fashion.

This means replacing filters and belts, changing oil, and cleaning coils

according to schedule. The costs associated with routine servicing of 

equipment (in terms of both parts and labor) is small compared to the cost 

of coping with unexpected and catastrophic breakdown events that will

inevitably occur if equipment is not properly maintained – particularly since

breakdowns often require not only major repairs but even the replacement 

of affected components and systems. Another argument is that failure to 

perform preventive maintenance may invalidate the warranties on major

equipment and systems.

What is the difference between preventive maintenance and predictive

maintenance? 

Preventive maintenance is the routine, regularly scheduled maintenance 

of a piece of equipment to ensure its continued use and maximize its life

expectancy (e.g., by replacing filters, changing oil, and cleaning coils).

Predictive maintenance uses advanced computer software to monitor 

equipment operation and forecast future failures based on performance 

measures and statistical analysis.

94 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Maintenance should be a consideration even during the building design phase.

For example, designing a building without carpeting may make sense because

wall-to-wall carpeting is so hard to keep clean over time. Situating vents and

cleaning wells in areas that can be easily reached is another area where 

maintenance needs can influence building design. Seasoned maintenance 

staff can also inform construction and renovation planners about where the 

maintenance equipment should be housed.

Be wary of “casual renovation.”

Construction that takes place

in occupied buildings can 

have an adverse impact on

occupants’ health (e.g., air

quality problems may arise

during construction).

Facilities planners generally schedule renovations during breaks in the academic

year so as to minimize disruptions. But in some cases this may not be possible

(e.g., in year-round schools, schools with summer programs, and after-school

enrichment programs).

Q&A
What role does computing technology play in facility maintenance 

management?

When dealing with facilities management, technology use must be considered

from two perspectives: 1) operations technology and 2) administrative technology. Increasingly, maintenance personnel are required to master the use of

computerized diagnostic and programming tools for many types of building

components. HVAC systems, for example, are now operated almost exclusively

through computerized interfaces. From the perspective of facilities managers

too, technology has become an essential tool in all but the smallest of organizations. By automating maintenance records in even simple ways (e.g., use of

spreadsheets), facilities managers can more effectively evaluate and analyze

facility use, maintenance demands and history, and funding trends.

Why is a work order system necessary? 

Work order systems have always been necessary in the school business—it’s

just that 50 years ago the “work order system” was probably a note from the

principal to the building custodian to repair a broken fan before completing

the day’s cleaning. But times have changed and school operations have

become substantially more complicated. Buildings are larger, and contain

complex electrical, HVAC, and technology systems. If these components and

systems are to be properly maintained, communications between administrative staff, instructional staff, maintenance staff, and the central office (e.g., business personnel) must be seamless and well documented. Modern work order

systems have evolved into computerized maintenance management systems

(CMMS), which allow staff to submit work requests, assign tasks to craftspeople, track project status, record parts and labor costs, verify completion, and

evaluate performance—all automatically. Thus, automated work order systems

have become an indispensable part of effective school facilities management.

CHAPTER 5: MAINTAINING SCHOOL FACILITIES AND GROUNDS 95

WHEN YOU CAN’T AFFORD NOT TO MAKE THE INVESTMENT

Harry had worked hard to mine his database for all the relevant information. He didn’t want the district to waste money on

unnecessarily high utility bills at yet another school. He arrived at the construction planning meeting. “Now listen,” he said after

several speakers advocated cutting corners on the quality of construction materials, “You may save $30,000 or $40,000 now,

but that is just peanuts compared to what we’ll pay for that mistake over the life of the building.” He saw an assistant superintendent roll his eyes, but he continued: “In 1978, we built Spinner Middle School correctly because of the high utility bills we

saw during the winter of ’77. And now we pay 88 cents a square foot to heat and cool that building, even after 25 years, compared to $1.72 per square foot for the elementary buildings you skimped on in 1995. I’ve done the math; at those rates you

recoup the additional upfront costs in less than three years. After that, we’ll save $15,000 a year on the building’s utility bills.

You can’t tell me this doesn’t make sense.” No one said a word. Harry was right. They couldn’t tell him it didn’t make sense.
ADDITIONAL RESOURCES Every effort has been made to verify the accuracy of all URLs listed in this

Guide at the time of publication. If a URL is no longer working, try using

the root directory to search for a page that may have moved. For example,

if the link to http://www.epa.gov/iaq/schools/performance.html is not working,

try http://www.epa.gov/ and search for “IAQ.”

Carpet and Rug Institute (CRI)

http://www.carpet-rug.com/ The web site of the national trade association representing the carpet and

rug industry. It is a source of extensive information about carpets for consumers, writers, interior designers, facility managers, architects, builders,

and building owners and managers, installation contractors, and retailers.

CRI also publishes the web site “Carpet in Schools” (http://www.

carpet-schools.com/) to address topics such as indoor air quality, allergies,

and carpet selection, installation, and care. 

Cleaning and Maintenance Practices 

http://www.edfacilities.org/rl/cleaning.cfm

A list of links, books, and journal articles about custodial standards and

procedures, equipment, safety, and product directories for the cleaning and

maintenance of schools and colleges.

Custodial Methods and Procedures Manual

http://asbointl.org/Publications/PublicationCatalog/index.asp?s=0&cf=3&i=139 

A manual that discusses school facility cleaning and maintenance from 

the perspective of work management, physical assets management, and

resource management. A reference section contains guidelines and forms

for custodial equipment storage and care, as well as safety measures and

employee management forms. Johnson, Donald R. (2000) Association of

School Business Officials International, Reston, VA, 96pp.

Energy Savings

http://www.edfacilities.org/rl/energy.cfm

A list of links, books, and journal articles providing extensive resources on

various methods of heating, cooling, and maintaining new and retrofitted

K-12 school buildings and grounds. National Clearinghouse for

Educational Facilities, Washington, DC. Facilities Management: A Manual for Plant Administration

http://www.appa.org/resources/publications/pubs.cfm?Category_ID=1

A four-book publication about managing the physical plant of campuses.

Its 67 chapters cover general administration and management, maintenance and operation of buildings and grounds, energy and utility 

systems, and facilities planning, design and construction. Middleton, William, Ed. (1997) APPA: Assn. of Higher Education Facilities Officers,

Alexandria, VA. Facilities Management Software 

http://www.edfacilities.org/rl/software.cfm

A resource list of links, books, and journal articles describing and evaluating

computer-aided facilities maintenance management systems for handling

priorities, backlogs, and improvements to school buildings. National

Clearinghouse for Educational Facilities, Washington, DC.

96 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES
Floor Care

http://www.edfacilities.org/rl/floor_care.cfm

A list of links, books, and journal articles about the maintenance of a 

variety of floor coverings in K-12 school classrooms, gymnasiums, science

labs, hallways, and stairs. National Clearinghouse for Educational Facilities, Washington, DC.

Good School Maintenance: A Manual of Programs and Procedures for

Buildings, Grounds and Equipment

http://www.iasb.com/shop/details.cfm?Item_Num=GSM

A manual that describes the fundamentals of good school maintenance,

including managing the program and staying informed about environmental issues. Procedures for maintaining school grounds are detailed, as are

steps for maintaining mechanical equipment, including heating and airconditioning systems, sanitary systems and fixtures, sewage treatment

plants, and electrical systems. Harroun, Jack (1996) Illinois Association of

School Boards, Springfield, IL, 272pp.

Grounds Maintenance

http://www.edfacilities.org/rl/grounds_maintenance.cfm

A resource list of links, books, and journal articles about managing and

maintaining K-12 school and college campus grounds and athletic fields.

National Clearinghouse for Educational Facilities, Washington, DC.

Guide to School Renovation and Construction: What You Need to Know

to Protect Child and Adult Environmental Health 

A guide that presents cautionary tips for protecting children’s health 

during school renovation and construction projects. It includes a checklist 

of uniform New York state safety standards during school renovations and

construction, and several examples of the potential negative consequences of

disregarding the risks of renovation and construction on occupant health.

(2000) Healthy Schools Network, Inc., Albany, NY, 6pp.

HVAC Systems 

http://www.edfacilities.org/rl/hvac.cfm

A resource list of links, books, and journal articles about HVAC systems in

school buildings, including geothermal heating systems. National

Clearinghouse for Educational Facilities, Washington, DC.

IAQ In Schools and Preliminary Design Guide 

http://www.healthybuildings.com/s2/Schools%- 20%20IAQ%20Design%20Guide%2001.01.pdf 

An educational tool and reference manual for school building design, 

engineering, and maintenance staff. Healthy Buildings International, Inc.

(1999) Healthy Buildings International, Inc., Fairfax, VA.

Operational Guidelines for Grounds Management

http://www.appa.org/resources/publications/pubs.cfm?Category_ID=2 

A comprehensive guide to maintaining and managing grounds and landscaping operations. Chapters discuss environmental stewardship, broadcast

and zone maintenance, grounds staffing guidelines, contracted services,

position descriptions, benchmarking, and environmental issues and laws. Feliciani, et al. (2001) APPA: Assn. of Higher Education Facilities Officers,

Alexandria, VA, 159pp.

CHAPTER 5: MAINTAINING SCHOOL FACILITIES AND GROUNDS 97
Principal’s Guide to On-Site School Construction

http://www.edfacilities.org/pubs/construction.html

A publication that explores what school principals should know when

construction takes place in or near a school while it is in session. It covers

pre-construction preparation, including how to work with architects/engineers and other school staff; actions to take during construction, including

proper information dissemination and student and property protection;

and post-construction activities, including custodial and maintenance staff

training and post-occupancy evaluations. Brenner, William A. (2000)

National Clearinghouse for Educational Facilities, Washington, DC, 5pp.

PECI Model Commissioning Plan and Guide Specifications

http://www.peci.org/cx/mcpgs.html

A resource that details the commissioning process for new equipment 

during both the design and construction phases. It goes beyond commissioning guidelines by providing boilerplate language, content, format, and

forms for specifying and executing commissioning.

Preventive Maintenance

http://www.edfacilities.org/rl/maintenance.cfm

A resource list of links, books, and journal articles about how to maximize

the useful life of school buildings through preventive maintenance, including periodic inspection and seasonal care. National Clearinghouse for

Educational Facilities, Washington, DC.

Preventive Maintenance Guidelines for School Facilities K-12

http://www.rsmeans.com/index.asp

A five-part manual that is intended to increase the integrity and support

the longevity of school facilities by providing easy-to-use preventive maintenance system guidelines. It includes a book, wall chart, and electronic

forms designed to help maintenance professionals identify, assess, and

address equipment and material deficiencies before they become costly

malfunctions. Maciha, John C, et al. (2001) R.S. Means Company, Inc.,

Kingston, MA, 232pp. 

Project Management

http://www.edfacilities.org/rl/project_management.cfm

A list of links, books, and journal articles about the management of school

construction projects by school administrators, business officials, board

members, and principles. National Clearinghouse for Educational Facilities, Washington, D.C. Roof Maintenance and Repair 

http://www.edfacilities.org/rl/roof_maintenance.cfm

A list of links, books, and journal articles about maximizing the life-cycle

performance of school roofs. Roof inspection strategies, scheduling, 

documentation, and repair resources are also addressed. National

Clearinghouse for Educational Facilities, Washington, DC.

School Design Primer: A How-To Manual for the 21st Century 

http://www.edfacilities.org/pubs/li/little.html

A resource that describes the school planning and design process for 

decision-makers (e.g., superintendents, planning committee members,

architects, and educators) who are new to school construction and 

renovation projects.

98 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES
Software for Facilities Management

http://www.edfacilities.org/rl/software.cfm 

A resource list of links, books, and journal articles about computer-aided

facilities maintenance management systems for handling priorities, 

backlogs, and improvements to school buildings. National Clearinghouse

for Educational Facilities, Washington, DC.

U.S. Environmental Protection Agency (EPA)

http://www.epa.gov/

The main web site of the EPA, whose mission is to protect human health

and safeguard the natural environment – air, water, and land – upon

which life depends. The EPA works with other federal agencies, state and

local governments, and Indian tribes to develop and enforce regulations

under existing environmental laws. The web site includes an alphabetical

index of topical issues at http://www.epa.gov/ebtpages/alphabet.html. EPA

Regional Office and Linked State Environmental Departments can be

found at http://www.epa.gov/epapages/statelocal/envrolst.htm.

CHAPTER 5: MAINTAINING SCHOOL FACILITIES AND GROUNDS 99
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YES NO

ACCOMPLISHED

CHECKPOINTS PAGE

MAINTAINING SCHOOL FACILITIES AND GROUNDS CHECKLIST

More information about accomplishing checklist points can be found on the page listed in the right-hand column.

Do district planners recognize the four major components of an 

effective facilities maintenance program: emergency (responsive)

maintenance, routine maintenance, preventive maintenance, and 

predictive maintenance?

Do district planners recognize that preventive maintenance is the most

effective approach to sound school facility maintenance?

Has a comprehensive facilities audit (see Chapter 3) been performed

before instituting a preventive maintenance program?

For districts that are instituting preventive maintenance for the first time,

has an appropriate system (e.g., heating or cooling systems) been identified

for piloting before commencing with a full-scale, district-wide program?

Have manufacturer supplied user manuals been examined for guidance on

preventive maintenance strategies for each targeted piece of equipment?

Are records of preventive maintenance efforts maintained?

Has the schedule for preventive maintenance activities been coordinated with the routine maintenance schedule so as to minimize service

interruptions?

Does the organization have a plan for responsibly managing access control?

Does the organization have a plan for responsibly managing boilers?

Does the organization have a plan for responsibly managing electrical

systems?

Does the organization have a plan for responsibly managing energy use?

Does the organization have a plan for responsibly managing fire alarms?

Does the organization have a plan for responsibly managing floor 

coverings?

Does the organization have a plan for responsibly managing gym floors?

Does the organization have a plan for responsibly managing HVAC

Systems?

Does the organization have a plan for responsibly managing hot water

heaters? 

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CHAPTER 5: MAINTAINING SCHOOL FACILITIES AND GROUNDS 101

Does the organization have a plan for responsibly managing kitchens? 

Does the organization have a plan for responsibly managing painting

projects? 

Does the organization have a plan for responsibly managing plumbing?

Does the organization have a plan for responsibly managing public

address systems and intercoms?

Does the organization have a plan for responsibly managing roof repairs? 

Does the organization have a plan for responsibly managing water 

softener systems? 

Has organization management determined its expectations for custodial

services? 

Have facilities managers staffed the custodial workforce at a level that can

meet the organization’s expectations for its custodial service? 

Has a chain of command for custodial staff been determined? 

Has a suitable approach to custodial services (e.g., area cleaning versus

team cleaning) been selected to meet the organization’s expectations for

custodial service? 

When planning grounds management, have grounds been defined as 

“corner pin to corner pin” for all property, including school sites, remote

locations, the central office, and other administrative or support facilities? 

Have areas of special concern (e.g., wetlands, caves, mine shafts, 

sinkholes, sewage plants, historically significant sites and other environmentally sensitive areas) been identified and duly considered for grounds

management? 

Does the organization have a plan for responsibly managing fertilizer and

herbicide use? 

Does the organization have a plan for responsibly managing watering and

sprinkler systems (e.g., the use of recycled water/gray water for plumbing,

watering fields)? 

Does the organization have a plan for responsibly managing drainage

systems? 

Does the organization have a plan for responsibly managing “rest time”

for fields/outdoor areas? 

Does the organization have a plan for responsibly managing the costs and

benefits of flowerbeds? 

Does the organization have a plan for responsibly managing the use of the

grounds as a classroom (e.g., “science courtyards” and field laboratories)?

Is the Maintenance & Operations Department organized and administered to best meet the needs of the maintenance plan? 

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102 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Does the maintenance and operations staff take time to market its

efforts and successes to the rest of the organization? 

Are facilities managers proactive with their communications to and 

management of community groups (e.g., PTAs, booster clubs)? 

Has an automated work order system (e.g., a Computerized

Maintenance Management System or CMMS as discussed in Chapter 3)

been instituted within the organization? 

Does the CMMS incorporate the basic features of a “best practice” 

system? 

Do staff in every building and campus in a district know the procedures

for initiating a work order request? 

Is the ability to officially submit a work order limited to a single person

at each site (who can evaluate the need for work prior to sending it)? 

Does a supervisor evaluate (either by random personal assessment or

customer feedback) whether the quality of work meets or exceeds

departmental standards before “closing out” a work order? 

Is all information about a completed work order maintained in a database for future historical and analytical use upon its completion? 

Is the work order system streamlined so as to minimize the number of

people involved in work order delivery, approval, and completion as is

reasonable for managing the process? 

Has an automated building use scheduling system been instituted within

the organization? 

Has the organization investigated the use of a “consignment cabinet” 

as a tool for storing supplies and parts in a cost-effective manner? 

Has the organization investigated the use of “open purchase orders” 

as a tool for purchasing supplies and parts in a cost-effective manner? 

Have appropriate control checks been placed on supply storage and

purchasing systems? 

Have planners considered the costs and benefits of both local and 

central site storage for supplies and parts? 

Has equipment selection been standardized throughout the district (as

possible and necessary) in order to save on storage space and costs

associated with increased staff training for servicing multiple brands? 

Are chemical dispensers used to automatically mix and conserve 

cleaning agents? 

Have performance-based specifications been introduced to procurement

contracts for the purpose of standardizing equipment purchasing? 

Have planners considered the costs and benefits of both the item-byitem (building block) and top-down approaches to renovation and 

construction planning? 

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CHAPTER 5: MAINTAINING SCHOOL FACILITIES AND GROUNDS 103

When selecting an architect to help plan a renovation or construction

project, have planners considered the firm’s experience designing 

environmentally-friendly schools? 

Has a qualified, yet experientially diverse, project team be identified,

including business personnel, maintenance staff, principals, teachers, 

construction professionals, architects, engineers, and general contractors? 

Does the project team meet to review all plans, construction 

documents, and decisions throughout development (e.g., at 25, 50, 75

and 100 percent complete)? 

Do members of the maintenance and operations department (or locally

hired and trusted plumbers, electricians, etc.) visit the construction site on

a routine basis to observe the quality of the work, monitor the placement

of valves and switches, and verify the overall progress of the project? 

Do the chief project officer and the project architect, general contractor,

and subcontractors meet on a weekly basis to discuss project progress

and obstacles? 

Are the results of all renovation/construction meetings well documented

and archived? 

Upon the renovation or construction project being designated 

“substantially complete,” did the architect prepare a “punch list” to

identify components that are not yet complete (or which do not 

meet the quality standards)?

Has the organization retained the last of its payments to the 

contractor in order to ensure that the balance of work on the 

“punch list” is completed in a timely manner?

Has the renovated or newly constructed facility been commissioned

by a third-party specialist?

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CHAPTER 6 

EFFECTIVELY MANAGING 

STAFF AND CONTRACTORS

Why bother to put energy into managing your staff? Because they are 

the people who make the day-to-day decisions that determine how your 

facilities work. Their preparation and support will determine whether or 

not facilities are run properly, efficiently, and safely.

HIRING STAFF

Times are changing. It used to be that maintenance and custodial

work was categorized as “basic labor.” Today, however, most

maintenance jobs demand specialized skills and training. 

For example, staff working in a modern boiler room need to 

be trained in computer use to operate the building’s heating and cooling

systems. This change in the expectations requires a corresponding change

in the selection and training of maintenance personnel. Selecting the right

staff requires that time and energy be put into identifying the needs of the

organization, developing accurate job descriptions, envisioning the characteristics of “ideal” employees, and verifying each applicant’s qualifications.

Job Descriptions

See Appendix F for a model job description for a custodial worker.

A good job description accurately identifies the knowledge, skills, and 

abilities needed by an individual to meet the expectations of the job. It also

describes the type of person the organization wants to hire into its ranks. 

GOALS: 

✓ To communicate the necessity of good human resources practices as a pre-condition for effective facilities 

maintenance management

✓ To describe best practice strategies for effectively managing staff

CHAPTER 6: EFFECTIVELY MANAGING STAFF AND CONTRACTORS 105

Table of Contents:

Hiring Staff................................105

Job Descriptions ..................105

Selecting the Right People ..107

Dotting Your I’s and Crossing 

Your T’s ..................................108

Training Staff ............................111 

Newly Hired Employees ..111

Ongoing Training and 

Professional Development ..112 

The “Moment of Truth” 

Chart........................................113

Evaluating Staff ........................113

Maintaining Staff ....................116

Managing Contracted Staff and

Privatized Activities ................117

Commonly Asked Questions ..118

Additional Resources ............118

Managing Staff and Contractors

Checklist ....................................121

Someone on the hiring team must have command of the technical aspects 

of the position. The superintendent can’t accurately evaluate whether a 

candidate knows a great deal about HVAC repair, or just a little more than 

the hiring committee knows. Unless a committee member can verify

expertise, the organization won’t find out how much (or little) the 

candidate knows until the person is already on the job! 
Components of an effective job description include:

✓ Duties and responsibilities. If the organization needs someone

to run a leaf blower for 40 hours a week, it shouldn’t advertise a

position that would stir the interest of someone who wants to be 

a gardener. The aspiring gardener will likely resent the misunderstanding every time he or she has to ask the real gardener to step aside in

order to clear the grounds of leaves. As this resentment builds and 

the employee either quits the job or begins to perform in a lackluster

manner, both the employee and employer will likely regret the 

miscommunication.

✓ Working conditions. What are the days and hours of employment?

Where, and under what conditions, will the work be accomplished?

Are there exceptions to these conditions? For example, will a custodian

be expected to arrive at school early on winter mornings to shovel

snow? If so, the job description needs to state clearly that the job

requires travel in inclement weather.

✓ Physical requirements. Many maintenance and custodial tasks require

considerable physical strength (e.g., one might reasonably be expected

to lift 50 pounds to waist level in order to dispose of the trash). The

requirements of the job must be documented and included in the job

description so as to meet the requirements of federal, state, and local

laws designed to protect the employment opportunities of physically

challenged applicants.

106 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

To comply with equal opportunity laws*, the hiring process (including advertising job openings) may neither intentionally nor

inadvertently screen out disabled or minority applicants. Thus, employment standards must relate to the actual job assignments,

not to beliefs, desires, or prejudices about the job. The following guidelines can help in making employment decisions. 

✓ All employment requirements must be related to the duties actually required of a person in the position.

✓ Hiring standards should not automatically eliminate applicants whose speech, dress, personal habits, or lifestyle differ

from those of the predominant group. 

✓ Education and other requirements (e.g., licenses or certificates) must be justified by objective assessments of their 

relatedness to performing the job.

*Visit http://www.eeoc.gov for more information about the U.S. Equal Employment Opportunity Commission and employment laws.

THE TALE OF THE UNHAPPY “GROUNDSKEEPER”

Jack enjoyed being outdoors. He’d always liked picnics and parks, so it didn’t surprise him when he realized that an office job just wasn’t his cup of tea. He was surprised, however, when he didn’t even like his

job as a “groundskeeper” at the local high school. Jack had thought that he’d love the job—he had visions

of working in the sun, cutting grass, maintaining gardens, trimming trees. Instead he found he had to

spend most of his time in the shop tinkering with mowers, leaf blowers, and power saws—while his “field

personnel” got to use (and break) the equipment out under the sun. Shouldn’t someone have told him in

advance what a groundskeeper’s job was in the school district? He probably wouldn’t have accepted the

position but, at least then, he wouldn’t hate his job.
✓ Educational requirements. Some positions demand knowledge and skills

that are best verified by the completion of certain academic work (e.g.,

a degree in accounting might be a job requirement for the manager of

the maintenance department’s budgeting and accounting).

✓ Credentials and licensure. Licenses are required to operate certain pieces

of equipment (e.g., a bus driver needs a commercial drivers license),

while other tasks and duties might require licensure or 

credentialing that is independent of equipment used (e.g., electricians). 

✓ Equipment used. Some equipment works better when it is handled skillfully (e.g., a floor sweeper), whereas other equipment is dangerous to

the user and others when it is not handled properly (e.g., power saws,

forklifts, and chemical dispensers). Employees should be made aware

of these risks and be required to demonstrate expertise before being

permitted to use potentially dangerous pieces of equipment.

“Demonstrating expertise” may require a license or other credential, or

the employing organization may provide the required training. Even if

a tool isn’t particularly dangerous, the organization benefits if it is used

properly so that the task gets accomplished effectively. 

✓ At-will versus unionized position. Depending upon local conditions (e.g.,

state laws, labor agreements, and the size of the organization), some

positions may be limited to personnel who either belong or do not

belong to a union. If an employee does not belong to a union, he or

she may be designated as an “at-will” staff member—a person who has

no expectation of continued employment and may be dismissed at any

time without cause or reason. The terms of employment must be

spelled out clearly at the onset of the hiring process.

✓ Channels of authority. You want to know who your boss is, right? Well

so does your staff. Employees should always know whom they report

to and who has the authority to direct their efforts. A clear channel of

authority starts with an accurate job description and an unambiguous

organizational chart. 

✓ Evaluation mechanisms. Just as everyone wants to know who the 

boss is, most people want to know how their performance will be

measured. For example, will custodial staff performance be measured

by spot checks of their work, by school staff customer service surveys,

or some other process? The organization should clearly communicate

to employees what evaluation mechanism will be used.

Selecting the Right People

The qualities of an “ideal” staff member should be identified before the 

interview process begins. Doing so requires an accurate assessment of the

culture of the organization and the personalities of the people with whom

CHAPTER 6: EFFECTIVELY MANAGING STAFF AND CONTRACTORS 107

No matter how much forethought goes into the preparation of a job description, the text must allow some flexibility for

the organization to adapt to changing circumstance. One way of accomplishing this is by including standard language in all

job descriptions that reads, for example, “and other duties as may be assigned.” This leaves the organization much needed

flexibility in adapting staff responsibilities to meet the ongoing (and potentially changing) needs of the organization.
108 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

MAPPING: THE ART OF USING YOUR ENTIRE BRAIN 

IN THE STAFF SELECTION PROCESS

Mapping is a concept that combines left and right brain perspectives on managing.

The goal of mapping is to focus on the desired traits of the new employee

throughout the interview process. Here’s how it plays out. Say your district is 

interviewing for a supervisor of maintenance. Before candidates are interviewed,

write down the specific characteristics that the new supervisor of maintenance

should demonstrate. Share this with the selection committee and see if they have

traits or characteristics to add or delete. This process will help each member of 

the selection committee to develop a clearer idea of the profile that best matches 

the “ideal” candidate. Next, prepare an interview worksheet that lists the ideal

characteristics. During the interviews for the position, each committee member

can take notes about whether (or to what degree) the applicant exhibits the ideal

characteristics. The results might very well help to inform your decision-making

regarding the selection process.

See Appendix H for an example of how mapping can be used to identify 

knowledge, skills, and abilities that a supervisor of maintenance should possess.

the newly hired person must interact. Some general qualities of effective

employees are described below, but many more can be developed. From 

a practical perspective, it may be helpful to take notes during the interview

about how well the applicant matches the various qualities that have been

identified as desirable in the position.

Dotting Your I’s and Crossing Your T’s

Once a person has been identified during the interview process 

as the preferred candidate for a position, additional screening is

required before an offer of employment can be extended. These

essential tasks include:

✓ Reviewing references. While there is no need to talk to all former employers (for most positions), an applicant’s most recent employment should

be verified. In addition to providing information about a person’s job

performance, references can verify information provided by the applicant

on resumes, employment applications, and during interviews. Some

applicants may choose to supply character reference; these can be valuable, but should be accepted in lieu of a reference from past employers

only if the person does not have prior (or recent) work experience. 

✓ Performing a background check. While contacting an applicant’s references

is one form of checking a person’s background, performing a “background check” has a very specific meaning for people who will work

with or in the vicinity of children. Background checks are conducted

by local, state, and national authorities to determine whether an individual has been convicted of a criminal offense. Several states require that

all prospective employees in schools and school districts undergo a fingerprint-driven criminal history check. Thus, hiring committees should

work with the district’s Human Resources Department to ensure that all

required procedures are followed in accordance with best practices

and/or state and local laws as applicable.

CONSIDERATIONS

WHEN INTERVIEWING 

AN APPLICANT

Personal Characteristics

✓ eye contact 

✓ demeanor 

✓ interpersonal skills 

✓ appropriateness of dress 

✓ work ethic 

Special Qualifications

✓ work history

✓ educational background

✓ certifications and licenses

✓ professional affiliations

✓ professional interests

Technology Use

✓ energy management

✓ electronic work order

system

✓ inventorying (portable 

devices)

✓ use of e-mail 

✓ other computer skills

Leadership Potential

✓ articulated vision

✓ goal orientation

✓ consensus building

✓ communication skills

✓ personnel management

Job Growth Possibilities

✓ supervisory experience

✓ budgeting experience

✓ organized work 

schedules

✓ resource management 

✓ staff selection

Appendix G includes a 

list of specific interview

questions that have proven

useful to school district

personnel as they interview potential employees.
CHAPTER 6: EFFECTIVELY MANAGING STAFF AND CONTRACTORS 109

VERIFYING AN APPLICANT’S RIGHT TO WORK IN THE UNITED STATES

Employers may not specify which documents they will accept from a job applicant. However, the Immigration and

Naturalization Service (INS) requires that documents establish both the applicant’s identity and employment eligibility. The

INS recommends either ONE document that establishes both identity and employment eligibility from List A below OR ONE of

the documents that establishes identity in List B AND ONE of the documents that establishes employment eligibility in List C.

List A (documents that establish both identity and employment eligibility)

1. U.S. Passport (unexpired or expired) 

2. Certificate of U.S. Citizenship (INS Form N-560 or N-561) 

3. Certificate of Naturalization (INS Form N-550 or N-570) 

4. Unexpired foreign passport (with I-551 stamp or attached INS Form I-94 indicating unexpired employment authorization) 

5. Alien Registration Receipt Card with photograph (INS Form I-151 or I-551) 

6. Unexpired Temporary Resident Card (INS Form I-688) 

7. Unexpired Employment Authorization Card (INS Form I-688A) 

8. Unexpired Re-entry Permit (INS Form I-327) 

9. Unexpired Refugee Travel Document (INS Form I-571) 

10. Unexpired Employment Authorization Document with photograph (INS Form I-688B)

List B (documents that establish identity only and must be matched to a document from List C)

1. Driver’s license or ID card issued by a state or outlying possession of the U.S. provided it contains a photograph or 

information such as name, birth date, sex, height, eye color, and address 

2. ID card issued by federal, state, or local government agencies or entities provided it contains a photograph or 

information such as name, date of birth, sex, height, eye color, and address 

3. School ID card with photograph 

4. Voter’s registration card 

5. U.S. military card or draft record 

6. Military dependent’s ID card 

7. U.S. Coast Guard Merchant Marine card 

8. Native American tribal document 

9. Driver’s license issued by a Canadian government authority

List C (documents that establish employment eligibility only and must be matched to a document from List B)

1. U.S. social security card issued by the Social Security Administration (other than a card stating it is not valid 

for employment) 

2. Certification of Birth Abroad issued by the Dept. of State (Form FS-545 or Form DS-1350) 

3. Original or certified copy of a birth certificate issued by a state, county, municipal authority or outlying possession of

the U.S. bearing an official seal 

4. Native American tribal document 

5. U.S. Citizen ID Card (INS Form I-197) 

6. ID Card for Use of Resident Citizen in the U.S. (INS Form I-179) 

7. Unexpired employment authorization document issued by the INS (other than those listed in List A)

Visit http://www.ins.gov/ for more information about the Immigration and Naturalization Service.
✓ Verifying Employment Status. Under the Federal Immigration Reform and

Control Act of 1986, it is unlawful for employers to recruit, hire, or 

continue to employ illegal immigrants to the United States. At the

same time, it is illegal to discriminate against work-eligible individuals

solely because of their country of origin. The employer must take three

steps when a job applicant is hired: 1) verify the applicant’s right to

work in this country (within three business days of the initial date of

employment); 2) attest that written proof of the right to work has been

presented (by completing INS Form I-9); and 3) maintain records of

steps 1 and 2. 

Only after the selected candidate has satisfied all pre-hiring requirements

should an offer of employment be made. However, the new employee still must

provide certain additional information to the employer, including the following:

✓ Personnel records. The employee must provide emergency medical 

information, emergency contact information, home contact 

information, and other personal information. 

✓ Payroll records. The employee must provide a permanent mailing

address, bank account routing numbers (for automatic deposit of 

paychecks), tax instructions (e.g., number of deductions, applicable 

taxing authority, etc.), beneficiary information for insurance policies,

and participant information for joining medical, dental, and other

insurance plans as applicable.

✓ Immunization Records. Newly hired employees may also be required to 

provide an immunization record and medical history to verify that they 

are free from certain communicable diseases. Since details of these requirements vary from state to state (and even school district to school district),

be sure to consult your Human Resources staff about this topic prior to 

initiating the hiring process.

110 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

WHEN CHECKING REFERENCES 

Recommended actions:

✓ Verify position title and dates of employment. 

✓ Verify candidate’s reasons for leaving. 

✓ Ask whether candidate is eligible for rehiring.

Optional actions:

✓ Ask about candidate’s attendance record. 

✓ Ask about job performance specific to the position for which candidate is applying.

Prohibited actions:

✓ Do not ask questions requiring value judgments (e.g., did she have a good attitude?).

✓ Do not ask questions about an applicant’s personal life (e.g., what about his family commitments?).

Due diligence 

must be demanded

by board policies 

and met during 

the day-to-day 

hiring process.

POLICIES MUST SUPPORT STAFF DEVELOPMENT

✓ New employees must be trained when they join the organization.

✓ Current employees must be trained on an ongoing basis as a means of improving their job satisfaction and performance.
TRAINING STAFF

Newly Hired Employees

People who are new to an organization have special 

training needs. They need to know how to complete

a time sheet, the procedure for lodging a complaint

and, for that matter, where to find the bathroom—

and that doesn’t even take into consideration what

they need to know to accomplish the task they 

have been hired to perform. Consequently, newly

hired personnel should receive the following 

types of training as soon as possible after joining 

the organization:

✓ Orientation (or tour) of the organization’s facilities –

including the payroll division (where timecards are punched and submitted), emergency locations (such as the nurse’s office), the cafeteria, and

the supervisor’s office.

✓ Orientation (or tour) of the person’s work area – including the primary

location where he or she reports to work and all areas where he or she

might be expected to perform job-related tasks (e.g., a plumber should

be shown the organization’s plumbing headquarters and all campuses

he or she will be servicing).

✓ Equipment instructions – including an introduction to all tools, machinery, 

and vehicles the individual will be expected to use (e.g., industrial floor

sweepers, lawn cutting equipment, power tools, and district trucks).

✓ Task-oriented lessons – including instructions on how to best perform the

individual’s work tasks (e.g., how to clean a carpet, repair a roof, or

service a school bus).

✓ Expectations – including a clear description of precisely what the 

individual must do to meet the requirements of the job (what, where,

when, and to what extent).

✓ Evaluation information – including an explanation of all criteria on

which the individual will be evaluated, such as the tasks that will 

be evaluated, all relevant performance standards and expectations, 

who will do the evaluating, what mechanisms will be used to perform 

the evaluations (e.g., random checks or daily assessments), and the

potential ramifications of the evaluations.

CHAPTER 6: EFFECTIVELY MANAGING STAFF AND CONTRACTORS 111

WHO PROVIDES TRAINING?

✓ Other staff who have demonstrated expertise with the equipment or performing the task

✓ Managers who will supervise and evaluate the work

✓ District trainers (in large organizations)

✓ Product vendors and equipment manufacturers

✓ Vocational education staff

A NOTE ABOUT TRAINING NEW STAFF MEMBERS

It might be 10 or 20 years since you’ve ridden a bike—still,

you likely remember how to do so. But do you recall how

many times you fell off of your first bike while trying to 

master the skill? It is much the same for staff members who

have to learn new skills for their jobs, except that they have

the added burden of knowing that their paycheck depends

upon their performance! So be patient and supportive when

training new staff. Mastering a new task takes time and 

practice, especially if you are worried about making a good

impression on your new boss.

THE PURPOSE OF STAFF

TRAINING MAY BE TO:

✓ ensure that your staff stay

safe (e.g., OSHA training) 

✓ teach staff how to deal with

changing needs (e.g., caring

for newly installed floors) 

✓ provide a stimulating 

experience to people who

perform repetitive tasks

(thereby improving staff

morale and retention rates)

✓ prepare staff for future 

promotions
Ongoing Training and Professional Development

Skills tend to get rusty unless they are used on a regular basis

(who among us can jump rope like we did when we were kids?).

The fact that a person has been taught how to perform a specialized task doesn’t mean that he or she will be able to perform 

the task in the future, especially if the task is not a regular part of his or

her routine. 

Admittedly, there is a trade-off between the benefits of staff training and the

costs of lost work time during training. School districts can’t simply treat their

employees like full-time students; nonetheless, preparing staff to get their work

done properly, efficiently, and safely is cost-effective in the long run—and managers need to have the wisdom to balance the competing concerns. Planners

should also be open to considering the benefits of developing “general” skills 

in their staff. For example, should a custodian be able to spend one hour per

month learning about computer use with other staff? This professional development activity may seem unrelated to a custodian’s job, but custodial work may

someday (soon) require e-mail skills for communicating with centralized 

supervisors. Moreover, in light of their overall mission, school districts may 

be uniquely motivated to provide educational opportunities to their personnel.

Managers must think creatively about how to provide high-quality 

training opportunities in the face of time and budget constraints. Proven

methods include:

✓ Sharing training costs with other organizations on a collaborative basis

(e.g., training may be sponsored by several neighboring school districts

or jointly by the school facilities department and the public works

department in the same community).

✓ Hiring expert staff or consultants to provide on-site supervision during

which they actively help staff improve their skills while still on-the-job.

✓ Developing training facilities, such as a custodial training room in

which equipment (e.g., vacuums) and techniques (e.g., mopping) can

be demonstrated and practiced. Providing this type of training will 

pay for itself in more efficient and better work from the trainee. Larger

school districts, which are more likely to find such specialized facilities

to be worth the investment, can do a good deed (and generate 

goodwill) by hosting training events for smaller districts in the area.

112 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

School districts can’t treat 

their employees like full-time

students; nonetheless, preparing

staff to get their work done

properly, efficiently, and safely

is cost-effective in the long

run—and managers need to

have the wisdom to balance 

the competing concerns.

“Staff training” refers to learning opportunities designed specifically to help an

employee do his or her job better. “Professional Development” has a broader

meaning, which includes expanding participants’ knowledge and awareness to

areas outside their specific job duties, yet still related to the overall well-being 

of the organization. Such topics might include:

✓ asbestos awareness

✓ energy systems

✓ building knowledge

✓ first aid

✓ emergency response

✓ biohazard disposal

✓ technology use

✓ universal precautions

✓ Right-to-Know

All staff training 

sessions should 

be documented.

Videotaped sessions

can be used in future

training activities.
✓ Offering tuition reimbursement programs which provide educational

opportunities to staff who might not otherwise be motivated to

improve their knowledge and skills.

✓ Building training into contracts so that vendors are obligated to 

provide training at either an on-site or off-site training center as a 

condition of the purchase of their products.

The “Moment of Truth” Chart

Training staff to not just do their jobs, but to do them well, can be a difficult

task. One proven method for accomplishing this challenging task is the

“Moment of Truth” chart. To begin, a trainer asks the employees to think of

a task that is a routine part of their work. They are then asked to think of the

minimum standards that must be met to accomplish this task. Finally, they

are asked to consider what would be required of them to exceed that minimally acceptable performance. The results should be recorded in a tabular

format, as shown in the accompanying chart. 

EVALUATING STAFF

Managing a school district effectively requires that two vital tasks be navigated

successfully. First, district leadership must institute policies that direct 

the organization’s efforts toward desired goals and objectives. Second, the

organization’s employees must act on those policies on a daily basis so as 

to meet the goals and objectives the organization has set. Thus, if policies

lead the organization in the wrong direction, “good” workers will only take 

it there more efficiently. On the other hand, good policies aren’t worth the

paper on which they are written if staff aren’t getting their jobs done properly.

To ensure that staff are doing their part to meet an organization’s goals and

objectives, employee performance must be evaluated on a regular basis.

To assess staff productivity, the organization (through its

managers and supervisors) must establish performance standards

and evaluation criteria. For example, a custodian’s performance

might be measured by the amount of floor space or number of

rooms serviced, the cleanliness of those facilities, and his or her attendance

CHAPTER 6: EFFECTIVELY MANAGING STAFF AND CONTRACTORS 113

TRAINING: FOCUSING GOOD INTENTIONS INTO PRODUCTIVE ACTIVITIES

Hal couldn’t figure out why the school’s ventilator fan kept turning off overnight. He’d verified that it was running

before he left the office at 6 p.m. the evening before, but it was off again by 8 a.m. the next morning. He spent the day

checking fuses and switches, but everything appeared to be working fine. He was about to go home very perplexed

when the night shift custodian arrived. “Linda,” he asked, “did you see anyone in the ventilator room last night?” 

“No,” she answered, “why?” “Well,” Hal explained, “the ventilator keeps switching off at night and I can’t figure out

why.” “Oh,” Linda said openly, “I started turning it off during my rounds.” Hal looked incredulous. “Why would you do

that, Linda?” “Because you told me to make sure that all lights, fans, and computers get turned off every night so that

we stop wasting so much energy around here,” she replied. “Well, yeah, I did say that, but I didn’t mean...” Linda

interrupted him again. “My job isn’t to guess what you mean, Hal. I get paid to do what you tell me.” She had a point,

and Hal knew it. He had to do a better job of communicating what he wanted Linda to do (and not do).

The goal of staff evaluations 

is the ongoing positive growth

of staff members. Although

shortcomings in performance

must be addressed, evaluations

should not be viewed as 

disciplinary events and should

never be the venue for 

unexpected criticism. Employees

who are under-performing

should be told so as soon as it 

is recognized (not just during

their formal evaluations).
114 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

“MOMENT OF TRUTH” CHART

A Girl Scout troop meets every Thursday night at James Elementary School, where Steve is the custodian. 

Following is the “Moment of Truth” chart Steve created at a staff development meeting: 

On Thursday nights...

BELOW STANDARD STANDARD TO BE MET OPPORTUNITY TO EXCEED 

✗ Outside doors locked ✓ Outside doors unlocked ✓✓ Exterior and lobby lights turned on;

Scouts greeted as they arrive 

✗ Room door locked ✓ Room door unlocked ✓✓ Room lights turned on; signs pointing

to the meeting room 

✗ Meeting area unprepared ✓ Meeting area prepared ✓✓ Closest bathroom unlocked, lit, 

(e.g., temperature checked, cleaned, and supplied; introduce 

room straightened) self to troop leader; tell troop 

leader to call if they need any other 

help; reappear at end of meeting 

to escort the troop out of the building

and lock the doors behind them 

How did the “Moment of Truth” chart inform Steve’s actions?

Because Steve knew that the Girl Scouts would be arriving at 7 p.m., he planned his work schedule so that he would

be in the lobby area to welcome them. He opened the door and greeted Mrs. Jones, the troop leader, two parents,

and the scouts as they entered the building. Steve told them that he had checked their room, and that the lights were

on, the temperature was comfortable, and the bathrooms on that corridor were open and supplied. He also mentioned

that he would be working down the hall in the cafeteria in case they needed him for anything. When the meeting was

over, Steve walked the guests out of the building and locked up behind them.

The next day Steve got summoned to the main office where the principal asked him what in the world he had

done to Mrs. Jones! The troop leader had called the principal that morning for the sole purpose of recognizing Steve’s

hospitality and efficiency the previous evening. The principal was pleased to pass along the thanks to Steve, adding

that she was proud of him for leaving such a positive impression on the school’s guests. 

And what were things like before Steve constructed his “Moment of Truth” chart?

Steve was cleaning the gymnasium floor when he heard pounding on the windows down the corridor. He opened 

the front doors and found Mrs. Jones and the girls standing in the dark and the cold. Mrs. Jones explained that two

parents had walked around to the back of the building to look for an open door. Steve went to look for them. When 

he returned, he found Mrs. Jones and the troop waiting outside the locked meeting room. When he opened the door

and turned on the lights, he found the room in a state of disarray. Mrs. Jones grimaced and said that the girls would

straighten it if Steve could get some heat into the room. Forty minutes later, he heard someone calling through the

dark halls for “Mr. Janitor.” He was asked not only to open the bathroom, but also to bring a mop since one of the

young girls had not been able to wait. The next day Steve got called to the office by the principal, who had just

received an angry phone call from the troop leader.

Conclusions

Would you rather work in a school district that hears praises or complaints about the custodial staff? Most people

would rather be helpful when possible—and one of the keys to good leadership is helping staff to see that doing 

a good job is not only possible, but preferable. The Moment of Truth Chart is a technique for accomplishing this

objective. It shows that doing an exceptional job doesn’t require that much more work, just that the work be done

more efficiently. In the example above, Steve had to open the doors, turn on the lights, heat the rooms, and supply

the bathrooms anyway. The Moment of Truth Chart just reminded him that he should plan to reorganize his 

schedule on Thursday nights so that he performed these tasks before the guests arrived!
history. The custodian’s work likely will be assessed by his or her immediate

supervisor and the principal of the school. Self-evaluations can also be useful

personnel management tools—i.e., ask the staff member to rate his or her

own work and then discuss the outcomes relative to the supervisor’s 

opinion.

Determining performance standards may be best accomplished as a joint

endeavor between the individual and his or her supervisor. Although some

supervisors may be reluctant to share this authority, joint decision-making

with the staff member has two very positive features: 1) the staff member can

communicate atypical features of his or her working conditions that warrant

modification of “normal” performance standards (e.g., the vinyl tile floor in

the work area requires additional time to clean properly); and 2) the supervisor will know that the staff member is fully aware of the jointly developed

expectations.

Assessing how an employee measures up to performance standards is 

an uncomfortable task for many supervisors. To avoid unpleasantness, the

supervisor must maintain his or her composure, objectivity, and professionalism—otherwise one risks inciting staff morale issues and, perhaps, personnel

complaints or even legal issues. To avoid these problems, evaluators must 

be careful to:

✓ Be objective and not allow personalities to influence the assessment

✓ Document evidence that supports the assessment

✓ Encourage improvement rather than fixate on shortcomings

CHAPTER 6: EFFECTIVELY MANAGING STAFF AND CONTRACTORS 115

GUIDELINES FOR DEVELOPING PERFORMANCE STANDARDS

Management must:

✓ Establish goals

✓ Create an evaluation instrument (e.g., a checklist)

✓ Be as detailed and specific as possible

✓ Define the performance scale (e.g., 0 = poor to 5 = excellent)

✓ Be flexible (i.e., acknowledge extraordinary circumstances when they arise)

✓ Convey expectations to affected staff people

✓ Review the performance standards on a regular basis (e.g., annually)

A “desk audit” is a good place to

begin establishing performance

standards: ask employees to write

down how they spend each day

(i.e., what are their current

duties and responsibilities?).

Does it seem like an employee 

is consistently absent on Fridays

and Mondays? If so, personnel

records should verify this 

before the issue is brought up 

as a concern during a staff 

evaluation.

An evaluation system that fails to discriminate between performance levels 

is failing the organization. For example, a system is flawed when every staff

member is rated “above average” in every facet of his or her performance. 

After all, by definition, “above average” means better than half of one’s peers!
MAINTAINING STAFF

A great deal of time, energy, and money goes into hiring good

employees and providing them with worthwhile staff training

opportunities. Thus, it is an expensive proposition to replace

good staff who leave prematurely. Moreover, when a position is

unfilled, the work either doesn’t get accomplished or morale is hurt when

existing staff are expected to work harder or longer to pick up the slack.

Therefore it should not be surprising that retaining good staff is an essential

aspect of effective management.

The first step to retaining staff is to determine the current staff turnover

rate. If it is high, does this reflect how personnel are treated, either because

of policies (e.g., poor compensation or benefits) or organizational culture

(e.g., do staff feel undervalued)? And how might these data inform organizational policies and practices? For starters, staff retention can be affected by

changes in policies. If turnover is costing the organization too much money

and affecting the amount of work that is getting done, it may be time to

introduce financial incentives for staff who stay on the job. For example, 

a one-year anniversary bonus equal to 5 percent of a person’s annual 

salary might be a very effective tool for retaining staff for a full 

12 months.

Staff retention efforts might also take the form of staff appreciation

awards, parties, and gifts. After all, nothing says “we value your work” like 

an end-of-the-year picnic (paid for by the district) where the facilities 

manager and superintendent pass out performance awards to maintenance

and custodial staff who might otherwise not receive very much recognition

for their work.

116 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

WHAT KEEPS GOOD PEOPLE ON THE JOB?

✓ good pay ✓ good benefits ✓ a sense that they are respected ✓ a feeling that their work is valued ✓ opportunity for advancement

Consider allowing staff to vote

on award recipients—it shows

that their opinions are valued

and may help to eliminate 

controversial decisions on the

part of management.

INCENTIVES IDEAS INCLUDE:

✓ on-the-spot awards

✓ annual cash bonuses

✓ hats or shirts with the department logo

✓ plaques 

✓ gift certificates (to restaurants, movies, etc.)

✓ tickets to sporting events or musical concerts

✓ employee-of-the-month announcements

✓ picnics or banquets

✓ tuition reimbursement

✓ special privileges (e.g., coffee and doughnut parties)
AND THE AWARD FOR “BEST ATTITUDE” GOES TO...

It was Henry’s favorite day of work each year—the facilities department picnic! Every May, he and his family would 

meet his co-workers (and their families) at the outdoor swimming pool for an afternoon of food and fun. The facilities department would roast a pig, fry fish, bake potatoes, boil corn, invite the ice cream vendor, and pick up the tab! 

This year, when Mr. Davis stood up to recognize his staff, the day got even better for Henry, as he was recognized 

for having the best attendance rate in the department over the past 12 months. Henry was proud to shake 

Mr. Davis’s hand at the podium, but even happier to receive a $50 gift certificate to a local seafood restaurant. 

His friend Samantha also received an award—a plaque that read “Most Conscientious Employee”—that everyone 

in the department had voted on. 

It was a day of family fun and pride. Henry’s kids enjoyed the day as much as he did (which was part of why he 

liked the picnic so much), and Henry knew that his department valued the job he did throughout the school year!

MANAGING CONTRACTED STAFF 

AND PRIVATIZED ACTIVITIES

Some school districts hire outside agencies to handle certain maintenance

and custodial tasks – that is, they use “privatized” or “contracted” services.

Why would an organization want to pay a third party enough money to 

perform a service and make a profit? There are many reasons for outsourcing

jobs. Perhaps in-house staff are constantly being bombarded with “special”

projects and emergencies that take priority over their daily duties. Maybe a

small school district may not be able to afford to keep specialized personnel

on the staff. Or a large district may need to cut back on the number of 

permanent staff. 

Whatever the reason, privatizing is not just a question of the

school district writing a check to pay for services. School staff

must still put considerable energy into managing privatized

endeavors. For example, when contracted staff are hired, precise

specifications must be drawn up for the procurement, including an objective

standard for measuring performance. Moreover, depending on the complexity

of the task, a member of the in-house staff may still need to serve as project

manager. To be effective, the project manager should have expertise in

maintenance and operations, a thorough understanding of the contractor’s

scope of work, the skills to evaluate the contractor’s performance, and the

authority to assign supplemental support tasks to in-house staff.

CHAPTER 6: EFFECTIVELY MANAGING STAFF AND CONTRACTORS 117

While there may be financial

benefits to privatizing certain

activities in a school system, 

the effects on an organization’s

work culture must also be 

considered.

Where on the organizational

chart does one draw the line

when privatizing maintenance

responsibilities? The short

answer is that at least the

“manager” should be a 

school district employee.

Opportunities for in-house staff to work alongside outside contractors should

never be ignored if schedules allow for such interaction. This type of cooperation

can provide valuable (albeit informal) training for the district’s maintenance 

and operations staff. At the same time, outside contractors can pick up valuable 

information about the practical applications of their work. Including in-house staff 

in all aspects of the maintenance program may have the added bonus of building 

support for the privatization program from within the organization.
COMMONLY ASKED QUESTIONS

How does “training” apply to maintenance and custodial staff? 

Caring for a school facility requires considerable expertise. While the 

organization may prefer to hire maintenance and custodial staff who 

possess this expertise, this is not always possible. Sometimes “hiring” 

experts is just too expensive. In other cases, existing staff need training to 

meet changing facility needs. No matter the circumstances, developing 

staff expertise is a necessary and cost-effective component of getting the

job done—and “developing” expertise is simply another way of saying 

“training.” Staff training provides employees with the knowledge, skills, 

and experience (through practice) to accomplish their jobs effectively.

How does one justify professional development versus time-on-task? 

Staff do not get hired to be students—they are hired to accomplish a 

job. Nonetheless, effective managers understand that helping employees

improve their knowledge and skills also helps them to become better

employees. Professional development can also be an effective tool for 

boosting or maintaining staff morale. After all, nothing conveys that 

an organization values and respects its workers like its willingness to 

invest in them.

What types of reward and incentive programs are effective? 

Reward and incentive programs should be tailored to the needs and wants 

of the staff and the best interests of the organization. Staff might appreciate

creativity when conceiving incentive programs, but planners should ensure

that the incentives are things that the staff (and not the planners) would

want. Examples include: on-the-spot awards, annual cash bonuses, gift 

certificates (e.g., to restaurants, movies, and stores), tickets to sporting 

events or musical concerts, hats or shirts with the department logo, plaques,

employee-of-the-month announcements in the newspaper, picnics and 

banquets, tuition reimbursement, and special privileges (e.g., bonus time 

for coffee breaks or free doughnuts during breaks).

ADDITIONAL RESOURCES

Every effort has been made to verify the accuracy of all URLs listed in this

Guide at the time of publication. If a URL is no longer working, try using the

root directory to search for a page that may have moved. For example, if the

link to http://www.epa.gov/iaq/schools/performance.html is not working, try

http://www.epa.gov/ and search for “IAQ.”

Association of Higher Education Facilities Officers (APPA)

http://www.appa.org/

An international association that maintains, protects, and promotes the 

quality of educational facilities. APPA serves and assists facilities officers and

physical plant administrators, conducts research and educational programs,

produces publications, and develops guidelines.

Cleaning & Maintenance Management Online

http://www.cmmonline.com/Home.asp

The online home of Cleaning & Maintenance Management Magazine, which

features articles, buyers guides, key topics, and a calendar.

118 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Q&A
Custodial Staffing Guidelines for Educational Facilities

http://www.appa.org/resources/publications/pubs.cfm?Category_ID=2 

A guide about custodial staffing in educational facilities that addresses 

custodial evaluation, special considerations, staff development tools, and case

studies. Appendices include information about custodial requirements, space

classification, standard space category matrices, standard activity lists, and

audit forms. APPA (1998) The Association of Higher Education Facilities

Officers, Alexandria, VA, 266pp. 

Custodial Standards 

http://ehs.brevard.k12.fl.us/PDF%20files/custodial_standards_03.pdf

Guidelines that detail cleaning requirements for each area of a school, 

including classrooms, restrooms, cafeterias, gymnasiums, locker rooms, 

and corridors. Samples of assessment forms include emergency lighting, fire

extinguisher inspection, air conditioner maintenance/service log sheets, and

monthly custodial preventive maintenance forms. Office of Plant Operations

and Maintenance (1998) Brevard Public Schools, Rockledge, FL, 44pp. FacilitiesNet 

http://www.facilitiesnet.com/ 

A commercial web site for facilities professionals sponsored by Trade Press

Publishing Corporation and developed by the editors of Building Operating

Management and Maintenance Solutions magazines. It includes a chat room

on educational facilities. Facility Management 

http://www.facilitymanagement.com/ The online home of American School and Hospital Maintenance Magazine. This site is intended to help facility managers stay informed about current

issues and the latest products.

International Facility Management Association (IFMA)

http://www.ifma.org/ The web site of a group that is dedicated to promoting excellence in the 

management of facilities. IFMA identifies trends, conducts research, provides

educational programs, and assists corporate and organizational facility 

managers in developing strategies to manage human, facility, and real 

estate resources.

National Clearinghouse for Educational Facilities (NCEF) 

http://www.edfacilities.org

A web site that includes reviews of and links to cutting-edge education 

facilities news; a calendar of conferences, workshops, and other facilities

management-related events; a gallery of photos showing off innovative and

provocative building design and construction from real schools across the

nation; categorized and abstracted resource lists with links to full length, 

online, publications; and pointers to other organizations that provide online 

and off-line resources about education facilities management. NCEF can 

also be reached toll free at 888-552-0624.

National School Plant Management Association (NSPMA) 

http://www.nspma.com/

A membership organization that facilitates the exchange of information

about school plant management, maintenance and care.

CHAPTER 6: EFFECTIVELY MANAGING STAFF AND CONTRACTORS 119
120 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Occupational Safety and Health Administration (OSHA)

http://www.osha.gov/ 

The web site of OSHA, which has as its core mission to save lives, prevent

injuries, and protect the health of America’s workers. To accomplish this,

federal and state governments work in partnership with the more than 

100 million working men and women and their 6.5 million employers who

are covered by the Occupational Safety and Health Act of 1970.

Plant Operations Support Program 

http://www.ga.wa.gov/plant

A self-sustaining consortium comprised of facility managers from

Washington state agencies, educational facilities, municipalities, and port districts. This web site includes a library of practices, policies, research studies,

and other references on subjects including emergency preparedness, energy

savings, maintenance management, IAQ, and accessibility.

SchoolDude 

http://www.schooldude.com/

A site that connects school facility professionals with each other to solve

problems, share best practices, and improve learning environments. This

includes tools for work management, information, and resources, as well as

online procurement for equipment and school supplies. Some sections are

accessible only to fee-paying members.

SchoolFacilities.com

http://www.schoolfacilities.com

A professional support network for school facility administrators and support

personnel that provides school-related news, products, resources, and facility

management tools.

SchoolHouse Plant Operation & Maintenance Resource Center: School

House Library

http://faststart.com/cps/Library.html

An online library containing reports dealing with various aspects of plant

operation and maintenance that relate to the operation of school buildings.

U.S. Equal Employment Opportunity Commission 

http://www.eeoc.gov 

The web site of the EEOC, which is charged with enforcing numerous

employment-related federal statutes.

U.S. Immigration and Naturalization Service (INS) 

http://www.ins.gov/

The web site of the INS, which is responsible for enforcing the laws regulating the admission of foreign-born persons (i.e., aliens) to the United States and

for administering various immigration benefits, including the naturalization of

qualified applicants for U.S. citizenship.
CHAPTER 6: EFFECTIVELY MANAGING STAFF AND CONTRACTORS 121

YES NO

ACCOMPLISHED

CHECKPOINTS PAGE

Have job descriptions been developed for all maintenance and 

operations positions? 

Do job descriptions describe “duties and responsibilities” accurately and

in detail? 

Do job descriptions accurately describe working conditions? 

Do job descriptions accurately describe the physical requirements of the

position? 

Do job descriptions comply with equal opportunity laws? 

Do job descriptions accurately describe the educational requirements of

the position? 

Do job descriptions accurately describe the credential and licensure

requirements of the position? 

Do job descriptions accurately describe equipment used in the position?

Do job descriptions accurately describe at-will versus unionized 

requirements of the position? 

Do job descriptions accurately describe channels of authority for the

position? 

Do job descriptions accurately describe evaluation mechanisms for the

position? 

Do job descriptions include the phrase “and other duties as assigned”? 

Before interviewing candidates, have the characteristics of the “ideal”

candidate been identified? 

After selecting the preferred candidate, but before extending an offer of

employment, have the applicant’s references been contacted? 

After selecting the preferred candidate, but before extending an offer of

employment, has a criminal background check been performed on the

applicant? 

After selecting the preferred candidate, but before extending an offer of

employment, has the applicant provided evidence of employment eligibility? 

After extending an offer of employment, has the applicant provided all

information needed to complete a personnel record? 

MANAGING STAFF AND CONTRACTORS CHECKLIST

More information about accomplishing checklist points can be found on the page listed in the right-hand column.

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122 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

After extending an offer of employment, has the applicant provided 

all information needed to satisfy payroll needs? 

After selecting the preferred candidate, but before extending an offer of

employment, has the applicant provided required medical and health records? 

Do all newly hired employees undergo staff training upon initially 

joining the organization? 

Does training for new staff include an orientation to key district sites 

(e.g., emergency locations) and all sites at which the individual will work? 

Does training for new staff include an introduction to all equipment 

the individual will be expected to use? 

Does training for new staff include instructions about how to best 

perform the individual’s work tasks? 

Does training for new staff include a clear description of precisely what the

individual must accomplish in order to meet the expectations of the job? 

Does training for new staff include an explanation of all criteria on

which the individual will be evaluated? 

Is ongoing training provided to existing staff? 

Is professional development offered to all staff on an ongoing basis? 

Are all training and professional development activities documented on

videotape so that they can be showed to other staff and at later times? 

Have cost-sharing and cost-minimizing methods for training programs

and facilities been considered by management? 

Have staff been trained to create and use a “Moment of Truth” chart? 

Have performance standards and evaluation criteria been established for

all staff positions? 

Have performance standards and evaluation criteria been adequately

explained to all staff? 

Have managers been trained on how to perform fair, objective, accurate,

and well-documented evaluations? 

Have staff turnover rates been determined and analyzed? 

Have the organization’s personnel policies been adjusted to increase

staff retention rates? 

Have rewards and incentives been introduced to improve staff morale

and retention? 

Do privatization procurements include precise specifications for 

measuring performance? 

Has an in-house staff member been assigned the duties of “project 

manager” for each privatization contract? 

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Table of Contents:

Why Does Facilities

Maintenance Matter? ................1

Who Should Read This 

Document? ....................................4

In a Nutshell... ................................5

Planning Guide Framework........7

In Every Chapter...........................8

Commonly Asked Questions ......8

Additional Resources ....................9

Introductory Facilities 

Maintenance Checklist ................11

CHAPTER 7 

EVALUATING FACILITIES 

MAINTENANCE EFFORTS

Program evaluation allows planners to see which initiatives are working, 

which are not working, and which strategies need to be reconsidered. 

There is simply no substitute for good data when making evaluation 

and program decisions.

CHAPTER 7: EVALUATING FACILITIES MAINTENANCE EFFORTS 123

Table of Contents:

Evaluating Your Maintenance

Program......................................124

Considerations When Planning

Program Evaluations ..............124

Collecting Data to Inform a

Comprehensive Evaluation ..126

Examples of Good Evaluation

Questions ..................................127

Commonly Asked Questions ..130

Additional Resources ............131

Evaluating Facilities Maintenance

Programs Checklist ................132

WHEN THE GOING GETS TOUGH, THE TOUGH GET EVALUATING

Nick had pretty much staked his reputation, and perhaps his job, on a preventive

maintenance program. He’d championed the idea, recommending it in no uncertain

terms to the superintendent and school board. So when the money was earmarked

for a preventive maintenance program, everyone congratulated him. But Nick knew

that getting the money and implementing the initiative was only the start of the job.

He had to show that the program was working—or at least find out where it wasn’t

working and then reassess his strategy as needed. 

When the next year’s budget cuts came down from the top, the assistant superintendent tried to reassure Nick that the maintenance program would survive the cut.

“Look, Nick, you could make up nearly a third of the cut if you just reassign your

program evaluation funds back into the maintenance budget.” Nick looked at his

boss with surprise. “Ted, in ten years of working together, I’ve never heard such a

bad idea come out of your mouth.” Ted was taken aback by the reply, “But Nick, 

I just want to make sure that you’re getting the biggest bang for your buck out of

the budget.” Nick laughed, “So do I, and that’s why we’ve got to evaluate our work.

Otherwise, we’ll have no way of knowing what the ‘buck’ is really buying us. We

won’t know what we’re doing right, or doing wrong, or where we needed to

improve our performance. I’m telling you, Ted, when the budget gets lean—that’s

when we really need to stay serious about evaluating our work so that we can

determine our priorities and allocate those tight dollars.” Ted scratched his head, 

“I hadn’t thought of it that way, Nick. I bet the same is true in the rest of the 

district as well, huh?” Nick cracked a smile, “I bet it is.”

GOALS: 

✓ To communicate the importance of regular facilities maintenance program evaluation

✓ To recommend best practice strategies for evaluating facilities maintenance efforts
124 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

EVALUATING YOUR MAINTENANCE PROGRAM

This Planning Guide provides a framework for proactively developing a 

comprehensive, district-wide facility maintenance plan. The preceding chapters

address the primary elements of maintenance planning, including recognizing

the need for effective maintenance programs, planning maintenance programs, performing facilities audits (i.e., data collections), ensuring environmental safety, maintaining grounds and facilities, and managing staff and

contractors. One other vital component of adequate school facilities 

maintenance is periodic evaluation to assess the success of these efforts 

at a program level. 

To realize the full potential of a comprehensive preventive maintenance

system, school staff, the school board, and town planners must incorporate

maintenance priorities into all modernization goals, objectives, and budgets.

However, it is also fair for stakeholders to expect the maintenance program

to yield results—namely: clean, orderly, safe, cost-effective, and instructionally

supportive school facilities that enhance the educational experience of all 

students. But stakeholders also need to demonstrate patience because the

only thing that takes more time than implementing changes to a maintenance program is waiting to see the improvements bear fruit.

CONSIDERATIONS WHEN PLANNING 

PROGRAM EVALUATIONS 

Evaluation doesn’t have to mean more dollars and more surveys. Many of

the day-to-day activities or systems used to plan and operate a maintenance

program also generate the types of information needed to evaluate the 

program’s effectiveness. These can include:

✓ Physical inspections: Records of physical inspections are good evaluative

material. To care for buildings and grounds, staff must observe and

assess their condition on a regular basis. Inspections should be both

visual (i.e., how things look) and operational (i.e., how things work),

and should result in work orders for items requiring service or repair. 

✓ Work order systems: An effective work order system, as explained in

Chapter 5, is a good tool for identifying, monitoring, and projecting

future maintenance needs. All maintenance work should be recorded

on work orders, which then provide valuable quantitative information

for evaluations.

✓ User feedback/customer satisfaction surveys: There are many ways to

gather information from users/customers (i.e., the people who benefit

from the maintenance activities), including collecting satisfaction surveys

and convening advisory committees of stakeholders. The value 

of user perception should not be overlooked as an evaluation tool.

Appendix I provides a sample customer survey form used to request

feedback relating to custodial and maintenance work.

Reasons for evaluating 

the facilities maintenance 

program include:

✓ internal management 

control

✓ school board requests

✓ state reporting mandates

✓ regulatory inspections 

(e.g., EPA)

Program success 

can only be evaluated

relative to program

objectives. In other

words, measuring 

“success” means

answering the question:

Are we reaching our

goals and objectives?
✓ Audits: Performance audits, commissioning, retro-commissioning, comparisons with peer organizations, benchmarking, and

annual reviews of accomplishments provide important data for

the facility plan and ensuing evaluation. 

✓ Alternative resources: Maintenance staff need not reinvent 

the wheel when it comes to evaluations. Maintenance and

operations manuals, vendor expertise, warranties, and other

resources (e.g., Web sites) can be sources of benchmarking 

data or evaluation standards.

✓ Regulatory activities: Appropriately trained staff or contractors

must be assigned to determine whether applicable public safety

and environmental regulations are followed. These staff must 

be responsible for documenting inspection activities and

reports, notifying appropriate oversight organizations of 

deficiencies, developing strategies for remedying deficiencies,

and verifying compliance to applicable laws and regulations.

Documentation of these activities can be used in program

evaluation.

CHAPTER 7: EVALUATING FACILITIES MAINTENANCE EFFORTS 125

A NOTE ABOUT BUDGETS

Even with the best planning, 

budget cutbacks are sometimes

unavoidable. This may force planners to reprioritize their operational

objectives—which can affect the

goals of an evaluation effort as

well. For example, under shortfall

conditions, evaluators might be

asked to assess whether budget

cutbacks have prevented the

department from reaching one 

or more of its goals. Or the 

evaluation effort might be used 

to identify mission-critical components of the maintenance plan in

the event of ongoing program cuts.

QUESTIONS TO DRIVE EVALUATION EFFORTS

A simple evaluation program can be implemented by answering these four questions:

Step 1:

What is the purpose of the evaluation? That is, what decisions need to be made and by whom?

Example: The facilities maintenance director and the school business official want to know whether the 

new work order system is worth the money that was invested in its purchase, installation, and staff training.

Step 2:

What questions need to be answered to make an informed decision, as identified in Step 1?

Example: Is the new work order system accomplishing all that we had hoped it would? 

Is the new work order system running more efficiently than the old system?

Step 3:

What information needs to be available to answer the questions identified in Step 2? 

Example: What was the total cost for purchasing and installing the work order system? 

What was the total cost to train staff to use the work order system?

Are staff time and materials accounted for in the work order system?

Does the system maintain historical data about maintenance at each site?

Does the system track all purchases, from ordering through delivery, installation, and storage?

Does the system document all preventive maintenance activities?

Has the response time for work order requests decreased? If so, by how much?

Has the number of work orders accomplished increased? If so, by how much?

Step 4:

What is the best way to capture the information needs identified in Step 3?

Example: Accounting and management audits, work order system user surveys,

current work order system reports, and data from previous work order requests.
126 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

COLLECTING DATA TO INFORM 

A COMPREHENSIVE EVALUATION

To evaluate a facilities management program, the district must collect and 

maintain accurate, timely, and comprehensive data about its facilities. 

After all, responsible decision-making requires good data and documentation. 

Before assessing maintenance improvements, it is necessary to identify the 

baseline against which progress will be measured (see Chapter 3). In other

words, will the organization compare its current status against its previous 

status, against peer organizations, or relative to commonly accepted norms 

and best-practice standards?

The graph shows the number of days it took for a work order to get 

completed in a school district before and after the process was streamlined.

Although the amount of time it takes for the actual work to be accomplished

has not changed, two significant time-saving approaches have been adopted: 

1) the number of people handling the work order has been cut, and 2) the parts

and materials procurement system has been linked to the work order system.

This type of streamlining not only increases efficiency with respect to getting

work accomplished, but also decreases unnecessary administrative costs.

Collecting data may require substantial effort, but it is a 

necessary task all the same. Proven sources of information about

the condition of school facilities and the impact of a facility 

maintenance program include:

✓ number of work orders completed

✓ changes in maintenance costs

✓ major incident reviews (e.g., number of school shutdowns, safety

events, etc.)

The only thing worse than 

no data is misplaced confidence

in bad data. Decisions are

bound to be bad if the data

used to inform them are of

poor quality.

Document all “lessons learned”

to keep a record of things that

didn’t work as planned so that

mistakes can be avoided the

next time around.
✓ “customer” feedback (e.g., the opinions of principals and other 

occupants) 

✓ visual inspections by supervisors and managers

✓ comprehensive management audits

✓ performance audits

✓ organizational studies

✓ annual snapshots (e.g., maintenance/operations cost per square 

foot or per student)

✓ facility report cards or other summaries

✓ comparisons with “peer” organizations

✓ benchmark performance

✓ trend analysis (e.g., progress toward the organization’s long-range plans)

✓ external audits/peer reviews

✓ weekly foreman’s meetings

✓ staff turnover rates

✓ public opinion (e.g., newspaper articles, etc.)

EXAMPLES OF GOOD EVALUATION QUESTIONS

Over the years, experienced facilities maintenance planners have learned to

ask some very good evaluation questions, some of which are listed below.

Some questions may not apply to every school district, but the list illustrates

the types of questions that facilities maintenance planners can ask to meet

the information needs of their evaluation efforts.

Work Orders

✓ Does the work order system account for all maintenance staff time

and materials?

✓ Does the work order system produce data about the history of all

maintenance activities at each site?

✓ Does the work order system track all purchases, from ordering

through delivery, storage, and installation?

CHAPTER 7: EVALUATING FACILITIES MAINTENANCE EFFORTS 127

PITFALLS TO AVOID WHEN INTERPRETING MAINTENANCE EVALUATIONS

Stakeholders should not assume that improvements to a maintenance program will always yield cost savings

in real dollars. To obtain an accurate assessment of maintenance initiatives, evaluators must also look for:

✓ Cost avoidance rather than direct savings (e.g., well-maintained equipment tends not to

wear out or need to be replaced as quickly as poorly maintained equipment)

✓ Fewer service interruptions resulting from better maintained, and better performing,

equipment.

Moreover, improving facilities maintenance requires patience. A comprehensive, proactive program takes

resources, energy, and time to initiate—and even more time before results are realized.
128 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

✓ Does the work order system document all preventive maintenance

activities?

✓ Is priority recognition available to differentiate between emergency,

routine, and preventive maintenance?

✓ Do preventive maintenance activities outnumber emergency responses

in the work order system logs?

✓ Is user feedback documented through work orders, surveys, or minutes

of stakeholder meetings?

Needs Assessment

✓ Does the needs assessment include a mechanism for collecting, 

analyzing, and prioritizing input from users? 

✓ Does the needs assessment include data from the work order system?

✓ Are stakeholders (e.g., maintenance staff, educators, users) included in

needs assessment and capital planning activities?

✓ Does the needs assessment include information from the work order

system?

✓ Does the needs assessment include information from site and 

equipment inspections?

✓ Does the needs assessment include data from performance and 

systems audits?

✓ Does the needs assessment include commissioning and retro-commissioning results?

✓ Does the needs assessment include comparisons with peer 

organizations?

✓ Does the needs assessment reflect outstanding regulatory or 

compliance issues?

✓ Are safety checks based on documentation and incident reports?

✓ Is an annual facility plan created from the needs assessment?

Site Inspections

✓ Are inspectors adequately trained for their task?

✓ Are there clear standards for inspections?

✓ Are inspections conducted with both property needs and maintenance

capacity in mind?

✓ Are all inspection results documented?

Data Management Systems

✓ Does the data management system document the current status of the

major systems and components in every school building?

✓ Does the data management system document the capital and 

maintenance needs of every school building?
✓ Does the data management system document the short- and 

long-term needs of the district?

Budgeting

✓ Does the budget request accurately reflect the needs of the annual

facility plan?

✓ Are there both short- and long-term budget objectives?

✓ Are maintenance staff involved in developing the budget?

✓ Does the annual budget reflect the inevitability of unplanned emergency maintenance issues?

✓ Are there contingency plans in the budget?

✓ Are industry standards used to estimate costs?

✓ Does the budget include funds for new hires, contracting, and 

equipment and supply purchases?

✓ Is the financing plan for long-term capital needs separate from the

maintenance budget?

Staffing

✓ Does the personnel policy include maintenance and contracted staff?

✓ Do job descriptions reflect the identified needs of the organization?

✓ Do job descriptions outline the necessary qualifications to perform the

work?

✓ Does the organizational chart accurately delineate reporting 

responsibilities?

✓ Are training opportunities available and relevant to the duties of the

staff?

✓ Are all tradespeople fully licensed for their work?

✓ Are industry guidelines used to determine custodial staffing needs?

✓ Are cost-benefit analyses conducted to determine staff/contracting

needs?

✓ Is cost-benefit analysis based on numbers of available staff, skill levels

or training needs of existing staff, and the type of job?

Staff Evaluations

✓ Are staff performance evaluations performed on a regular schedule?

✓ Do data drive staff performance evaluations?

✓ Is there follow-up to staff performance evaluations that includes

additional training opportunities, reassignment of staff, changes 

in job duties, contracting out duties, and hiring of additional staff?

✓ Are staff accomplishments reviewed and documented on an annual

basis?

CHAPTER 7: EVALUATING FACILITIES MAINTENANCE EFFORTS 129
130 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Q&A

✓ Are staff accomplishments measured in part by comparing budget 

estimates to actual expenditures?

✓ Are staff accomplishments measured in part on the basis of work

order system records?

✓ Are staff accomplishments measured in part by personnel evaluations?

Facility Plan

✓ Does the facility plan provide for periodic reports of staff accomplishments to stakeholders?

✓ Are staff accomplishments related to the objectives stated in the 

annual facility plan?

✓ Were all facility plan objectives met?

✓ Was reprioritization of objectives needed to meet goals?

✓ When goals and objectives were not met, was the reason for this 

failure substantiated?

✓ Were cost estimates sufficient to meet the objectives?

✓ Were other aspects of the budget negatively affected to meet maintenance objectives?

✓ Were staffing levels sufficient to meet the objectives?

✓ Are the goals and objectives of the facility plan reprioritized based on

actual budgets received, number of emergencies, school shutdowns,

complaints, safety issues, school days lost or sick days increased, negative inspection reports, loss of accreditation, compliance, regulatory or

legal action, impact on capital plan or long-term plan, staff overtime,

staff turnover, or the impact on other planned projects?

✓ Are unmet goals and objectives documented?

✓ Are unmet goals and objectives included in the next planning cycle?

COMMONLY ASKED QUESTIONS

Doesn’t “evaluation” take precious resources from actually maintaining

facilities? 

Absolutely. However, without earmarking funds for evaluation, there is no

way of knowing whether the money, time, and energy going into facilities

maintenance efforts are producing worthwhile results. After all, the only thing

worse than “wasting” part of the maintenance budget on evaluation is wasting

the entire maintenance budget on activities that aren’t really working.

What tools are available for maintenance program evaluation activities? 

An “evaluation tool” is any means by which an organization can get accurate

and timely information about the status of its facilities, and any improvements that are a result of the maintenance program. In addition to the 

services of outside evaluation consultants, potential tools available to a

school district include: work order records, major incident reviews (e.g.,

the number of school shutdowns, safety events, etc.), “customer” feedback
from building principals and other stakeholders, weekly foremen’s meetings,

visual inspections by supervisors and managers, comprehensive management

audits, focused operational reviews, performance audits, organizational studies, reengineering projects, annual snapshots (e.g., cost per square foot or 

per student), facility report cards, comparisons with “peer” organizations,

benchmarks, measured progress toward the organization’s long-range plans,

external audits and peer reviews, staff turnover rates, and public opinion

(e.g., newspaper articles).

Who is in charge of evaluating the facilities maintenance program? 

Program evaluation is the responsibility of the facilities manager. However,

because facilities are such a key aspect of an organization’s overall budget

and mission, other senior staff should be included in evaluation oversight as

appropriate to ensure sound management and planning. Moreover, many

school districts employ in-house staff with considerable expertise in program

evaluation who may also be able to contribute to the process.

ADDITIONAL RESOURCES

Every effort has been made to verify the accuracy of all URLs listed in this

Guide at the time of publication. If a URL is no longer working, try using the

root directory to search for a page that may have moved. For example, if the

link to http://www.epa.gov/iaq/schools/performance.html is not working, try

http://www.epa.gov/ and search for “IAQ.”

APPA Custodial Operation Self-Analysis Program

http://www.appa.org/pdffiles/AllCustodialAnalysis.pdf

A survey and self-analysis tool designed to identify many of the variables that

influence institutional custodial operations. It also establishes standardized

benchmarks for the industry. APPA (1998) The Association of Higher

Education Facilities Officers, Alexandria, VA, 15pp.

FMEP: Facilities Management Evaluation Program

http://www.appa.org/FMEP/

A program to provide the chief facilities officer at APPA member institutions with the opportunity to receive an evaluation by a team of APPA

members from organizations with similar educational, financial, and 

physical characteristics. This document is designed to help an institution

assess the value of this program and the commitment required to conduct

such an evaluation.

CHAPTER 7: EVALUATING FACILITIES MAINTENANCE EFFORTS 131
132 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

YES NO

ACCOMPLISHED CHECKPOINTS PAGE

Do stakeholders realize that it will take time (months to years) before

they will be able to see improvements in a maintenance program? 

Is progress toward attaining the goals and objectives of the maintenance

department being explicitly assessed? 

Does the evaluation program incorporate physical inspections? 

Does the evaluation program incorporate work order systems? 

Does the evaluation program incorporate user and user/customer 

feedback? 

Does the evaluation program incorporate audits? 

Does the evaluation program incorporate alternative resources? 

Does the evaluation program incorporate regulatory concerns? 

Have evaluators answered the question “What is the purpose of the

evaluation?” 

Have evaluators answered the question “What questions need to be

answered to make an informed decision during this evaluation?” 

Have evaluators answered the question “What information needs to be

available to answer the pertinent questions in this evaluation?” 

Have evaluators answered the question “What is the best way to 

capture the information needs of this evaluation?” 

Have evaluators decided whether the organization hopes to measure its

performance against past performance, peer organizations, or other

norms or standards? 

Do decision-makers recognize that the value of maintenance activities is

not always measurable in terms of simple “dollars saved”? 

EVALUATING FACILITIES MAINTENANCE PROGRAMS CHECKLIST

More information about accomplishing checklist points can be found on the page listed in the right-hand column.

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APPENDIX A 

CHAPTER CHECKLISTS

APPENDIX A 133

The following is a list of all checklists included in this Planning Guide. More information about accomplishing

checklist points can be found on the pages listed in the right-hand column.

Are top-level decision-makers aware that school facilities

maintenance affects the instructional and financial well-being

of the organization? 

Are top-level decision-makers aware that the occurrence of

facilities problems (and lack thereof) is most closely associated

with organizationally controlled issues such as staffing levels,

staff training, and other management practices? 

Are top-level decision-makers aware that having a coordinated

and comprehensive maintenance plan is the first and most

important step in exercising control over the destiny of the

organization’s facilities? 

Has facilities maintenance been given priority status within the

organization, as evidenced by top-level decision-makers’ commitment to read this Planning Guide and refer to these guidelines while planning and coordinating facilities maintenance? 

Do the organization’s facilities maintenance decision-makers include school administrators, facilities/custodial 

representatives, teachers, parents, students, and community

members? 

CHAPTER 2

Is there a facilities maintenance plan? 

Is facilities maintenance planning a component of 

overall organizational planning? 

Does the facilities maintenance plan include long- and shortterm objectives, budgets, and timelines? 

Have potential stakeholders in the facilities maintenance 

planning process been identified? 

Have appropriate avenues for publicizing the facilities maintenance planning process to staff and community stakeholders

been investigated and undertaken? 

Have representative members of stakeholder groups been invited to participate in the facilities maintenance planning process? 

Have representative members of stakeholder groups been

selected fairly for participation in the facilities maintenance

planning process? 

CHECKPOINTS PERSON ACCOMPLISHED PAGE

ASSIGNED YES NO

CHAPTER 1

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CHAPTER 2 continued

Have individual views and opinions been a welcomed aspect

of the consensus-building process? 

Have stakeholders been included in follow up efforts to 

document and implement decisions? 

Has a vision statement for school facilities maintenance been

constructed? 

Is the vision statement for school facilities maintenance

aligned with the vision and plans of the rest of the 

organization? 

Is the vision statement closely related to the day-to-day 

operations of the facilities maintenance staff? 

Have comprehensive, accurate, and timely school 

facilities data been used to inform the planning process 

(see also Chapter 3)? 

CHAPTER 3

Have district planners scheduled a facility audit? 

Has a chief auditor been selected (based on expertise, 

perspective, experience, and availability)? 

Has a qualified auditing team been assembled? 

Has the scope of work been identified for the audit (i.e., how

detailed and comprehensive should the audit be)? 

Has a data collection system (e.g., collection forms) been

selected for the facilities audit? 

Has an automated data input system been selected as

resources allow? 

Have audit findings been submitted in an electronic format

that can be manipulated by district users? 

Have audit findings been reviewed by facilities managers for

accuracy and quality? 

Are the findings from the facilities audit being stored 

securely as valuable organizational assets (e.g., 

redundantly)? 

Has an automated document imaging system been 

implemented as resources allow? 

Has a Computerized Maintenance Management System 

been installed in any organization that has more than 

500,000 ft2 of facilities to manage? 

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CHAPTER 3 continued

Are facilities data being used to inform policy-making, 

short- and long-term planning, and day-to-day operations 

as appropriate? 

Have facilities been commissioned, re-commissioned, or

retro-commissioned as necessary? 

Have commissioning, re-commissioning, and retro-commissioning been planned to include seasonal analysis of systems? 

Have commissioning, re-commissioning, and retro-commissioning been planned according to the Energy Smart Schools

recommendations?

Have facilities audit findings been used to establish 

benchmarks for measuring equipment life and maintenance

progress? 

CHAPTER 4 

Do facilities planners recognize that occupant safety is always

their overarching priority?

Has the organization contacted regulatory agencies 

(e.g., the EPA), the U.S. Department of Education, its state

department of education, professional associations, and 

peer institutions to obtain information about applicable 

environmental regulations?

Does the organization have a plan for responsibly managing

indoor air quality?

Does the organization have a plan for responsibly managing

asbestos?

Does the organization have a plan for responsibly managing

water quality and use?

Does the organization have a plan for responsibly managing

waste handling and disposal?

Does the organization have a plan for responsibly managing

CFCs and HCFCs? 

Does the organization have a plan for responsibly managing

emergency power systems?

Does the organization have a plan for responsibly managing

hazardous materials? 

Does the organization have a plan for responsibly managing

integrated pest management?

Does the organization have a plan for responsibly managing

lead paint?

Does the organization have a plan for responsibly managing

mercury?

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CHAPTER 4 continued

Does the organization have a plan for responsibly managing

personal protective equipment?

Does the organization have a plan for responsibly managing

PCBs?

Does the organization have a plan for responsibly managing

radon?

Does the organization have a plan for responsibly managing

playgrounds?

Does the organization have a plan for responsibly managing

storm water runoff?

Does the organization have a plan for responsibly managing

underground storage tanks?

Does the organization have a plan for introducing environmentally friendly school concepts to new construction and

renovation projects?

Does the organization have a plan for responsibly managing

locking systems?

Does the organization have a plan for protecting equipment?

Does the organization have a plan for ensuring pedestrian

and vehicle visibility?

Does the organization have a plan for policing/securing 

facilities?

Does the organization have a plan for responsibly managing

fire protection? 

Does the organization have a plan for protecting communications systems? 

Does the organization have a plan for responsibly dealing

with potential crises and disasters? 

CHAPTER 5

Do district planners recognize the four major components 

of an effective facilities maintenance program: emergency

(responsive) maintenance, routine maintenance, preventive

maintenance, and predictive maintenance?

Do district planners recognize that preventive maintenance

is the most effective approach to sound school facility

maintenance?

Has a comprehensive facilities audit (see Chapter 3) been performed before instituting a preventive maintenance program?

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CHAPTER 5 continued

For districts that are instituting preventive maintenance 

for the first time, has an appropriate system (e.g., heating 

or cooling systems) been identified for piloting before 

commencing with a full-scale, district-wide program?

Have manufacturer supplied user manuals been examined 

for guidance on preventive maintenance strategies for each

targeted piece of equipment?

Are records of preventive maintenance efforts maintained?

Has the schedule for preventive maintenance activities been

coordinated with the routine maintenance schedule so as to

minimize service interruptions?

Does the organization have a plan for responsibly managing

access control?

Does the organization have a plan for responsibly managing

boilers?

Does the organization have a plan for responsibly managing

electrical systems?

Does the organization have a plan for responsibly managing

energy use?

Does the organization have a plan for responsibly managing

fire alarms?

Does the organization have a plan for responsibly managing

floor coverings?

Does the organization have a plan for responsibly managing

gym floors?

Does the organization have a plan for responsibly managing

HVAC Systems?

Does the organization have a plan for responsibly managing

hot water heaters?

Does the organization have a plan for responsibly managing

kitchens?

Does the organization have a plan for responsibly managing

painting projects?

Does the organization have a plan for responsibly managing

plumbing?

Does the organization have a plan for responsibly managing

public address systems and intercoms?

Does the organization have a plan for responsibly managing

roof repairs?

Does the organization have a plan for responsibly managing

water softener systems?

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CHAPTER 5 continued

Has organization management determined its expectations for

custodial services?

Have facilities managers staffed the custodial workforce at 

a level that can meet the organization’s expectations for its

custodial service?

Has a chain of command for custodial staff been determined?

Has a suitable approach to custodial services (e.g., area 

cleaning versus team cleaning) been selected to meet the 

organization’s expectations for custodial service?

When planning grounds management, have grounds 

been defined as “corner pin to corner pin” for all property,

including school sites, remote locations, the central office, 

and other administrative or support facilities?

Have areas of special concern (e.g., wetlands, caves, mine

shafts, sinkholes, sewage plants, historically significant sites

and other environmentally sensitive areas) been identified 

and duly considered for grounds management?

Does the organization have a plan for responsibly managing

fertilizer and herbicide use?

Does the organization have a plan for responsibly managing

watering and sprinkler systems (e.g., the use of recycled

water/gray water for plumbing, watering fields)?

Does the organization have a plan for responsibly managing

drainage systems?

Does the organization have a plan for responsibly managing

“rest time” for fields/outdoor areas?

Does the organization have a plan for responsibly managing

the costs and benefits of flowerbeds?

Does the organization have a plan for responsibly managing

the use of the grounds as a classroom (e.g., “science courtyards” and field laboratories)?

Is the Maintenance & Operations Department organized and

administered to best meet the needs of the maintenance plan?

Does the maintenance and operations staff take time to 

market its efforts and successes to the rest of the organization?

Are facilities managers proactive with their communications to

and management of community groups (e.g., PTAs, booster clubs)?

Has an automated work order system (e.g., a Computerized

Maintenance Management System or CMMS as discussed 

in Chapter 3) been instituted within the organization?

Does the CMMS incorporate the basic features of a “best

practice” system?

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CHAPTER 5 continued

Do staff in every building and campus in a district know the

procedures for initiating a work order request?

Is the ability to officially submit a work order limited to 

a single person at each site (who can evaluate the need for

work prior to sending it)?

Does a supervisor evaluate (either by random personal 

assessment or customer feedback) whether the quality of work

meets or exceeds departmental standards before “closing out”

a work order?

Is all information about a completed work order maintained 

in a database for future historical and analytical use upon its

completion?

Is the work order system streamlined so as to minimize the

number of people involved in work order delivery, approval,

and completion as is reasonable for managing the process?

Has an automated building use scheduling system been 

instituted within the organization?

Has the organization investigated the use of a “consignment

cabinet” as a tool for storing supplies and parts in a cost-effective manner?

Has the organization investigated the use of “open purchase

orders” as a tool for purchasing supplies and parts in a 

cost-effective manner?

Have appropriate control checks been placed on supply 

storage and purchasing systems?

Have planners considered the costs and benefits of both local

and central site storage for supplies and parts?

Has equipment selection been standardized throughout the

district (as possible and necessary) in order to save on storage

space and costs associated with increased staff training for

servicing multiple brands?

Are chemical dispensers used to automatically mix and 

conserve cleaning agents?

Have performance-based specifications been introduced 

to procurement contracts for the purpose of standardizing

equipment purchasing?

Have planners considered the costs and benefits of both the

item-by-item (building block) and top-down approaches to

renovation and construction planning?

When selecting an architect to help plan a renovation or 

construction project, have planners considered the firm’s 

experience designing environmentally-friendly schools?

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140 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

CHECKPOINTS PERSON ACCOMPLISHED PAGE

ASSIGNED YES NO

CHAPTER 5 continued

Has a qualified, yet experientially diverse, project team be

identified, including business personnel, maintenance staff,

principals, teachers, construction professionals, architects,

engineers, and general contractors?

Does the project team meet to review all plans, construction

documents, and decisions throughout development (e.g., at 25,

50, 75 and 100 percent complete)?

Do members of the maintenance and operations department

(or locally hired and trusted plumbers, electricians, etc.) visit

the construction site on a routine basis to observe the quality

of the work, monitor the placement of valves and switches,

and verify the overall progress of the project?

Do the chief project officer and the project architect, general

contractor, and subcontractors meet on a weekly basis to 

discuss project progress and obstacles?

Are the results of all renovation/construction meetings well

documented and archived?

Upon the renovation or construction project being designated

“substantially complete,” did the architect prepare a “punch

list” to identify components that are not yet complete (or

which do not meet the quality standards)? 

Has the organization retained the last of its payments to the

contractor in order to ensure that the balance of work on the

“punch list” is completed in a timely manner?

Has the renovated or newly constructed facility been 

commissioned by a third-party specialist?

CHAPTER 6

Have job descriptions been developed for all maintenance and

operations positions?

Do job descriptions describe “duties and responsibilities” 

accurately and in detail?

Do job descriptions accurately describe working conditions?

Do job descriptions accurately describe the physical 

requirements of the position?

Do job descriptions comply with equal opportunity laws?

Do job descriptions accurately describe the educational

requirements of the position?

Do job descriptions accurately describe the credential and

licensure requirements of the position?

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APPENDIX A 141

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ASSIGNED YES NO

CHAPTER 6 continued

Do job descriptions accurately describe equipment used in 

the position?

Do job descriptions accurately describe at-will versus 

unionized requirements of the position?

Do job descriptions accurately describe channels of authority

for the position?

Do job descriptions accurately describe evaluation 

mechanisms for the position?

Do job descriptions include the phrase “and other duties as

assigned”?

Before interviewing candidates, have the characteristics of the

“ideal” candidate been identified?

After selecting the preferred candidate, but before extending

an offer of employment, have the applicant’s references been

contacted?

After selecting the preferred candidate, but before extending

an offer of employment, has a criminal background check

been performed on the applicant?

After selecting the preferred candidate, but before extending

an offer of employment, has the applicant provided evidence

of employment eligibility?

After extending an offer of employment, has the applicant provided all information needed to complete a personnel record?

After extending an offer of employment, has the applicant

provided all information needed to satisfy payroll needs?

After selecting the preferred candidate, but before extending

an offer of employment, has the applicant provided required

medical and health records?

Do all newly hired employees undergo staff training upon 

initially joining the organization?

Does training for new staff include an orientation to key 

district sites (e.g., emergency locations) and all sites at which

the individual will work?

Does training for new staff include an introduction to all

equipment the individual will be expected to use?

Does training for new staff include instructions about how 

to best perform the individual’s work tasks?

Does training for new staff include a clear description of 

precisely what the individual must accomplish in order to

meet the expectations of the job?

Does training for new staff include an explanation of all 

criteria on which the individual will be evaluated?

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142 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

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ASSIGNED YES NO

CHAPTER 6 continued

Is ongoing training provided to existing staff?

Is professional development offered to all staff on an ongoing

basis?

Are all training and professional development activities 

documented on videotape so that they can be showed to

other staff and at later times?

Have cost-sharing and cost-minimizing methods for training

programs and facilities been considered by management?

Have staff been trained to create and use a “Moment of Truth”

chart?

Have performance standards and evaluation criteria been

established for all staff positions?

Have performance standards and evaluation criteria been 

adequately explained to all staff?

Have managers been trained on how to perform fair, 

objective, accurate, and well-documented evaluations?

Have staff turnover rates been determined and analyzed?

Have the organization’s personnel policies been adjusted to

increase staff retention rates?

Have rewards and incentives been introduced to improve staff

morale and retention?

Do privatization procurements include precise specifications

for measuring performance?

Has an in-house staff member been assigned the duties of

“project manager” for each privatization contract?

CHAPTER 7

Do stakeholders realize that it will take time (months to years)

before they will be able to see improvements in a maintenance

program?

Is progress toward attaining the goals and objectives of the

maintenance department being explicitly assessed?

Does the evaluation program incorporate physical inspections?

Does the evaluation program incorporate work order systems?

Does the evaluation program incorporate user and 

user/customer feedback?

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APPENDIX A 143

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CHAPTER 7 continued

Does the evaluation program incorporate audits?

Does the evaluation program incorporate alternative

resources?

Does the evaluation program incorporate regulatory concerns?

Have evaluators answered the question “What is the purpose

of the evaluation?”

Have evaluators answered the question “What questions need

to be answered to make an informed decision during this 

evaluation?”

Have evaluators answered the question “What information

needs to be available to answer the pertinent questions in this

evaluation?”

Have evaluators answered the question “What is the best way

to capture the information needs of this evaluation?”

Have evaluators decided whether the organization hopes 

to measure its performance against past performance, peer

organizations, or other norms or standards?

Do decision-makers recognize that the value of maintenance

activities is not always measurable in terms of simple “dollars

saved”?

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144 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

The following is an alphabetical list of all Additional Resources included in this Guide.

Every effort has been made to verify the accuracy of all URLs listed in this Guide at the time of publication. 

If a URL is no longer working, try using the root directory to search for a page that may have moved. 

For example, if the link to http://www.epa.gov/iaq/schools/performance.html is not working, try

http://www.epa.gov/ and search for “IAQ.”

American School and University Annual Maintenance and Operations Cost Study

http://images.asumag.com/files/134/mo%20school.pdf 

An annual survey that reports median national statistics for various maintenance and operations costs, including salary/payroll, gas, electricity, utilities, maintenance and grounds equipment and supplies, outside contract labor, and other costs.

APPA Custodial Operation Self-Analysis Program

http://www.appa.org/pdffiles/AllCustodialAnalysis.pdf 

A survey and self-analysis tool designed to identify many of the variables that influence institutional custodial operations. It also

establishes standardized benchmarks for the industry. APPA (1998) The Association of Higher Education Facilities Officers,

Alexandria, VA, 15pp.

Asbestos

http://www.edfacilities.org/rl/asbestos.cfm 

A list of links, books, and journal articles about how asbestos abatement and management is conducted in school buildings,

and how schools should comply with federal regulations. National Clearinghouse for Educational Facilities, Washington, DC.

Association of Higher Education Facilities Officers (APPA)

http://www.appa.org/

An international association that maintains, protects, and promotes the quality of educational facilities. APPA serves and assists

facilities officers and physical plant administrators, conducts research and educational programs, produces publications, and

develops guidelines.

Basic Data Elements for Elementary and Secondary Education Information Systems

http://nces.ed.gov/pubsearch/pubsinfo.asp?pubid=97531

A document providing a set of basic student and staff data elements that serve as a common language for promoting the

collection and reporting of comparable education data to guide policy and assist in the administration of state and local

education systems. Core Data Task Force of the National Forum on Education Statistics (1997) National Center for

Education Statistics, Washington, DC.

Beyond Pesticides

http://www.beyondpesticides.org 

A nonprofit membership organization formed to serve as a national network committed to pesticide safety and the adoption of

alternative pest management strategies.

Budgeting for Facilities Maintenance and Repair Activities

http://www.nap.edu/books/NI000085/html/index.html

An online publication that focuses on how to estimate future facility maintenance and repair needs. Federal Facilities

Council, Standing Committee on Operations and Maintenance, National Research Council (1996) National Academy Press,

Washington, DC.

Building Commissioning 

http://www.edfacilities.org/rl/commissioning.cfm

A list of links, books, and journal articles about building commissioning. National Clearinghouse for Educational Facilities,

Washington, DC.

Building Commissioning Association 

http://www.bcxa.org

A professional association dedicated to the promotion of high standards for building commissioning practices.

APPENDIX B 

ADDITIONAL RESOURCES
APPENDIX B 145

Building Commissioning Handbook

http://www.appa.org/resources/publications

A book that focuses on building commissioning, including the roles of the consultant, contractor, test engineer, commissioning

agent, and owner; the process of equipment and systems performance testing; testing checklists; commissioning terms; and

guidance with regard to hiring a commissioning agent. Heinz, J.A. and Casault, R. (1996) The Association of Higher

Education Facilities Officers, Alexandria, VA, 311pp.

Building Evaluation Techniques

Step-by-step techniques for conducting an effective building assessment, including the evaluation of overall structural performance, spatial comfort, noise control, air quality, and energy consumption. Includes sample forms and checklists tailored

to specific building types. George Baird, et al. (1995) McGraw Hill, 207pp.

California Collaborative for High Performance Schools (ChiPS)

http://www.chps.net/

A group that aims to increase the energy efficiency of public schools in California by marketing information, service, and

incentive programs directly to school districts and designers. The goal is to facilitate the design of high-performance

schools—environments that are not only energy efficient, but also healthy, comfortable, well lit, and contain the amenities

needed for a quality education.

Carpet and Rug Institute (CRI)

http://www.carpet-rug.com/

The web site of the national trade association representing the carpet and rug industry. It is a source of extensive information about

carpets for consumers, writers, interior designers, facility managers, architects, builders, and building owners and managers, installation

contractors, and retailers. CRI also publishes the web site “Carpet in Schools” (http://www.carpet-schools.com/) to address topics such as

indoor air quality, allergies, and carpet selection, installation, and care. 

Children’s Environmental Health Network

http://www.cehn.org

A national multidisciplinary project dedicated to promoting a healthy environment and protecting children from environmental

hazards. The site presents a variety of useful publications and materials.

Cleaning & Maintenance Management Online

http://www.cmmonline.com/Home.asp

The online home of Cleaning & Maintenance Management magazine, which features articles, buyers guides, key topics,

and a calendar.

Cleaning and Maintenance Practices 

http://www.edfacilities.org/rl/cleaning.cfm

A list of links, books, and journal articles about custodial standards and procedures, equipment, safety, and product directories for the cleaning and maintenance of schools and colleges.

Community Participation in Planning

http://www.edfacilities.org/rl/community_participation.cfm

A list of links, books, and journal articles about how community members can become involved in the planning and design

of school buildings and grounds. National Clearinghouse for Educational Facilities, Washington, DC.

Creating a Vision

http://www.nsba.org/sbot/toolkit/cav.html

An online toolkit from the National School Boards Association for creating a vision in school organizations.

Creating Safe Learning Zones: The ABC’s of Healthy Schools

http://www.childproofing.org/ABC.pdf

A primer prepared by the Healthy Buildings Committee of the Child Proofing Our Communities campaign to offer guidance about constructing, maintaining, and renovating healthy schools.

Custodial Methods and Procedures Manual

http://asbointl.org/Publications/PublicationCatalog/index.asp?s=0&cf=3&i=139 

A manual that discusses school facility cleaning and maintenance from the perspective of work management, physical assets

management, and resource management. A reference section contains guidelines and forms for custodial equipment storage and

care, as well as safety measures and employee management forms. Johnson, Donald R. (2000) Association of School Business

Officials International, Reston, VA, 96pp.
Custodial Staffing Guidelines for Educational Facilities

http://www.appa.org/resources/publications/pubs.cfm?Category_ID=2

A guide about custodial staffing in educational facilities that addresses custodial evaluation, special considerations, staff

development tools, and case studies. Appendices include information about custodial requirements, space classification,

standard space category matrices, standard activity lists, and audit forms. APPA (1998) The Association of Higher

Education Facilities Officers, Alexandria, VA, 266pp. 

Custodial Standards 

http://ehs.brevard.k12.fl.us/PDF%20files/custodial_standards_03.pdf

Guidelines that detail cleaning requirements for each area of a school, including classrooms, restrooms, cafeterias, gymnasiums, locker rooms, and corridors. Samples of assessment forms include emergency lighting, fire extinguisher inspection, air

conditioner maintenance/service log sheets, and monthly custodial preventive maintenance forms. Office of Plant

Operations and Maintenance (1998) Brevard Public Schools, Rockledge, FL, 44pp.

Deteriorating School Facilities and Student Learning 

http://www.ed.gov/databases/ERIC_Digests/ed356564.html

A report documenting that many facilities in American public schools are in disrepaira situation with implications on the

morale, health, and learning of students and teachers. Frazier, Linda M. (1993) ERIC Clearinghouse for Educational

Management, Eugene, OR.

Disaster Planning and Response

http://www.edfacilities.org/rl/disaster.cfm

A list of links, books, and journal articles about building or retrofitting schools to withstand natural disasters and terrorism,

developing emergency preparedness plans, and using school buildings to shelter community members during emergencies.

National Clearinghouse for Educational Facilities, Washington, DC.

Educational Performance, Environmental Management, and Cleaning Effectiveness in School Environments 

http://www.carpet-rug.com/pdf_word_docs/0104_school_environments.pdf 

A report demonstrating how effective cleaning programs enhance school and student self-image, and may promote higher

academic attendance and performance. Berry, Michael A. (2001) Carpet and Rug Institute, Dalton, GA.

Energy Design Guidelines for High Performance Schools

http://www.eren.doe.gov/energysmartschools/order.html

A manual written by the U.S. Department of Energy to help architects and engineers design or retrofit schools in an 

environmentally friendly manner. U.S. Department of Energy, Washington, DC. 

Energy Savings

http://www.edfacilities.org/rl/energy.cfm

A list of links, books, and journal articles providing extensive resources on various methods of heating, cooling, and maintaining

new and retrofitted K-12 school buildings and grounds. National Clearinghouse for Educational Facilities, Washington, DC.

Energy Smart Schools

http://www.eren.doe.gov/energysmartschools/

An initiative by the U.S. Department of Energy to provide detailed information about how to increase school building 

energy efficiency and improve the learning environment. Includes a discussion of school facility commissioning.

Facilities Audit: A Process for Improving Facilities Conditions 

A handbook presenting a step-by-step approach to all phases of facility inspection. It is designed to help a facility manager

assess the functional performance of school buildings and infrastructure and provides information about how to quantify

maintenance deficiencies, summarize inspection results, and present audit findings for capital renewal funding. Kaiser,

Harvey (1993) APPA, The Association of Higher Education Facilities Officers, Washington, DC, 102pp.

Facilities Assessment

http://www.edfacilities.org/rl/facility_assessment.cfm

A list of links, books, and journal articles about methods for assessing school buildings and building elements for planning

and management purposes. National Clearinghouse for Educational Facilities, Washington, DC.

Facilities Evaluation Handbook: Safety, Fire Protection, and Environmental Compliance, 2nd Edition 

A guide to help plant and facilities managers conduct inspections and evaluations of their facilities in order to identify and

address problems in the areas of maintenance, safety, energy efficiency, and environmental compliance. Petrocelly, K. L.

and Thumann, Albert (1999) Fairmont Press, Lilburn, GA, 200pp.

146 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES
APPENDIX B 147

Facilities Information Management: A Guide for State and Local School Districts

http://nces.ed.gov/forum/publications.asp

A publication that defines a set of data elements that are critical to answering basic policy questions related to elementary

and secondary school facility management. Facilities Maintenance Task Force, National Forum on Education Statistics

(2003) National Center for Education Statistics, Washington, DC.

Facilities Management: A Manual for Plant Administration

http://www.appa.org/resources/publications/pubs.cfm?Category_ID=1 

A four-book publication about managing the physical plant of campuses. Its 67 chapters cover general administration and

management, maintenance and operation of buildings and grounds, energy and utility systems, and facilities planning, design

and construction. Middleton, William, Ed. (1997) APPA: Assn. of Higher Education Facilities Officers, Alexandria, VA. 

Facilities Management Software 

http://www.edfacilities.org/rl/software.cfm

A resource list of links, books, and journal articles describing and evaluating computer-aided facilities maintenance management systems for handling priorities, backlogs, and improvements to school buildings. National Clearinghouse for

Educational Facilities, Washington, DC.

FacilitiesNet 

http://www.facilitiesnet.com/ 

A commercial web site for facilities professionals sponsored by Trade Press Publishing Corporation and developed by the editors of Building Operating Management and Maintenance Solutions magazines. It includes a chat room on educational facilities.

Facility Management 

http://www.facilitymanagement.com/

The online home of American School and Hospital Maintenance Magazine. This site is intended to help facility managers

stay informed about current issues and the latest products.

Floor Care

http://www.edfacilities.org/rl/floor_care.cfm

A list of links, books, and journal articles about the maintenance of a variety of floor coverings in K-12 school classrooms,

gymnasiums, science labs, hallways, and stairs. National Clearinghouse for Educational Facilities, Washington, DC.

FMEP: Facilities Management Evaluation Program

http://www.appa.org/FMEP/

A program to provide the chief facilities officer at APPA member institutions with the opportunity to receive an evaluation by

a team of APPA members from organizations with similar educational, financial, and physical characteristics. This document is

designed to help an institution assess the value of this program and the commitment required to conduct such an evaluation.

Good School Maintenance: A Manual of Programs and Procedures for Buildings, Grounds and Equipment

http://www.iasb.com/shop/details.cfm?Item_Num=GSM

A manual that describes the fundamentals of good school maintenance, including managing the program and staying

informed about environmental issues. Procedures for maintaining school grounds are detailed, as are steps for maintaining

mechanical equipment, including heating and air-conditioning systems, sanitary systems and fixtures, sewage treatment plants,

and electrical systems. Harroun, Jack (1996) Illinois Association of School Boards, Springfield, IL, 272pp.

Green Schools

http://www.ase.org/greenschools/

A comprehensive program designed for K-12 schools to create energy awareness, enhance experiential learning, and save

schools money on energy costs.

Grounds Maintenance

http://www.edfacilities.org/rl/grounds_maintenance.cfm

A resource list of links, books, and journal articles about managing and maintaining K-12 school and college campus grounds and

athletic fields. National Clearinghouse for Educational Facilities, Washington, DC.

Guide for School Facility Appraisal

A guide that provides a comprehensive method for measuring the quality and educational effectiveness of school facilities.

It can be used to perform a post-occupancy review, formulate a formal record, highlight specific appraisal needs, examine

the need for new facilities or renovations, or serve as an instructional tool. Hawkins, Harold L. and Lilley, H. Edward

(1998) Council for Educational Facility Planners International, Scottsdale, AZ, 52pp.
Guide to School Renovation and Construction: What You Need to Know to Protect Child and Adult Environmental Health 

A guide that presents cautionary tips for protecting children's health during school renovation and construction projects. 

It includes a checklist of uniform New York state safety standards during school renovations and construction, and several

examples of the potential negative consequences of disregarding the risks of renovation and construction on occupant

health. (2000) Healthy Schools Network, Inc., Albany, NY, 6pp.

Hazardous Materials

http://www.edfacilities.org/rl/hazardous_materials.cfm

A list of links, books, and journal articles about the identification, treatment, storage, and removal of hazardous materials

found in school buildings and grounds. National Clearinghouse for Educational Facilities, Washington, DC.

Healthier Cleaning & Maintenance: Practices and Products for Schools 

A paper that provides guidance to schools with regard to selecting, purchasing, and using environmentally preferable cleaning products. Healthy Schools Network, Inc. (1999) New York State Association for Superintendents of School Buildings

and Grounds, Albany, NY, 8pp.

Healthy School Handbook: Conquering the Sick Building Syndrome and Other Environmental Hazards In and Around

Your School 

A compilation of 22 articles concerning "sick building syndrome" in educational facilities, with attention given to determining whether a school is sick, assessing causes, initiating treatment, and developing interventions. Miller, Norma L., Ed.

(1995) National Education Association, Alexandria, VA, 446pp.

Healthy Schools Network, Inc. 

http://www.healthyschools.org/ 

A not-for-profit education and research organization dedicated to securing policies and actions that will create schools that

are environmentally responsible for children, staff, and communities. 

High Performance School Buildings 

http://www.edfacilities.org/rl/high_performance.cfm

A resource list of links and journal articles describing "green design," a sustainable approach to school building design, 

engineering, materials selection, energy efficiency, lighting, and waste management strategies. National Clearinghouse for

Educational Facilities, Washington, DC.

HVAC Systems 

http://www.edfacilities.org/rl/hvac.cfm

A resource list of links, books, and journal articles about HVAC systems in school buildings, including geothermal heating

systems. National Clearinghouse for Educational Facilities, Washington, DC.

IAQ Overview in Schools and Preliminary Design Guide

http://www.healthybuildings.com/s2/Schools%20-%20IAQ%20Design%20Guide%2001.01.pdf 

An educational tool and reference manual for school building design, engineering, and maintenance staff. Healthy Buildings

International, Inc. (1999) Healthy Buildings International, Inc., Fairfax, VA.

Impact of Facilities on Learning

http://www.edfacilities.org/rl/impact_learning.cfm

A list of links, books, and journal articles examining the association between student achievement and the physical 

environment of school buildings and grounds. The National Clearinghouse for Educational Facilities, Washington, DC.

Indoor Air Quality (IAQ)

http://www.edfacilities.org/rl/iaq.cfm

A list of links, books, and journal articles about indoor air quality issues in K-12 school buildings, including building materials, maintenance practices, renovation procedures, and ventilation systems. National Clearinghouse for Educational

Facilities, Washington, DC.

Indoor Air Quality and Student Performance

http://www.epa.gov/iaq/schools/performance.html

A report examining how indoor air quality (IAQ) affects a child's ability to learn, including case studies of schools that 

successfully addressed their indoor air problems, lessons learned, and long-term practices and policies that have emerged.

Indoor Environments Division, U.S. Environmental Protection Agency (2000) U.S. Environmental Protection Agency,

Washington, DC.

148 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES
APPENDIX B 149

Indoor Air Quality (IAQ) Tools for Schools

http://www.epa.gov/iaq/schools/

A U.S. Environmental Protection Agency kit showing schools how to carry out a practical plan for improving indoor air problems at little or no cost by using straightforward activities and in-house staff. The kit includes checklists for school employees,

an IAQ problem-solving wheel, a fact sheet on indoor air pollution issues, and sample policies and memos.

Integrated Pest Management

http://www.edfacilities.org/rl/pests.cfm

A list of links, books, and journal articles about integrated pest management guidelines, the use of pesticides, staff training,

and program implementation and management in school buildings and grounds. National Clearinghouse for Educational

Facilities, Washington, DC.

International Facility Management Association (IFMA)

http://www.ifma.org/

The web site of a group that is dedicated to promoting excellence in the management of facilities. IFMA identifies trends,

conducts research, provides educational programs, and assists corporate and organizational facility managers in developing

strategies to manage human, facility, and real estate resources.

Janitorial Products: Pollution Prevention Project

http://www.westp2net.org/Janitorial/jp4.htm

A site sponsored by the U.S. Environmental Protection Agency that includes fact sheets, product sample kits, purchasing specifications, and other materials to advise users on the health, safety, and environmental consequences of 

janitorial products.

Keep Schools Safe

http://www.keepschoolssafe.org

A site resulting from a partnership between the National Association of Attorneys General and the National School Boards

Association to address the subject of school violence. A bibliography on school violence resources is provided, as is information specific to school security, environmental design, crisis management, and law enforcement partnerships.

Lead-Safe Schools 

http://socrates.berkeley.edu/~lohp/Projects/Lead-Safe_Schools/lead-safe_schools.html 

A site established by the Labor Occupational Health Program at the University of California at Berkeley to house publications about lead-safe schools, provide training to school maintenance staff, and offer a telephone hotline to school districts

and staff.

LEEDTM Rating System 

http://www.usgbc.org/ 

A self-assessing system designed for rating new and existing commercial, institutional, and high-rise residential buildings. 

It evaluates environmental performance over a building’s life cycle and provides a definitive standard for what constitutes 

a “green” building. LEED is based on accepted energy and environmental principles and strikes a balance between known

effective practices and emerging concepts.

Maintenance & Operations Costs 

http://www.edfacilities.org/rl/mo_costs.cfm

A list of links, books, and journal articles citing national and regional maintenance and operations cost statistics and 

cost-reduction measures for the upkeep of school buildings and grounds. National Clearinghouse for Educational Facilities,

Washington, DC.

Maintenance & Operations Solutions: Meeting the Challenge of Improving School Facilities 

http://www.asbointl.org/Publications/

An examination of the impact current maintenance and operations (M&O) practices have on U.S. school performance

and possible avenues for improvement through the judicious use of technology and improved methodology. Facilities

Project Team, Association of School Business Officials International (2000) Association of School Business Officials

International, Reston, VA.

Maintenance Planning, Scheduling and Coordination 

A book focusing on the preparatory tasks that lead to effective utilization and application of maintenance resources: planning, parts acquisition, work measurement, coordination and scheduling. Nyman, Don and Levitt, Joel (2001) Industrial

Press, New York, NY, 320pp. 
Mercury

http://www.epa.gov/mercury/index.html

A web site of the U.S. EPA intended to provide information about reducing the amount of mercury in the environment. It

includes both general and technical information about mercury and mercury-reduction strategies.

Mercury in Schools and Communities

http://www.newmoa.org/newmoa/htdocs/prevention/mercury/schools/

Information from the Northeast Waste Management Officials’ Association (NEWMOA), which was funded by the

Massachusetts Department of Environmental Protection and the Massachusetts Executive Office of Environmental Affairs, 

to assist in identifying and removing elemental mercury and products containing mercury from schools and homes.

National Best Practices Manual for Building High Performance Schools 

http://www.eren.doe.gov/energysmartschools/order.html 

A manual by the U.S. Department of Energy to help architects and engineers design or retrofit schools in an environmentally friendly manner. U.S. Department of Energy, Washington, DC.

National Clearinghouse for Educational Facilities (NCEF) 

http://www.edfacilities.org

A web site that includes reviews of and links to cutting-edge education facilities news; a calendar of conferences, workshops, and other facilities management-related events; a gallery of photos showing off innovative and provocative building

design and construction from real schools across the nation; categorized and abstracted resource lists with links to full

length, online, publications; and pointers to other organizations that provide online and off-line resources about education

facilities management. NCEF can also be reached toll free at 888-552-0624.

National Program for Playground Safety

http://www.uni.edu/playground/about.html

A site that describes playground safety issues, safety tips and FAQs, statistics and additional resources, and action plans for

improving playground safety.

National School Plant Management Association (NSPMA) 

http://www.nspma.com/

A membership organization that facilitates the exchange of information about school plant management, maintenance and care.

National School Safety Center

http://www.nssc1.org/ 

An internationally recognized resource for school safety information, training, and violence prevention. The web site 

contains valuable summaries of school safety research, including contact information for locating the studies.

Occupational Safety and Health Administration (OSHA)

http://www.osha.gov/ 

The web site of OSHA, which has as its core mission to save lives, prevent injuries, and protect the health of America’s

workers. To accomplish this, federal and state governments works in partnership with the more than 100 million working

men and women and their 6.5 million employers who are covered by the Occupational Safety and Health Act of 1970.

Operation and Maintenance Assessments: A Best Practice for Energy-Efficient Building Operations

http://www.peci.org/om/assess.pdf

A publication that describes what an operations and maintenance assessment is, who should perform it, the benefits of an

assessment, what it costs, and the process of performing an assessment. Includes a glossary of terms, sample site-assessment

forms, a request for proposal checklist, sample procedures and plan, and a sample master log of findings. (1999) Portland

Energy Conservation, Inc. Portland, OR, 54pp.

Operational Guidelines for Grounds Management

http://www.appa.org/resources/publications/pubs.cfm?Category_ID=2 

A comprehensive guide to maintaining and managing grounds and landscaping operations. Chapters discuss environmental

stewardship, broadcast and zone maintenance, grounds staffing guidelines, contracted services, position descriptions, benchmarking, and environmental issues and laws. Feliciani, et al. (2001) APPA: Assn. of Higher Education Facilities Officers,

Alexandria, VA, 159pp.

Plant Operations Support Program 

http://www.ga.wa.gov/plant

A self-sustaining consortium comprised of facility managers from Washington state agencies, educational facilities, municipalities, and port districts. This web site includes a library of practices, policies, research studies, and other references on subjects

including emergency preparedness, energy savings, maintenance management, IAQ, and accessibility.

150 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES
APPENDIX B 151

Playgrounds

http://www.edfacilities.org/rl/playgrounds.cfm

A list of links, books, and journal articles about playground design for varying age levels, including resources on safety,

accessibility, equipment, surfaces, and maintenance. National Clearinghouse for Educational Facilities, Washington, DC.

Poisoned Schools: Invisible Threats, Visible Actions

http://www.childproofing.org/poisonedschoolsmain.html

A report that includes more than two dozen case studies of schools built on or near contaminated sites or where children

have otherwise been exposed to pesticide use in and around school buildings. Gibbs, Lois (2001) Center for Health,

Environment and Justice, Child Proofing Our Communities Campaign, Falls Church, VA, 80pp.

Portland Energy Conservation, Inc. (PECI)

http://www.peci.org/ 

Provides information about commissioning conferences, case studies, procedural guidelines, specifications, functional tests,

and the model commission plan and guide specifications.

Practical Guide for Commissioning Existing Buildings

http://www.ornl.gov/~webworks/cppr/y2001/rpt/101847.pdf 

A document that describes commissioning terminology, the costs and benefits of commissioning, retro-commissioning, steps

to effective commissioning, and the roles of team members in the commissioning process. Haasl, T. and Sharp, T. (1999) U.S.

Department of Energy, Washington, DC.

Principal’s Guide to On-Site School Construction

http://www.edfacilities.org/pubs/construction.html

A publication that explores what school principals should know when construction takes place in or near a school

while it is in session. It covers pre-construction preparation, including how to work with architects/engineers and

other school staff; actions to take during construction, including proper information dissemination and student 

and property protection; and post-construction activities, including custodial and maintenance staff training and 

post-occupancy evaluations. Brenner, William A. (2000) National Clearinghouse for Educational Facilities, 

Washington, DC, 5pp.

PECI Model Commissioning Plan and Guide Specifications

http://www.peci.org/cx/mcpgs.html

A resource that details the commissioning process for new equipment during both the design and construction phases. 

It goes beyond commissioning guidelines by providing boilerplate language, content, format, and forms for specifying and

executing commissioning.

Preventive Maintenance

http://www.edfacilities.org/rl/maintenance.cfm

A resource list of links, books, and journal articles about how to maximize the useful life of school buildings through preventive

maintenance, including periodic inspection and seasonal care. National Clearinghouse for Educational Facilities, Washington, DC.

Preventive Maintenance Guidelines for School Facilities K-12

http://www.rsmeans.com/index.asp

A five-part manual that is intended to increase the integrity and support the longevity of school facilities by providing 

easy-to-use preventive maintenance system guidelines. It includes a book, wall chart, and electronic forms designed to help

maintenance professionals identify, assess, and address equipment and material deficiencies before they become costly 

malfunctions. Maciha, John C, et al. (2001) R.S. Means Company, Inc., Kingston, MA, 232pp. 

Project Management

http://www.edfacilities.org/rl/project_management.cfm

A list of links, books, and journal articles about the management of school construction projects by school administrators,

business officials, board members, and principles. National Clearinghouse for Educational Facilities, Washington, DC.

Radon Prevention in the Design and Construction of Schools and Other Large Buildings

http://www.epa.gov/ordntrnt/ORD/NRMRL/Pubs/1992/625R92016.pdf

A report outlining ways in which to ameliorate the presence of radon in schools buildings. The document presents the

underlying principles (suitable for a general audience) and also provides more technical details for use by architects, 

engineers, and builders. U.S. Environmental Protection Agency (1994), Washington, DC, 51pp. 
Roof Maintenance and Repair 

http://www.edfacilities.org/rl/roof_maintenance.cfm

A list of links, books, and journal articles about maximizing the life-cycle performance of school roofs. Roof inspection strategies, scheduling, documentation, and repair resources are also addressed. National Clearinghouse for Educational Facilities,

Washington, DC.

The Rural and Community Trust 

http://www.ruraledu.org/facilities.html

The web site of the Rural and Community Trust, which works with many small towns and counties in which the school

remains the center of the community. The Rural and Community Trust provides a network for people who are working 

to improve school-community facilities, increase community participation in the facilities design process, and expand the

stakeholders these public resources can serve.

Safe and Drug-Free Schools Program

http://www.ed.gov/offices/OESE/SDFS

A program dedicated to reducing drug use, crime, and violence in U.S. schools. The web site contains many full-text publications on school safety and violence prevention.

Safeguarding Your Technology 

http://nces.ed.gov/pubsearch/pubsinfo.asp?pubid=98297

Guidelines to help educational administrators and staff understand how to effectively secure an organization's sensitive

information, critical systems, computer equipment, and network access. Technology Security Task Force, National Forum

on Education Statistics (1998) National Center for Education Statistics, Washington, DC.

Safety and Security Design

http://www.edfacilities.org/rl/safety_security.cfm

A list of links, books, and journal articles about designing safer schools, conducting safety assessments, implementing 

security technologies, and preventing crime through environmental design. National Clearinghouse for Educational

Facilities, Washington, DC.

Safety in Numbers: Collecting and Using Crime, Violence, and Discipline Incident Data to Make a Difference in Schools

http://nces.ed.gov/pubsearch/pubsinfo.asp?pubid=2002312 

Guidelines for use by school, district, and state staff to improve the effectiveness of disciplinary-incident data collection and

use in schools. It provides recommendations on what types of data to collect and how the data can be used to improve

school safety. Crime, Violence and Discipline Task Force, National Forum on Education Statistics (1998) National Center

for Education Statistics, Washington, DC.

School Design Primer: A How-To Manual for the 21st Century 

http://www.edfacilities.org/pubs/li/little.html

A resource that describes the school planning and design process for decision-makers (e.g., superintendents, planning 

committee members, architects, and educators) who are new to school construction and renovation projects.

SchoolDude 

http://www.schooldude.com/

A site that connects school facility professionals with each other to solve problems, share best practices, and improve 

learning environments. This includes tools for work management, information, and resources, as well as online 

procurement for equipment and school supplies. Some sections are accessible only to fee-paying members.

SchoolFacilities.com

http://www.schoolfacilities.com

A professional support network for school facility administrators and support personnel that provides school-related news,

products, resources, and facility management tools.

SchoolHouse Plant Operation & Maintenance Resource Center: School House Library

http://faststart.com/cps/Library.html

An online library containing reports dealing with various aspects of plant operation and maintenance that relate to the

operation of school buildings.

Schools as Centers of Community: A Citizen’s Guide for Planning and Design 

http://www.cefpi.org/pdf/schools.pdf

This guide provides parents and other citizens with ten examples of innovative school designs, and outlines a step-by-step

process about how parents, citizens and community groups can get involved in designing new schools. Bingler, Stephen

and Quinn, Linda (2000) U.S. Department of Education.

152 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES
Software for Facilities Management

http://www.edfacilities.org/rl/software.cfm 

A resource list of links, books, and journal articles about computer-aided facilities maintenance management systems for handling

priorities, backlogs, and improvements to school buildings. National Clearinghouse for Educational Facilities, Washington, DC.

Storm Water Runoff

http://www.epa.gov/fedsite/cd/stormwater.html

A list of Storm Water Management Regulatory Requirements provided by the U.S. EPA.

THOMAS Legislative Information on the Internet

http://thomas.loc.gov

A site maintained by the U.S. Congress to provide status reports on proposed legislation.

Underground Fuel Storage Tanks

http://www.cefpi.org/issue4.html

A briefing paper about the responsibilities associated with owning and securing an underground fuel storage tank.

McGovern, Matthew (1996) Council of Educational Facility Planners, International, Scottsdale, AZ, 5 pp. 

U.S. Environmental Protection Agency (EPA)

http://www.epa.gov/

The main web site of the EPA, whose mission is to protect human health and safeguard the natural environment – air,

water, and land – upon which life depends. The EPA works with other federal agencies, state and local governments, 

and Indian tribes to develop and enforce regulations under existing environmental laws. The web site includes an 

alphabetical index of topical issues available at http://www.epa.gov/ebtpages/alphabet.html. EPA Regional Office and

Linked State Environmental Departments can be found at http://www.epa.gov/epapages/statelocal/envrolst.htm.

U.S. Equal Employment Opportunity Commission (EEOC)

http://www.eeoc.gov 

The web site of the EEOC, which is charged with enforcing numerous employment-related federal statutes.

U.S. Green Building Council

http://www.usgbc.org

A web site intended to facilitate interaction among leaders in every sector of business, industry, government, and academia

with respect to emerging trends, policies, and products affecting “green building” practices in the United States.

U.S. Immigration and Naturalization Service (INS) 

http://www.ins.gov/

The web site of the INS, which is responsible for enforcing the laws regulating the admission of foreign-born persons 

(i.e., aliens) to the United States and for administering various immigration benefits, including the naturalization of qualified

applicants for U.S. citizenship.

A Visioning Process for Designing Responsive Schools

http://www.edfacilities.org/pubs/sanoffvision.pdf

A guide for helping stakeholders establish the groundwork for designing and building responsive, effective community

school facilities, including an explanation of the benefits of community participation and how to go about the process of

strategic planning, goal setting, articulating a vision, design generation, and strategy selection. Sanoff, Henry (2001) National

Clearinghouse for Educational Facilities, Washington, DC, 18pp.

APPENDIX B 153
Alabama State Department of Education: School Architect

& School Facilities

www.alsde.edu/text/sections/section_detail.asp?section=86&menu

=sections&footer=sections

Alaska Department of Education & Early Development:

Facilities

http://www.eed.state.ak.us/facilities/home.html

Arizona School Facilities Board 

http://www.sfb.state.az.us/

Arkansas Department of Education: Public School Finance

& Administration

http://arkedu.state.ar.us/directory/publicschool_finance.html

California Department of General Services: Office of Public

School Construction 

http://www.opsc.dgs.ca.gov/ 

Connecticut State Department of Education, Division of

Grants Management: School Construction 

http://www.state.ct.us/sde/dgm/sfu/index.htm

Delaware Department of Education: Facility Assessment

System

http://sitenet.doe.state.de.us/sitenet/welcome.htm 

Florida Department of Education: Office of Educational

Facilities 

http://www.firn.edu/doe/bin00012/home0012.htm

Georgia Department of Education: Facilities Services 

http://www.doe.k12.ga.us/facilities/facilities.asp 

Hawaii Department of Education: Facilities and 

Support Services 

http://fssb.k12.hi.us 

Illinois School Construction Grant Program 

http://www.cdb.state.il.us/schools/school1.htm

Illinois State Board of Education: School Business and

Support Services Division 

http://www.isbe.state.il.us/construction/default.htm

Indiana State Board of Education: School Facility Guidelines

http://www.board-of-education.state.in.us/constguide.html

Iowa Department of Education: School Infrastructure

http://www.state.ia.us/educate/ecese/asis/si/sr/index.html

Kentucky Department of Education: Division 

of Facilities Management 

http://www.kde.state.ky.us/odss/facility/default.asp

Maine Department of Education: School Facilities Services

and Transportation

http://www.state.me.us/education/const/homepage.htm

Maryland Public School Construction Program 

http://www.pscp.state.md.us/

Massachusetts Department of Education: School Building

Assistance

http://finance1.doe.mass.edu/sbuilding/1_sbuilding.html

Minnesota Department of Children, Families and Learning:

Facilities/Organization 

http://cfl.state.mn.us/FACILIT/facilit.htm

Mississippi Department of Education: Office of School

Building

http://www.mde.k12.ms.us/lead/osos/webpage.htm

Missouri Department of Elementary and Secondary

Education: School Governance and Facilities

http://www.dese.state.mo.us/divadm/govern/

New Hampshire Department of Education: Office of School

Building Aid

http://www.ed.state.nh.us/buildingAid/building.htm

New Jersey Department of Education: School Facilities

http://www.state.nj.us/njded/facilities/index.html

New Mexico Public School Capital Outlay

http://www.nmschoolbuildings.org/index.html 

New York State Education Department: Office of Facilities

Planning 

http://www.emsc.nysed.gov/facplan/

North Carolina Department of Public Instruction: School

Planning

http://www.schoolclearinghouse.org/

North Dakota Department of Public Instruction: School

Finance and Organization

http://www.dpi.state.nd.us/finance/index.shtm

Ohio School Facilities Commission 

http://www.osfc.state.oh.us

Pennsylvania Department of Education: School

Construction and Facilities

http://www.pde.state.pa.us/constr_facil/site/default.asp

154 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

APPENDIX C 

STATE SCHOOL FACILITIES WEB SITES

The following list is provided as a resource, but is not intended to be an exhaustive list of all facilities web sites available

from states and state departments of education. 

Every effort has been made to verify the accuracy of all URLs listed in this Guide at the time of publication. If a URL 

is no longer working, try using the root directory to search for a page that may have moved. For example, if the link to

http://www.epa.gov/iaq/schools/performance.html is not working, try http://www.epa.gov/ and search for “IAQ.”
APPENDIX C 155

Rhode Island Department of Education: Federal and State Funding, School Construction Aid

http://www.ridoe.net/funding/construction/schoolconstruction.htm

South Carolina Department of Education: Office of School Facilities

http://www.myscschools.com/offices/sf Texas Education Agency: Facility Funding and Standards

http://www.tea.state.tx.us/school.finance/facilities/index.html Vermont Department of Education: Programs and Services/

School Construction

http://www.state.vt.us/educ/new/html/pgm_construction.html Virginia Department of Education: Facility Services

http://www.pen.k12.va.us/VDOE/Finance/Facilities/ Washington State Board of Education: School Construction

Assistance Program

http://www.k12.wa.us/facilities/ West Virginia School Building Authority 

http://www.state.wv.us/wvsba/default.htm Wisconsin Department of Public Instruction: School

Management Services 

http://www.dpi.state.wi.us/dpi/dfm/sms/index.html Following is a list of state-specific web sites that are not

directly affiliated with state departments of education. 

Florida School Plant Management Association

http://www.fspma.com 

Iowa School Buildings and Grounds Association

http://www.isbga.org/ Kentucky School Plant Management Association

http://www.kspma.org/ 

Minnesota Association of School Maintenance Supervisors

http://www.masms.org/ 

Missouri School Plant Managers Association

http://www.mspma.com/ New Jersey School Buildings and Grounds Association 

http://www.njsbga.org/ New York State Association for Superintendents of School

Buildings and Grounds 

http://sbga.org/ 

Oklahoma School Plant Management Association 

http://www.ospma.org/ Tennessee School Plant Management Association 

http://www.tspma.com/ Washington Association of Maintenance and Operations Administrators

http://www.wamoa.org/ 
SCHOOL BUILDING FACILITY MANAGEMENT CHECKLIST

156 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

APPENDIX D 

AUDIT FORM TEMPLATE

The following is a sample facility audit form that an education organization can refer to as it develops its own auditing

materials. This checklist was provided by Edward H. Brzezowski, P.E., Facility Energy Services, Inc., Chester, NJ 07930

(http://www.fes-nj.com). Not all items will be applicable to all school facilities. Moreover, this audit form does not represent

a standard or agreed-upon convention.

INTERIOR ENVELOPE

Classrooms

❑ Finishes–Ceilings

❑ Finishes–Floors

❑ Finishes–Walls

❑ Casework

❑ Chalkboards & Markerbds

❑ Bulletin Boards

Offices

❑ Finishes–Ceilings

❑ Finishes–Floors

❑ Finishes–Walls

Music Room

❑ Finishes–Ceilings

❑ Finishes–Floors

❑ Finishes–Walls

❑ Casework

❑ Chalkboards & Markerbrds

❑ Bulletin Boards

Auditorium

❑ Auditorium Seating

❑ Stage Curtain

❑ Handicapped Access

❑ Finishes–Ceilings

❑ Finishes–Floors

❑ Finishes–Walls

Media Center

❑ Finishes–Ceilings

❑ Finishes–Floors

❑ Finishes–Walls

Art Room

❑ Finishes–Ceilings

❑ Finishes–Floors

❑ Finishes–Walls

❑ Casework

❑ Chalkboards & Markerbds

❑ Bulletin Boards

Science Room

❑ Finishes–Ceilings

❑ Finishes–Floors

❑ Finishes–Walls

❑ Casework

❑ Chalkboards & Markerbds

❑ Bulletin Boards

Life Skill/Home Ec

❑ Finishes–Ceilings

❑ Finishes–Floors

❑ Finishes–Walls

❑ Casework

❑ Chalkboards & Markerbds

❑ Bulletin Boards

Teachers Room

❑ Finishes–Ceilings

❑ Finishes–Floors

❑ Finishes–Walls

Technology Ed

❑ Finishes–Ceilings

❑ Finishes–Floors

❑ Finishes–Walls

❑ Casework

❑ Chalkboards & Markerbds

❑ Bulletin Boards

Small Group

❑ Finishes–Ceilings

❑ Finishes–Floors

❑ Finishes–Walls

❑ Casework

❑ Chalkboards & Markerbds

❑ Bulletin Boards

Gymnasium

❑ Bleachers

❑ Finishes–Ceilings

❑ Finishes–Floors

❑ Finishes–Walls

❑ Gym Partitions

EXTERIOR ENVELOPE

Exterior Walls

❑ Curtainwall

❑ Finishes–Ceilings

❑ Masonry

Roof

❑ Roofing

❑ Skylights

Doors

❑ Doors/Hardware-Exterior

Windows

❑ Windows

Misc.

❑ Other Exterior

Notes:
APPENDIX D 157

Cafeteria/MP Room

❑ Finishes–Ceilings

❑ Finishes–Floors

❑ Finishes–Walls

Kitchen

❑ Finishes–Ceilings

❑ Finishes–Floors

Nurse

❑ Finishes–Ceilings

❑ Finishes–Floors

❑ Finishes–Walls

Toilet Room Finishes

❑ Toilet Partitions

❑ Handicapped Access

❑ Finishes–Ceilings

❑ Finishes–Floors

❑ Finishes–Walls 

Mechanical Room

❑ Finishes–Ceilings

❑ Finishes–Floors 

❑ Finishes–Walls

Janitor Closet

❑ Finishes–Ceilings

❑ Finishes–Floors

❑ Finishes–Walls

❑ Casework

Storage

❑ Finishes–Ceilings

❑ Finishes–Floors

❑ Finishes–Walls

Stairs

❑ Finishes–Ceilings

❑ Finishes–Floors

❑ Finishes–Walls

❑ Railings

❑ Guard Rails

❑ Stair Treads

❑ Stairs

❑ Chalkboards & Markerbds

Corridors

❑ Finishes–Ceilings

❑ Finishes– Floors

❑ Finishes–Walls

❑ Lockers

❑ Finishes–Walls

Handicapped Access

❑ Handicapped Access

❑ Ramps–Interior

❑ Railings

Doors

❑ Doors/Hardware-Exterior

❑ Doors/Hardware-Interior

Elevators/Lifts

❑ Elevator

Structural Issues

❑ Structural

Misc.

❑ Other–Interior

❑ Sump Pump

❑ Swimming Pool

Other

❑ Finishes–Ceilings

❑ Finishes–Floors

❑ Finishes–Walls

Notes:

Power & Distribution System

❑ Electrical–Service

❑ Electrical–Distribution

❑ Electrical–Wiring

❑ Electrical–Receptacles

❑ Electrical–Transformer

Communication Systems

❑ Cable TV System

❑ Clocks & Program

❑ Local Area Network

❑ Public Address System

❑ Security System

Lighting Systems

❑ Lighting–Exterior

❑ Lighting–Interior

❑ Lighting–Theatrical

Emergency and Exit Systems

❑ Egress Lighting

❑ Emergency Generator

❑ Exit Signs

Fire Alarm Systems

❑ Fire Alarm–Entire System

❑ Fire Alarm–Main Panel

❑ Fire Alarm–Remote 

Annunciator

❑ Fire Alarm–Detection System

❑ Fire Alarm–Audible Alarms

Notes:

DISCIPLINE: ELECTRICAL SYSTEMS

❑ Addition

❑ Alteration

❑ Building Demolition

Notes:

DISCIPLINE: NEW CONSTRUCTION
158 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Piping

❑ Piping–Domestic Water

❑ Piping–Sanitary

❑ Piping–Storm

Pipe Insulation

❑ Pipe Insulation

Fixtures

❑ Sinks

❑ Toilets

❑ Urinals

❑ Water Fountains

Hot Water System

❑ Hot Water System

Drains

❑ Floor Drains

❑ Roof Drains

Pumps

❑ Pumps–Plumbing

Misc. Plumbing

❑ Backflow Preventors

❑ Grease Traps

❑ Sewage Ejectors

Fire Suppression

❑ Fire Suppression–Kitchen

Hood

❑ Fire Suppression–Limited Area

Sprinkler

❑ Fire Suppression–SprinklersAdd System

❑ Fire Suppression–Fire Pump

❑ Fire Suppression–Standpipes

Notes:

Heating Plant

❑ Boiler

❑ Boiler Burners

Cooling Plant

❑ Air Conditioning System-Add

❑ Chiller

❑ Cooling Tower

Piping

❑ Piping-HVAC-Hot Water

❑ Piping-HVAC-Steam

❑ Piping-HVAC-Chilled Water

❑ Piping-HVAC-Condensate 

Terminal Units

❑ Radiators

❑ Unit Ventilators

❑ Exhaust Fan

❑ Terminal HVAC Units

Pumps

❑ Pumps-HVAC

ATC System

❑ Automatic Temperature

Controls

❑ Automatic Temperature

Controls Air Compressors

Return

❑ Steam Traps

Exhaust System

❑ Exhaust Systems

Ventilation System

❑ Ventilation Systems

Miscellaneous

❑ Dust Collection System

Notes:

DISCIPLINE: MECHANICAL SYSTEMS

DISCIPLINE: SITE

Exterior Paving/Walks/Stairs

❑ Paving/Walks

❑ Stairs-Exterior

Handicapped Access 

❑ Ramps-Exterior

Landscaping

❑ Landscaping

❑ Fencing

Site Drainage

❑ Drywell

Play Areas

❑ Play Fields

❑ Play Equipment

Notes:

DISCIPLINE: LIFE SAFETY

❑ Life Safety Notes:

❑ Maximum Renovation

❑ Minimum Renovation

❑ Moderate Renovation

Notes:

DISCIPLINE: CHANGE OF USE

DISCIPLINE: PLUMBING SYSTEMS
APPENDIX E 159

Work Order Master File Record:

Data Element Data Properties

Job Number Numeric, Unique, Auto-generated

Entry Date CCYYMMDD Format

Location Building Location Code List

Room Number Alphanumeric

Status Code O (Open), A (Assigned), C (Completed), 

R (Reopened), D (Deferred)

Entry User Auto-generated user ID of person making request

Contact Name Alpha

Contact Phone Numeric

Contact Email Email

Work Requested Alphanumeric 60 characters

Urgent (Y/N) Y (Yes) or N (No), defined by requestor

Requested Date of Completion CCYYMMDD Format

Received Date CCYYMMDD Auto-generated

Assigned To (Workperson) Alpha, Worker’s name or ID

Scheduled Date CCYYMMDD Format

Work Order Priority Priority level code list 

(e.g., urgent, routine, preventive)

Optional Time Record:

Job Number Indexed to the main file

Sequence Numeric, 4 digits within request queue

Workperson Alpha, Worker’s name or ID

Begin date CCYYMMDD

End Date CCYYMMDD

Hours Worked Numeric

Optional Materials Record:

Job Number Indexed to the main file

Sequence Numeric, 4 digits within request queue

Item Description Code or Alpha Description (60 characters)

Quantity Numeric

Unit Cost Numeric

Extended Cost Quantity * Unit Cost 

APPENDIX E 

RECORD LAYOUT FOR A COMPUTERIZED

WORK ORDER SYSTEM

Following is a listing of the basic data elements for the work order system described in Chapter 5.
160 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

APPENDIX F 

MODEL JOB DESCRIPTION 

FOR A CUSTODIAL WORKER

The following is a model job description for a custodial worker that an education organization can refer to as it develops 

its own job descriptions. Some of the duties and responsibilities listed may not be applicable to all education organizations.

This list is presented only as a resource, and does not represent a standard or agreed-upon convention.

GENERAL RESPONSIBILITY

The Custodian is responsible for keeping assigned building(s) clean, safe, functional, and secure in accordance with prescribed

codes and established district policies and standards. A custodial worker must maintain all assigned building(s) in a state of

operational excellence such that they present no interruptions, distractions, or obstacles to the education program.

Essential Duties and Responsibilities

✓ Perform regular custodial duties in assigned area(s) of building(s).

✓ Accept instructions from head custodian/supervisor verbally or in writing.

✓ Provide services as necessary to support curricular and extracurricular events and activities.

✓ Maintain inventory of custodial/maintenance supplies and equipment.

✓ Restock disposable custodial/maintenance items and provide head custodian/supervisor with inventory usage data.

✓ Clean and preserve designated spaces, equipment, furniture, etc. in the building(s).

✓ Assist visiting members of the public who are utilizing the facilities.

✓ Maintain work related records and prepare work reports as directed.

✓ Project a positive image for the schools district with his/her team, whenever the public, guests, or visitors are in the building.

✓ Work closely with the head custodian/supervisor and/or building administrator(s) to be prepared for scheduled evening

activities and unscheduled events as needed.

✓ Shovel snow and salts walks as needed.

✓ Maintain building and grounds security by opening/closing the building each school day and during special events as

directed.

✓ Work on call as needed at any time for emergency repairs, equipment monitoring, overtime, or special needs falling outside of normal working hours.

✓ Identify and schedule work to be performed during summer, winter, and spring break.

✓ Accept other duties as assigned by the Director of Facilities/Administration or his/her designee.

Daily Duties

✓ Check daily activities schedule to see if any special equipment must be set up.

✓ Perform general cleanup—any and all incidents as they arise.

✓ Removal snow (as needed) from sidewalks. Note that snow should be removed as it is falls rather than after it falls. It

should be removed to the bare cement.

✓ Inspect entrances and sidewalks for damage, clutter/dirt, malfunction, or other hazards.

✓ Vacuum all entrance mats, outside mats, and clean sidewalk up to 10 feet from entrance.

✓ Wet mop inside of entrances if wet or in bad condition.

✓ Sweep all stairways.
APPENDIX F 161

✓ Machine vacuum all carpeted corridors, walkways, and 10 feet in from doorway of each room.

✓ Clip all carpet sprigs as necessary.

✓ Remove all spots from carpet.

✓ Extract soiled areas on carpets as needed.

✓ Remove gum from floors.

✓ Dust mop and sweep corners of all tiled classrooms and adjacent rooms. Wet mop if needed.

✓ Spot vacuum all classrooms, offices, and other carpeted areas. Pick up any paper left on floor.

✓ Make sure rooms appear orderly.

✓ Empty all trash cans (rinse or wash if needed).

✓ Put all trash in dumpsters.

✓ Remove all marks from walls and lockers nightly.

✓ Replace defective light bulbs as needed.

✓ Wash all main entrance windows.

✓ Thoroughly clean all surfaces in restrooms.

✓ Clean all drinking fountains.

✓ Lock all doors as directed by the director of facilities/administration or his/her designee and lock all outside doors as

soon as daily activities are over.

✓ Close and lock windows.

✓ Clean all equipment after use (e.g., mop buckets and custodian’s service sink).

✓ Hang up brooms, dust mops, and wet mops. Do not stand them against wall.

✓ Clean and straighten janitor’s closet. 

✓ Keep shelves and supplies in neat order and stocked with supplies.

✓ Turn in any items or articles found to the Lost and Found Department.

✓ Check entire area for vandalism and report to the director of facilities/administration or his/her designee.

✓ Assist other employees with cleanup after large activities (e.g., after a basketball game).

✓ Accept other duties as assigned.

Weekly Duties

✓ Sweep under all entrance mats (both inside and outside).

✓ Dust mop and sweep out corners of all the tiled areas that are not covered under daily routines.

✓ Vacuum all carpets thoroughly in all classrooms and work areas according to schedule.

✓ Wet mop tiled areas. Wax, if needed.

✓ Wash all desktops, chairs, and furniture according to schedule.

✓ Dust everything in rooms and corridors according to schedule.

✓ Make sure all lockers are dusted and marks removed.

✓ Wash all hallway door windows.

✓ Clean cove molding and edges thoroughly.

✓ Vacuum blackboard erasers.

✓ Wash all blackboards, chalkboard rails, and marker boards according to schedule.
✓ Wash display case glass, if needed.

✓ Check the furniture once a week for breakage and either repair it or report it to the head custodian/supervisor.

✓ Check all playground equipment for damage or unsafe conditions and inform Plant Service of repair needs.

✓ Accept other duties as assigned.

Monthly Duties

✓ Vacuum or clean all intakes and exhaust ventilating louvers in ceiling of every room.

✓ Clean out all storage rooms.

✓ Accept other duties as assigned.

Winter and Spring Break Duties

✓ Light-scrub and re-wax all hard tile floors. Strip, if needed.

✓ Extract carpeted rooms as needed.

✓ Extract entrance mats.

✓ Lightly dust all rooms.

✓ Wash all desktops.

✓ Wash inside of all windows.

✓ Scrub floors and clean all walls and partitions in restrooms.

✓ Make sure all sinks, urinals, and stools are cleaned (in, under, and around).

✓ Accept other duties as assigned.

Summer Duties

✓ Wash all windows inside and out.

✓ Wash all desks (including teachers’) inside and out.

✓ Wash all walls as needed.

✓ Remove all dirt from lights and high-dust everything.

✓ Wash all doors and frames. Pay special attention around lock assembly.

✓ Scrub all floors and re-wax, strip if needed.

✓ Thoroughly vacuum all carpeted areas and extract.

✓ Completely clean all fixtures, furniture, ceiling, walls and floors.

✓ Accept other duties as assigned.

Working Conditions

The work environment characteristics described here are representative of those that a custodian encounters while performing the essential functions of the job. Reasonable accommodations may be made to enable individuals with disabilities

to perform the essential functions.

While performing the duties of this job, the employee regularly works indoors and will occasionally work outdoors, including during both hot and cold weather. The employee will work near or with moving mechanical equipment. The employee

may occasionally work with toxic or caustic chemicals such as petroleum products, degreasers, and sprays. The employee

must be able to meet deadlines with severe time constraints. The noise level in the work environment is usually moderate.

Some evening and weekend work can be expected on a regular basis (i.e., more than twice per month).

There is a high probability that contact with blood-borne materials will occur within daily duties. All duties and procedures are

to be performed within health safety standards as established by local and state OSHA and school district emergency procedures.

162 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES
Equipment Used

The custodian should expect to move, operate, and clean various manually powered brooms, mops, vacuums, dusting tools,

and snow shovels as well as mechanically powered waxing and buffing equipment. He/she will be expected to climb and

work from ladders as necessary. The custodian will also handle and apply chemical cleaning agents, some of which may be

toxic if handled improperly. All custodial staff will undergo training with regard to equipment and chemical use.

General Qualifications

To be eligible for employment as a custodian, a person shall demonstrate the knowledge, skills, and experience necessary to

complete the assigned work efficiently. The person must be able to operate, maintain, and make adjustments to various types

of equipment, as needed. He/she must also have the ability to pass a written and physical test, as well as establish and maintain effective working relationships with students, staff, and the community. He/she is required to perform duties within the

expectations of all district requirements and board of education policies. He/she must understand proper procedures, handbook rules, school schedules, (i.e., practice times, game times—both home and away) and maintain confidentiality with regard

to students and staff. He/she must also be available for duties on some Saturdays, Sundays, and evenings as assigned.

Moreover, the individual must be adaptable to working around children and possess skills for maintaining school buildings in a manner acceptable to the general health and safety standards of school buildings. He/she must also develop a

basic understanding of the following areas: board of education policies and administrative regulations, school public relations, the role and function of public schools in the community, safe operation of mechanical equipment, and the importance of developing constructive working relationships with supervisors, fellow workers, students, the general public, and

visitors to the school.

Educational Requirements, Credentials, and Licenses

To perform this job successfully, an individual must be able to perform each essential duty satisfactorily. The requirements

listed below are representative of the knowledge, skills, and/or ability required. Reasonable accommodations may be made

to enable individuals with disabilities to perform the essential functions.

✓ High school diploma or general education degree (GED). Two years or equivalent experience in the custodial field. Prior

leadership experience. Basic computer knowledge; knowledge of building layouts, systems, and controls.

✓ Ability to read and interpret documents such as safety rules, operating and maintenance instructions, and procedure

manuals. Ability to write routine reports and correspondence. Ability to speak effectively before groups of customers or

employees of the organization.

✓ Ability to add, subtract, multiply, and divide in all units of measure, using whole numbers, common fractions, and decimals. Ability to compute rate, ratio, and percent, and interpret bar graphs.

✓ Ability to apply common-sense understanding to carry out instructions furnished in written, oral, or diagram form.

Ability to deal with problems involving several concrete variables in standard situations.

Physical Requirements

The physical demands described here are representative of those requirements that must be met by a custodian to successfully perform the essential functions of the job. Reasonable accommodations may be made to enable individuals with disabilities to perform the essential functions.

While performing the duties of this job, the employee is regularly required to stand; walk; use hands and fingers to

handle or feel objects, tools, or controls; and give and receive oral and written instructions. The employee frequently is

required to reach with hands and arms. The employee is occasionally required to sit. The employee frequently must squat,

stoop, or kneel, reach above the head, and reach forward. The employee frequently uses hand strength to grasp tools and

rungs of ladders. The employee will frequently bend or twist at the neck and trunk more than the average person while

performing the duties of this job.

The employee must frequently lift and/or move up to 50 pounds, including cleaning supplies, pails, and bags/boxes.

Occasionally the employee will lift or move up to 80 pounds, including bags of salt and furniture. The employee will sometimes push or pull items such as tables, bleachers, scrubbing machines, etc. This job requires close vision, color vision,

peripheral vision, depth perception, and the ability to adjust focus.

APPENDIX F 163
164 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Physical Performance Required to Perform the Job

The custodial position requires that an individual be able to perform the following tasks at the physical levels indicated in order to carry

out the essential functions of the job.

RARELY OCCASIONALLY FREQUENTLY CONSTANTLY

(1-10% shift) (11-32% shift) (33-66% of shift) (67-100% of shift)

LIFTING TASKS

FLOOR TO WAIST LIFTING 100 lbs 80 lbs 50 lbs – lbs

WAIST TO SHOULDER LIFTING 40 lbs 25 lbs 17 lbs – lbs

OVERHEAD LIFTING – lbs 10 lbs – lbs – lbs

HORIZONTAL LIFTING 80 lbs 35 lbs 17 lbs 7 lbs

CARRYING: Front Carry 30 lbs 25 lbs 12.5 lbs – lbs

PUSHING: Horizontal tractive force 40 lbs 30 lbs 25 lbs 12.5 lbs

PULLING: Horizontal tractive force 30 lbs 25 lbs 12.5 lbs 10 lbs

POWER GRIPPING: Right 19 lbs 16 lbs 10 lbs 5 lbs

Left 19 lbs 16 lbs 10 lbs 5 lbs

RARELY OCCASIONALLY FREQUENTLY CONSTANTLY

(1-10% shift) (11-32% shift) (33-66% of shift) (67-100% of shift)

MOVEMENT TASKS

REACH: Overhead ✓

Right ✓

Left ✓

Lateral ✓

SQUAT: Sustained ✓

Repetitive ✓

BEND ✓

HEAD/NECK: Flexion ✓

Rotation ✓

Static flexed position ✓

Channels of Authority/Organizational Relationships

The Custodian is responsible and accountable to the head custodian/supervisor and director of facilities.

Evaluation Mechanisms

The custodian undergoes an annual formal written evaluation by the head custodian/supervisor and semiannual 

face-to-face evaluation meetings. 

Position Status

The position of custodian is categorized as at-will within the school district.

The information contained in this job description is for compliance with the Americans with Disabilities Act (ADA) and is not an exhaustive list of the

duties performed for this position. The individuals currently holding this position perform additional duties, and additional duties may be assigned.
APPENDIX G 165

Warm-up Questions:

What are your interests?

What made you apply for this position?

Why do you want to work for this organization?

Work History:

How do you feel about your current job?

Why are you leaving your current job?

What are your major responsibilities in your current job?

What have done particularly well (i.e., your greatest success) in your current job?

What are some of the challenges you encounter in your current job? Which ones frustrated you the most? What do you do

about them?

What aspects of your current job do you find most difficult, and why?

Are there certain aspects of your current job that you feel more confident doing than others? What are they, and why do 

you feel that way?

What do you want from your next job that you are not getting from your current job?

Can you describe one of the most important accomplishments in your career?

Can you describe one or two of the biggest disappointments in your career?

What is important to you in a job? Why?

What would you like to avoid in a job? Why?

What kinds of co-workers do you like to work with best? Why?

Which of all your jobs have you liked the best? The least? Why?

What would you say was the most, or least, promising job you ever had? Why?

What kind of an organization do you most prefer to work for?

What specific aspects of your work experience have prepared you for this job?

Leadership:

What kinds of supervision have you received in previous jobs?

What kinds of supervision have you used with your subordinates?

How much time do you spend supervising?

How much time do you spend doing detail work (i.e., not supervising)?

What kind of working relationship do you want to have with the person you report to?

What kind of working relationship do you want to have with a person who reports to you?

What has been your greatest risk with regard to managing staff and/or projects?

What is your experience developing and managing budgets?

What is your management style?

Education and Training:

How do you feel your education and training will relate to this job?

What areas would you most like additional training in if you got this job?

Can you give an example of a time when you felt you needed to improve your skills?

Career Goals:

Where does this job fit into your overall career plan?

Why did you choose to pursue this kind of career?

What makes you feel that is the best career path for you?

What kind of job do you see yourself holding five years from now?

How will this job help you achieve your career goals?

What would you most like to accomplish if you got this job?

What might make you leave this job?

APPENDIX G 

USEFUL INTERVIEW QUESTIONS

Following is a list of questions that have proven useful to school district personnel as they interview potential employees.

Specific questions may not be applicable for all positions or in all school organizations. They are presented only as a

resource and do not in any way represent a standard or an agreed-upon convention.
Job Performance:

How do you think your last/current employer would describe your job performance?

How did your supervisor rate you on your most recent job evaluation? What were some of the good points and 

constructive criticisms of that rating?

How do you respond to constructive criticism with regard to your job performance? Give an example.

Have you ever disagreed with a supervisor about your work performance? Give an example.

What motivates you?

What are some of the techniques you use to organize your time?

Lateness and Absenteeism:

How many days of work did you miss during the last year? For what reasons?

How many times were you late for work during the last year? For what reasons?

What do you feel is a satisfactory attendance record?

How do you think problems of tardiness should be handled by a supervisor?

How do you think problems of absenteeism should be handled by a supervisor?

Self Perception:

How would your co-workers describe your job performance?

How important to you are other people’s opinions of your work performance?

Can you describe yourself and your work ethic?

What are your professional strengths? Weaknesses?

Listening and Oral Communication Skills:

What do you think the role of listening is in good management?

How do you react to someone who dominates a discussion?

What is the worst communication problem you have experienced? How did you deal with it?

Do you think your co-workers perceive you as a good listener? Why?

Salary:

What is your salary history?

What are your current expectations for compensation?

What are your future (e.g., 1-3 years from now) expectations for compensation?

Closing Questions:

Why should we hire you?

What makes you think you that you might be the most qualified candidate?

What would you like to know about our organization?

Is there anything else you would like to mention that we haven’t discussed?

Do you have any other questions?

Questions for Additional Scenarios:

If you could have the “perfect job,” what would it be?

Can you give an example of how you handled a “problem” employee or co-worker in your last job?

Can you describe a situation in which you felt it was justified to modify standard policies and procedures?

Can you give an example of how you handled a communication problem in your last job?

What have you accomplished in your current job that you felt was creative?

Can you give an example of a quick decision you had to make that you were proud of?

Can you give an example of an important goal you had and how you worked to achieve it?

Can you give an example of how a management change affected your work for the better, or for the worse?

Can you give an example of a time when you had to “roll with the punches”?

How do you deal with deadlines and work under pressure? Give an example.

Are you overqualified for this job?

166 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES
APPENDIX H 167

APPENDIX H 

USING MAPPING DURING 

THE INTERVIEW PROCESS

The use of “mapping” during the interview process helps decision-makers focus on the desired traits of a candidate being

interviewed for a job. The goal is to determine how well the candidate demonstrates the ideal qualities for the position

sought by the hiring organization. 

Mapping can be conducted as follows: Say your district is interviewing for a supervisor of maintenance. First identify

the general categories of knowledge, skills, and abilities required for the position. Then list specific expertise or experience

that the ideal candidate will demonstrate as evidence of these characteristics (see Figure 1). Share this with the selection

committee to see if they have traits or characteristics to add or delete. As the discussion evolves, each member of the 

selection committee will develop a better idea of the profile that best matches the “ideal” candidate.

Next, prepare an interview worksheet that lists only the general categories of the knowledge, skills, and abilities

required for the position (i.e., only the headings in the ovals) (see Figure 2). During the interview, each member of the

interview team can then take notes about whether and how the applicant exhibits the related characteristics. The team

members can later compare their notes to the detailed list of expertise and experience that characterizes the ideal candidate. The results of this type of exercise might very well help to inform your decision-making during the selection process.

Note that mapping is a technique that combines left and right brain perspectives on an issue. In this case, the concept

is applied during the process of interviewing candidates for potential employment. However, this management approach

can also be applied for other tasks as well. While it may not appeal to everyone, it is a proven method for integrating 

information and informing decision-making.

Figure 1. An example of the use of 

mapping while interviewing candidates

for the position of Supervisor of

Maintenance. The selection committee 

identified five basic categories of knowledge, skills, and abilities (represented by

the ovals) that the ideal candidate would

possess. They then listed specific traits 

or know-how that candidates might be

expected to demonstrate.

Figure 2. The “blank” mapping form on

which interviewers take notes about

whether and how an applicant exhibits

the knowledge, skills, and abilities of 

the “ideal” candidate during the job

interview. The members of the selection

team then compare their notes to the

detailed list of expertise and experience,

as seen in Figure 1. 
Custodial

1 = STRONGLY DISAGREE 2 = DISAGREE 3 = NEUTRAL 4 = AGREE 5 = STRONGLY AGREE

Measure/Rating 1 2 3 4 5

My work area is kept clean.

Insects are rarely or never found in my work area.

Rodents are rarely or never found in my work area.

Floors are kept clean.

Spills are cleaned up immediately.

Bathrooms are kept clean.

Bathrooms are free of graffiti.

School grounds are kept clean.

Graffiti is removed within 24 hours of its appearance.

Paper, cans, and debris are cleaned up quickly.

Snow and ice are removed quickly.

Custodial staff are rarely seen to be wasting time.

Custodial staff are cooperative and responsive.

I am satisfied with custodial service in general.

TOTALS

Maintenance

1 = STRONGLY DISAGREE 2 = DISAGREE 3 = NEUTRAL 4 = AGREE 5 = STRONGLY AGREE

Measure/Rating 1 2 3 4 5

My work area is well maintained.

Nonworking lights are replaced in a timely manner.

Ceiling tiles are replaced when they are soiled or broken.

Emergency work orders are handled in a timely manner.

Safety related work orders are completed immediately.

Maintenance staff use safe practices at all times.

Maintenance staff don’t disrupt students and classes.

Maintenance staff are cooperative and responsive.

I am satisfied with maintenance service in general.

TOTALS

168 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

APPENDIX I 

SAMPLE CUSTOMER SURVEY FORM

The following is a sample customer survey form provided by the Michigan School Business Officials (MSBO). An education

organization can refer to it as it develops its own evaluation materials. However, every item may not be applicable to all

school organizations. It is presented only as a resource, and does not represent a standard or an agreed-upon convention.
INDEX 169

INDEX

Access controls – 75

Achievement – see Student achievement

Action levels – 56

AHERA – see Asbestos Hazard Emergency

Response Act

Air balancing – 80

Air pollutants – 46

Area cleaning – 82

Area support management – 85

Asbestos – 48-49, 65

Asbestos Hazard Emergency Response

Act (AHERA) – 49

At-will position – 107

Audience (document) – 4

Auditors – 27-28

Audits – 25-37, 125, 156-158

Authority (channels of) – 107, 164

Background checks – 108

Backup (data) – 33

Baseline – 26

Benchmarking – 39

Boilers – 76

Breakdown maintenance – 74

Budgeting – 18, 125, 129

Building components – 29

Building use scheduling systems – 90

Carpets – 78

Centralized part storage – 91

Chemical use – 54

Chlorofluorocarbons (CFCs) – 53

CMMS – see Computerized maintenance

management systems

Commissioning – 35-38, 94

Communication systems – 63

Community water sources – 49

Computerized maintenance management

systems (CMMS) – 34, 75, 86-89

Consignment cabinets – 91

Construction – 92-94

Contracted staff – 117

Credentials – 107, 163

Crisis management – 63

Custodial activities – 82-83

Custodial standards – 82

Customer satisfaction/service survey –

124, 168

Data (collection/management) – 19, 

25-37, 126-127

Decentralized part storage – 91

Desk audit – 115

Direct digital controls (DDCs) – 77

Disaster planning – 63

Document imaging system – 33

Drinking water – see Water management

Duties and responsibilities – 106, 160-

162

Educational requirements – 107, 163

Electrical systems – 76

Emergency maintenance – 74

Emergency Planning and Community

Right-to-Know Act (EPCRA) – 51, 53

Emergency power systems – 53

Emergency preparedness – 36

Employment eligibility – 109-110

Energy (management/use) – 30, 77-78

Environmental safety – 43

Environmentally friendly schools – 61-62

Equal Employment Opportunity

Commission – 106

Equal opportunity laws – 106

Equipment (protection/use) – 29, 62,

107, 111, 163

Evaluating programs – 123-131

Evaluating staff – 107, 111, 113-115, 129-

130, 164

Facilities Information Management 

(publication) – 4, 19, 40

Facilities partners – 86

Fire alarms – 78

Fire protection – 63

Floors – 78-79

Green Building Council – 61

Green experiments – 54

Green schools – 61-62

Grounds – 29, 83-85

Gym floors – 79

Hazardous materials – 52-54

Heating, ventilation, and air conditioning

(HVAC) systems – 79-80

High performance schools – 61-62

Hiring staff – 105-110

Hot water heaters – 80

Hydrochloroflourocarbons (HCFCs) –

53

Immigration and Naturalization Service

(INS) – 109

Immunization records – 110

Incentives – 116-118

Indoor air quality – 44-48

Indoor Air Quality (IAQ) Tools for 

Schools – 44, 66

Integrated pest management (IPM) – 

54-56, 84

Intercoms – 81

Interviews – 107-108, 165-167

Inventories – see Audits

Job descriptions – 105-107, 160-164

Keys – 76; see also Access controls

Kitchens – 80

Lead – 50, 56

Leadership in Energy and Environmental

Design (LEED) – 61-62

Learning – see Student achievement

Least toxic pesticides – 54-55

LEED –see Leadership in Energy and

Environmental Design

Licensing – 107, 163

Life cycle – 27

Locking systems – 62
170 PLANNING GUIDE FOR MAINTAINING SCHOOL FACILITIES

Maintaining staff – 116

Maintenance and operations manuals – 86

Manuals – see Maintenance and 

operations manuals

Mapping – 108, 167

Marketing maintenance – 85

Material safety data sheet (MSDS) – 51

Maximum contaminant levels (MCLs) –

50

Mercury – 51, 56-57

Microexperiments – 54

Mildew – 47

Moisture – 47

Mold – 47

Moment of truth chart – 113-114

Motor current analysis – 76

National Clearinghouse for Educational

Facilities – 8

Needs assessment – 128

Non-community water systems – 49

Open procurement cards – 91

Open purchase orders – 91

Optical character recognition (OCR) –

33

Orientations (new staff) – 111

Painting – 80

Partners (facilities) – 86

Parts (standardization/storage) – 91

Payroll records – 110

Performance criteria/standards – 113,

115

Personal protective equipment – 57

Personnel records – 110

Pest management – see Integrated pest

management

Pesticides – 54-56, 84

Physical inspections – 124

Physical requirements – 106, 163

Playgrounds – 58-59

Plumbing – 80

Policing facilities – 63

Pollutants – 46

Polychlorinated biphenyls (PCBs) – 57

Predictive maintenance – 74, 94

Preventive maintenance – 74-75, 94

Priority status (job) – 88

Privatized activities – 117

Professional development – 112, 118

Program evaluation – 124-131

Public address systems – 81

Punch lists – 93

Purpose (document) – 4

Radon – 57

Re-commissioning – 36

Recycling – 50

References – 108, 110

Renovation – 92-94

Research (facilities) – 5

Response maintenance – see Emergency

maintenance

Retro-commissioning – 36

Right-to-Know Act – see Emergency

Planning and Community Right-to-Know Act

Risk management – 35

Roof repairs – 81

Routine maintenance – 74

Safe Water Drinking Act – 50

Safeguarding Your Technology 

(publication) – 35, 63

SARA Title III – see Emergency Planning

and Community Right-to-Know Act

Scheduling (maintenance) – 75; see also

Building use scheduling systems

Security – 62-63

Self-evaluations – 115

Sewage – see Water management and Waste

Management

Site inspections – 128

Staff 

Evaluating – 107, 111, 113-115, 

129-130, 164

Hiring – 105-110

Maintaining – 116

Training – 111-114, 118

Stakeholders – 14-21, 92

Standardization (parts) – 91

Storage (parts) – 91

Storm-water runoff – 60

Student achievement – 1, 5, 64

Substantial completion – 93

Supplies – 90-92

Sustainable schools – 61-62

Team cleaning – 82

Thermographic scanning – 76

Tools for Schools – see Indoor Air Quality

(IAQ) Tools for Schools

Training staff – 111-114, 118

Current employees – 112

Newly hired employees – 111

U.S. Green Building Council – 61

U.S. Equal Employment Opportunity

Commission (EEOC) – 106

U.S. Immigration and Naturalization

Service (INS) – 109

Underground storage tanks (USTs) – 60

Unionized position – 107

Universal precautions – 51

User feedback – 124; see also Customer satisfaction/service survey

Visibility – 63

Vision statement – 16-17, 20-21

Waste management – 50-52

Wastewater management – see Stormwater runoff, Waste management, and Water

management

Water balancing – 80

Water management – 49-50; see also

Storm-water runoff and Waste management

Water softeners – 81

Work order systems – 86-89, 95, 124,

126-127, 159

Working conditions – 106, 162