3. School Facility Site Selection

Revised 25 June 2007

The school is an integral and inseparable part of a neighborhood or community. The selection and development of an appropriate school site should first consider school district or charter school population projections and potential school growth scenarios, then proceed with coordination efforts between the school district, the charter school and the local municipality and/or county, the local health department, the Utah Department of Transportation, and local utility providers [Rocky Mountain Power] [Questar Gas] [Qwest Communications]. Other site considerations should include complete geologic hazards and soils report, as well as a Level One Environmental Impact Statement for potential sites [U.S. Environmental Protection Agency; Utah Department of Environmental Quality; Utah Geologic Survey]. A properly located and developed school site can be an aesthetic, functional asset to a community for a great number of years. The purpose of this section is to stimulate the best possible selection of school sites in view of present and future school district and charter school needs.

a. Long-Term Planning

As the population of the state continues to grow, the need for educational services and facilities generally also increases in like proportion. Some school districts and charter schools in Utah are experiencing accelerated growth spurts, others have regular steady growth, and a few are experiencing a slight decline. Three basic problems are sometimes accentuated in areas of high growth: (1) the competition for acquisition of undeveloped land increases, (2) capital outlay for new service facilities may cause an increase in capital outlay, voted capital and/or debt service property tax rates for school districts and (3) the initial costs to open and operate new schools for the first one to three years can strain a school district or charter school maintenance and operations budget. These three problems provide an incentive for proper long-term planning that involves school district or charter school, municipal, county, utility and transportation planners of school sites, facilities and services.

The local board of education and school district or charter school administration are responsible for the selection of school facility sites; preferably well ahead of actual needs. When a school facility site will be needed and where it should be located can often be determined with reasonable accuracy by checking indicators such as population trends, commercial development and residential construction and construction permits. Additionally, some school districts purchase land as an investment to hedge against future price increases whether or not the land is actually used for an educational facility.

The best possible enrollment estimates need to be projected for the number of students to be served in the school district or charter school. There are many sources of data that may be used for enrollment projections:

●          State Office of Education
●          Local telephone, power and fuel supply company studies which project population and service supply needs
●          Regional, county, municipal and community master plans.
●          Real estate agency population and land value histories and projections
●          Local redevelopment/urban renewal agency residential and commercial development volume and timing
            Utah Community Development and Renewal (formerly RDA) Agencies:
            ►        Draper City RDA
            ►        Murray City RDA
            ►        Ogden City RDA
            ►        Provo City RDA
            ►        Layton City RDA
            ►        Holladay City RDA
            ►        Salt Lake City RDA
            ►        Tooele City RDA
            ►        Centerville City RDA
            Economic Development Corporation of Utah

b. Size and Location

Although increasing rapidly in cost, land is still one of the least expensive education resources provided for schools. The quantity of land needed for a school facility will vary according to specific local needs, such as the number and ages of pupils, the type of building to be constructed, and the multiple use of the site for such things as community recreational functions. The size of a school site also depends on the shape, contour, general suitability, and availability of land in the area where the building is to be located. If transportation is readily available, the size of a site is more important than location. Inadequate site size is a major factor in the obsolescence of educational facilities.
The State Office of Education suggests the following site sizes for the various grade levels shown:

K-6 School 10 acres plus one acre for each 100 students
Middle School 20 acres plus one acre for each 100 students
Junior High School 20 acres plus one acre for each 100 students
Senior High School 30 acres plus one acre for each 100 students
Combined 7-12 High School 30 acres plus one acre for each 100 students
A functional and beautiful site is an asset that will influence the total school setting and will be reflected in numerous ways in the attitude and education of school children. The convenient location of a school within its enrollment boundaries is certainly desirable. There are, however, other factors which must be evaluated in making the final selection of a site. The following factors need to be carefully analyzed in making final determinations in the site selection process:

(1) General Soil Conditions

Geodetic and soil survey maps are available from county offices and the State Geological Survey to determine such things as seismic conditions and ratings, land contours, drainage, and other soil conditions and ratings. The topography of the site should permit the drainage of surface waters from the grounds without creating a nuisance during inclement weather, thawing periods, lawn sprinkling, or irrigation. The school site must not be located in an area where there is a history or high possibility of flooding, high ground water, or snow or earth slides, or directly on an earthquake fault, or an area that was a repository for hazardous substances. Test pits should be dug to determine the general characteristics of the soil table and drainage of a potential school site before it is purchased by the school district or charter school. The subsoil must be a type that will provide a proper base for building foundations. Surface soils should be the kind that will make play field preparation and maintenance economical and efficient. Please see Subsection d. "Geologic Hazards and Soils Report" in Section 3 of this manual.

(2) Site and Surroundings

Maps and aerial photographs should be used to gain a better understanding of the relationship of the sites being considered to the surrounding environments. Aerial photographs may show, for example, that a potential school site is safely accessible to children. The school district or charter school may also consider investing in a Level One Environmental Impact Statement, which provides decision-makers with a comprehensive report regarding the prior uses of the land and surrounding areas. Please see Subsection e. "Environmental Impact Statement (Level 1)" in Section 3 of this manual.

(3) Community Use

Municipal and county planning officials must be consulted to review their recommendations for school site locations which best match municipal and county land use, planning and zoning ordinances, as well as enhance community recreation facilities and services. See State Board of Education Administrative Rule R277-471 Oversight of School Inspections, Utah Code sections 10-9a-305 Municipal Land Use and Development

17-27a-305 County Land Use and Development,and 53A-20-104 School Construction, as well as School District Building Official Charter School Building Officer and School Construction Inspection elsewhere in this School Construction Inspection Resource Manual. A school site which is developed in close cooperation with community officials can be an excellent asset for multiple uses. Development of a community park center in conjunction with a school plant is one of the most economical means of accomplishing such a task. These types of developments can range from limited use by neighboring children to large athletic centers and park facilities. Please see Section g. "New Construction Coordination" in Section 3 of this manual.

(4) Hazards

Hazardous conditions and installations in the vicinity of, or as part of, school sites must be avoided. Dangerous physical hazards exist in many forms including junkyards, ponds, sewer plants, canals, railroads, freeways, highways, as well as electric or natural gas substations. Potentially dangerous conditions like these naturally attract children because of their curiosity. Airfields, fire stations, stores, taverns, s_xually oriented businesses, mills, factories and other industrial areas sometimes become undesirable distractions or serious menaces to the safety and well-being of children. Dangerous highway conditions, such as high traffic density, high vehicle speed, over-size or large vehicles, poor vision of pedestrians by drivers or poor vision of vehicles by pedestrians, steep topography, and poor access to the roadway and high pedestrian traffic should be considered very carefully when site selection is in process. See R392-200-2 “Design, Construction, Operation, Sanitation and Safety of Schools”

(5) Health and Safety

The potential school site should be located where safe and healthful conditions exist for the building occupants. It is best to avoid sites that are subject to sources of odors, dust, disturbing noise, and other types of air and sound pollution. The water supply must be of adequate volume and pressure and of a safe, sanitary quality and must comply with the requirements of the state Safe Drinking Water Act and administrative rules. Municipal water and sewage connections are the most desirable for a school. Where on-site water supplies or sewage disposal systems are used, health and environmental codes must be strictly followed. Plans and specifications for such water systems must meet state safe drinking water standards and must be submitted to and approved by the State Department of Environmental Quality prior to construction. All newly installed or modified existing on-site sewage disposal systems must submit plans to the local health officer having jurisdiction for review and approval prior to construction or modification. Non-potable water supply systems used for irrigation or similar purposes must be operated in a completely separate storage and support system from potable water and must be maintained in compliance with Section 19-4-112 of the Utah Code. In addition, Administrative Rule 392-200, "Design, Construction, Operation, Sanitation, and Safety of Schools", contains several rules regarding school site selection, construction, maintenance as well as health and safety of school facilities.

Education sites have long been used as an integral part of the instructional program. The usual use has been connected with physical education and recreation. Sizes of various game areas should be used for planning and space allocation when selecting a new school site. The natural and biological sciences can also benefit from such amenities as a grove of trees, a pond or stream, rock formations, as well as other parts of an outdoor setting. School officials are cautioned, however, that some outdoor sites can be an attractive nuisance and a liability during off-hours. State Risk Management notes that injuries to young children who have gained access to these areas occur regularly. There have been drowning due to ponds, canals and streams. There have been injuries to children climbing into trees and coming into contact with overhead electrical power lines. Signage warning of such hazards is an important legal defense measure; however, security of the premises by appropriate fencing is most important. The public must be protected from such potential hazards.

A variety of other programs, such as mathematics, chemistry, or physics, will be able to use the site teaching-learning experiences as well. Some sites may be suitable for construction of amphitheaters for a school drama department or for community use. Art departments might use the natural formations and background as an outdoor studio. Some schools need onsite ranges for driver education. Such ranges might be integrated into a variety of driving situations as needed.

c. Pupil Transportation Safety Considerations in School Site Selection and Planning

When school sites are being selected, consideration should be given to the safety of the pupils riding school buses. School buses will use the roads in and around the school site and public roadways leading into and from the school area. High density traffic flow near school exits and entrances should be avoided. Proper site selection and plant planning for improved school transportation is extremely important. Specifically, project architects, engineers and school officials should provide:
●          Separate, adequate space for school bus loading zones
●          Clearly marked and controlled walkways through school bus zones
●          Traffic flow and parking patterns separate from the boarding zone
●          A separate loading/unloading area for wheelchairs
●          An organized schedule of loading/unloading areas with stops clearly marked
●          A loading and unloading site free of conditions that require backing of school buses

School districts and charter schools are required to coordinate the siting of new schools with the municipality or county in which the school is to be located to "...avoid or mitigate existing and potential traffic hazards to maximize school safety." See State Board of Education Administrative Rule R277-471 Oversight of School Inspections, Utah Code sections 10-9a-305 Municipal Land Use and Development, 17-27a-305

County Land Use and Development, and 53A-20-104 School Construction, as well as School District Building Official Charter School Building Officer and School Construction Inspection elsewhere in this School Construction Inspection Resource Manual.

(1) Identifying and Avoiding Safety Hazards

It is important that pupil transportation and delivery vehicle traffic considerations be included in the planning and design of new school facilities if safety hazards are to be avoided and costly remodeling minimized. Consideration should be given to the roads or streets on which school buses and other school traffic will travel to and from the school; the flow of traffic to and from loading-unloading areas and parking lots on the school property; and the design of loading-unloading areas to minimize the possibility of pedestrian-vehicle conflicts. Specific considerations and recommendations that should be included in school site selection and school facility planning are listed below.

Sites that would result in high density traffic near school entrances and exits should be avoided. This includes sites near freeway on- and off-ramps, areas of heavy commercial traffic, and roadways on which there is heavy commuter traffic. The local roads servicing the school should have a paved width of at least 30 feet. If loading and unloading areas cannot be provided on the school property, the streets upon which loading and unloading is to be accomplished should have a paved width of at least 40 feet.

If necessary, traffic control devices can be provided to assist school traffic to enter the regular traffic flow. Such devices can be installed only by the appropriate state, county, or city road or street authorities. Requests for such devices can be initiated by school officials.
To accommodate school buses that are eight feet wide and 40 feet long, the roads leading onto the school site from the public access roads must have a turn radius of at least 50 feet and preferably 100 feet. Islands may be used to minimize the width of driveway entrances and exits. Proposed driveway openings should be approved by appropriate state, county, or city road or street authorities. Design and placement of access roads should never require buses to be backed onto the school premises. Wherever possible, the roadways on school property that are used by school buses should be physically separated from those used by parents, pupils, teachers and other school personnel. All school bus traffic on the school property should be considered as a one-way traffic flow, preferably with the service door side of the bus always next to the loading and unloading zone.

Vehicle delivery traffic patterns should not cross the school play areas or pedestrian traffic patterns leading to play areas. Whenever possible, roadways should not completely encircle the school building. Those areas that students must cross to engage in outside activities should be free from vehicular traffic. School roadways should be at least 30 feet wide for one-way traffic and 36 feet wide for two-way traffic. Roads should be wider on all curves. Curves should have at least a 60 foot radius on their inner edges and there should be at least a 50-foot tangent section between reverse curves.

The pavement for school roadways used by school buses should be consistent with the higher axle weights of these vehicles. Pavement design and material standards are available from the Utah Department of Transportation (UDOT).

It is recommended that curbing and suitable drainage be provided on all school roads utilized by school buses. Curbing should comply with the standards of UDOT.
School roadways and loading areas should be designed to allow emergency vehicle access to the school at all times.

School roadways should be designed to eliminate or minimize sight obstructions. This includes elimination of blind corners, dips and hollows which obstruct the line-of-sight of the vehicle operator using the roadway. In addition, landscaping should not be allowed to obstruct the motorist's view of intersecting roadways or walkways.

The grade of school roadways should be limited to not more than two percent at entrances and exits and not more than five percent elsewhere. Whenever possible, school bus loading and unloading areas should be located on the school premises and off public thoroughfares.
In planning bus loading and unloading areas, consideration should be given to:
●          The total number of pupils, teachers and other school personnel at the school;
●          The number of pupils to be transported to and from school on school buses;
●          The number of buses involved;
●          The type of schedule (staggered starting and closing times versus single opening and single closing time);
●          Extracurricular activities requiring the use of school buses.

It is desirable to separate the school bus loading/unloading zone from the parking areas used by students, teachers, and administrators. Vehicular traffic to the parking areas should not pass through the loading areas used by buses or across the paths followed by bus riders entering the school building.

Diagonal parking of school buses at loading/unloading zones and parking areas is the most desirable arrangement as it is the safest formation for loading. Bumper-to-bumper positioning is acceptable if plenty of room between buses is available. Whatever arrangement is used, it should not be necessary for a school bus to back up while moving into or away from a loading/unloading zone.

Whenever possible, a separate discharge and pickup point should be established for students being transported by their parents in private vehicles. This area should also be separated from the school bus loading/unloading area. Hazardous conditions are often created by parents haphazardly discharging or picking up students in the area in front of or adjacent to educational facilities. This is particularly true during periods of inclement weather.
School bus loading zones should be located such that students walking to school will not have to cross in front of parked school buses.

Canopies over school bus loading/unloading areas are not considered necessary or feasible except where disabled children are involved. In such cases, the canopy should be high enough to accommodate the tallest school bus.

In cases where severely disabled students are being transported by school bus, consideration should be given to a separate loading/unloading area especially designed for these students. Such an area might include entrance ramps, handrails, etc.

When school buses are parked on school grounds during the day, care should be taken that buses are located and oriented such that their reflective surfaces do not direct undue glare onto students and teachers in their classrooms.

(2) Donated School Sites

In their zeal to save money, boards of education may be tempted to utilize land donated to them for school sites even though the land has several safety hazards, i.e., located near highways with high traffic density, unsatisfactory terrain, lack of space for off-street loading/unloading zones, etc. In some cases, the cost of eliminating the pupil transportation hazards could exceed the purchase price of a better site. Since it will be necessary to provide for the safety of students for many years to come, it may be more cost effective to purchase a new site rather than use the donated one.

(3) Site Selection Timing

It must also be recognized that the sites upon which new schools are to be constructed are often selected prior to the hiring of an architect. It is therefore imperative that local boards of education and municipal planning authorities be alerted as to the potential dangers inherent in the selection of a new school site without adequate consideration to transportation safety. Additional assistance in this area can be obtained by contacting the State Pupil Transportation Specialist or the Education Specialist for the Minimum School Program and Property Tax at the State Office of Education, the State Department of Transportation, or appropriate local county or city road or street departments.

d. Geologic Hazards and Soils Reports

The Utah Geological Survey (UGS) performs school site geologic hazards reviews as part of the USOE approval process. During initial site selection, the UGS performs a preliminary site screening evaluation prior to design and construction—and preferably before final site selection—to identify any significant geologic hazards that should be considered in deciding if a site is suitable for a school or other district building. This evaluation consists of a literature review of existing geologic information. UGS provides a "Summary of Geologic Hazards" report, which typically identifies the potential for earthquake ground shaking, surface faulting, tectonic subsidence, liquefaction, slope failure, earthquake-induced flooding, landslides, debris flows, collapsible or expansive soils, erodible soils, non-engineered fill, shallow ground water, flooding from local streams, alluvial fans, lakes, canals or dam failures, and radon gas. Typically, the principal sources used are county natural hazard overlay zone maps. Usually, a field inspection of the proposed site is not necessary, unless there is evidence that a field inspection is needed. Please see a summary of Utah Geological Survey Services to School Districts. Here is a summary of fees that the Utah Geological Survey has been asked by the Legislature to charge to help pay for their school district and charter school geologic hazards summary reports:

Applied School Site Reviews (H.B. 150 "NEW FISCAL YEAR SUPPLEMENTAL APPROPRIATIONS ACT", 2007 Legislature, Lines 5282 to 5290)

Review Geologic Hazards Report for New School Sites:
• Review (plus travel) $450.00
• Per Hour $36.00
Preliminary Screening of a Proposed School Site:
• One School (plus travel) $500.00
• Multiple in same city (plus travel) $700.00
• Per Hour 36.00

Results of the preliminary screening are transmitted to school district personnel who should use the information to evaluate general site suitability, and then provide the information to the project architect to ensure that geologic hazards are adequately investigated further during the site-specific geotechnical/geologic hazards investigation of the property by the project geologic consultant. These materials also include references and a glossary of geologic hazards terms. They are provided in this resource manual to assist school district personnel and their consultants in their preparation of geologic hazard reports for potential new school sites. The School District Building Official (SDBO) and Charter School Building Officer (CSBO) must ensure that all new construction projects and sites have a comprehensive, site-specific geologic hazards study completed prior to project programming, scoping, scheduling, and financing. The geologic consultant's report must address all hazards, including any previously unrecognized geologic hazards at the site discovered during the site-specific investigation. The consultant's comprehensive report is then submitted to the UGS for an adequacy review. Results of the Utah Geologic Survey review are transmitted to the school district and the State Office of Education.

Ideally, the UGS should be consulted as early as possible in the site selection process so information on geologic hazards can be made available to the school district decision-makers for all sites being considered for a proposed school. The school district can then incorporate information about potential geologic hazards as one of the discriminating

factors when selecting a final site for purchase. This process ensures that geologic hazards are addressed and incorporated in the site and building design in a timely manner where necessary.

e. Environmental Impact Statement (Level 1)

Where potential construction sites may have a history of use that could affect future uses of the site, School District Building Officials (SDBOs) and Charter School Building Officers (CSBOs) may want to consider the development of a Level One Environmental Impact report provided by the school district consulting civil or soils engineer prior to construction. This report typically provides the school district with a comprehensive report regarding the prior uses of the land and surrounding areas and what chemicals, gases or "slag" deposits may be present as a result of prior uses. The report also looks forward at potential impacts on the land and surrounding area if a school or other school district facility is constructed. Here is a link to the US EPA web site that contains information about environmental impact statements.

f. Site Acquisition and Development

Initial costs for land acquisition should be considered in conjunction with estimated development costs for the site. Considering initial costs alone can be a major problem. It is only when both acquisition and development are carefully considered that a realistic evaluation of the true costs of a proposed site results.

The main developmental costs of a site are related to the topography of the land and the nature of the subsoil. The subsoil characteristics of a site influence the cost of grading and filling. Cost of development is directly proportional to the extensiveness of grading and filling needed to accommodate a school complex. Engineered grading and filling will cost more than non-engineered grading and filling. Building footings, foundations or piling must be built to connect into the natural ground.

The cost of land, even in the same general area, varies greatly. This fact makes comparisons between sites in different school districts or sites within the same school district somewhat misleading. A school district or charter school should assure that the price of a site is reasonable and in line with current market value for the area. Competent real estate appraisers and other persons familiar with the locality should be used as consultants before a site is actually purchased. It is good public practice, if possible, to have at least two potential sites under consideration for each school building. This keeps the school district or charter school from being at the mercy of a seller who is aware of his advantageous possession of the only land considered suitable for a new school.

If the owner of the needed school site property is unwilling to sell at a reasonable price, and the piece of land is the only one that will fit school district needs, the school district may exercise the "right of eminent domain." This type of land condemnation is a legal procedure which may be used by specified public entities to acquire necessary land at a reasonable price. Courts usually require proof that the school district has no other reasonable recourse. After hearing the testimony of competent witnesses, the court will normally set the price to be paid for the land. School districts should secure competent legal advice regarding the advisability and the conduct of condemnation proceedings.

g. New School Construction Coordination

A new school can have a significant impact on a neighborhood or community. It is important for school district facility planners to work early in the process with county, municipal and town planning officials as well as local Utah Department of Transportation (UDOT) planners and personnel from the entities which will provide the power, water, sewer, and natural gas or other source of energy for heat. Please see an example new school construction project planning and coordination guide in this school building construction sample checklist . This sheet may be helpful for school district facility planners to use as they work with municipal, transportation and utility planners.

(1) Coordination with Counties, Cities and Towns

Nearly every political jurisdiction—whether it is a county, city, town, or village—will normally have some concerns regarding school construction within its boundaries. Possibly the placement of a new school will conflict with an existing local zoning ordinance. Maybe the school placement will have an adverse effect on traffic patterns. The location of the school might interfere with a flood impact drainage plan for the area. It could be that the businesses in the area—both existing and proposed—would be in direct conflict with the operation of a new school. In any case, the first stop should be with whoever is in charge of planning for the jurisdiction. This planning person may be called the community development director, the city or county planner, the engineer, the recorder, or even the building inspector. In some small municipalities, this person may wear many hats.

Because school district and charter school construction can have a significant impact on such things as local truck, automobile and school bus traffic movement patterns, the location of utilities and other infrastructure components supporting schools, and planning and zoning ordinances within a community or neighborhood; prior to developing plans and specifications for a new public school, or the expansion of an existing public school, school districts and charter schools shall coordinate with affected local governmental land use authorities and utility providers [See 53A-20-108 of the Utah Code]. School districts and charter schools must also ensure that the siting or expansion of a school in the intended location will comply with applicable local government general plans and will not conflict with entitled land uses [See 10-9a-305 for municipalities and 17-27a-305 for counties, and 10-9a-406 of the Utah Code]. In addition, districts and charters must ensure that all local government services and utilities required by the school construction activities can be provided in a logical and cost-effective manner and that potential traffic hazards—including consideration of the impacts between the new school and future roadways—are avoided or appropriately mitigated.

Regardless, school district facilities planners should check with whomever assumes responsibility for planning and zoning as early as possible in the siting and planning phase of any new school building—or even the addition to an existing school building. This person should be able to tell school district and charter school officials about all the people, divisions, departments, and agencies which may have concerns regarding the new school building project. This group will review the proposal to uncover any potential conflicts with local ordinances, existing businesses, and the municipality or county master plans or future plans regarding the parcel of land upon which the school district wishes to build.

(2) Coordination with Utah Department of Transportation

It is important that traffic patterns surrounding a new school be compatible with the neighborhood as well as the school itself. Elementary and middle/junior high school vehicular traffic will be very different from that of a large high school. School bus movement within the neighborhood must also be considered. How many buses will there be, and how often will they deliver and pick up students? Where will the delivery and pickup points be? How will school bus traffic flow affect community and business traffic in the area? Are additional semaphores needed? Is a pedestrian bridge over a busy street or highway needed? The municipal or county planning staff will know if the location of the proposed school is a potential problem for Utah State Department of Transportation (UDOT) planning personnel. If it is, municipal or county planners can get school district planners in contact with the appropriate local UDOT person so that potential problems can be averted or resolved.

(3) Coordination with Utilities Providers

Utilities planning for new school construction must be considered many months, if not years, ahead of actual construction. Some political jurisdictions own some or all of the local utility providers. In any case, school district facility planners must meet with local utility providers [Rocky Mountain Power; Questar Gas; Qwest Communications] concerning the availability, capacity and location of the necessary utility lines. The municipal or county planning staff should also be able to give the names of the contact person for each utility service, even if all utility service is provided by an outside private agency. It may also be necessary to obtain approval for drinking water at new schools from the State Department of Environmental Quality, Division of Drinking Water, 150 North 1950 West, Salt Lake City, Utah 84114, (801) 536-4200.
Utilities can take an extraordinary amount of time to acquire. For that reason, school district and charter school facility planning personnel should start the approval process with the local county, city or town and the local utility service providers at least one year in advance of the anticipated construction start date. Good planning and coordination with local agencies will ensure a smooth construction schedule and good relations with the local agencies for years to come.

h. School Site Selection Summary

School site selection is a process that should involve parents, public planning agencies—such as cities, towns and counties—and many other individuals and groups. The general public should be kept continuously informed of the growing needs of the school district or charter school for new school sites which are adequately sized. Careful evaluation procedures should be followed which will clearly and fully document the reasons for selecting or rejecting a proposed school site acquisition. Finally, if possible, the site needs of the school district or charter school should be planned several years in advance of actual school construction.