Rule High SchoolVermont Avenue, Knoxville TN 37921

Date: July 24, 2013 CDC Project #1975

Contact: Leslie Fawaz, Community Design Center (865) 525-9945

Hugh Holt, Knox County Purchasing Department(865) 215-5777

Doug Dillingham, Knox County Schools(865) 594-1558

Rule High School

TABLE OF CONTENTS

REPORT OF FINDINGS

Project Description ..................................................................................... 1

Process and Recommendations ................................................................. 2

Project Participants .................................................................................... 3

Public Input Results ................................................................................... 4

Analysis of Public Input Results ................................................................. 6

Cost Estimates and Environmental Assessment ....................................... 8

APPENDICES

Appendix A - Options for the Board of Education .................................... 13

Appendix B - Public Meeting Presentation............................................... 19

Funding for this project is provided by Knox County, the City of Knoxville Community Development Block Grant, the United Way of Greater Knoxville, and the Tennessee Arts Commission.

Rule High School

PROJECT DESCRIPTION 1

The construction of the original Rule School Building was completed in 1927. The 1949 Auditorium and Gymnasium addition was designed by Edwin A. Keeble Architect and John W. Bush Engineer. The 1951 addition of the vocational building was Painter Weeks McCarty and in 1973 the cafeteria was renovated.

The school was named after Knoxville newspaper editor Captain William Rule (1839–1928). When it originally opened in the fall of 1927, it was an elementary-junior high school. An effort was made to append a grade 12 to the school curriculum, however that initially fell through. On April 14, 1937, 600 students from grades seven through 11, wanting a 12th grade, staged a walkout protest. The protest was reported on the front page of the New York Times. On May 9, 1938 the school board decided to add a 12th grade. The first 12th grade class, consisting of 31 students, graduated in 1939. Mary C. Hodge Halsey wrote the book, “Golden Memories of Rule High School - A History.” It is a 426 page book with pictures, copies of school programs, and stories of faculty members and students.

Rule High School was closed in 1991 and was inactivated on March 24, 2000. Currently the Knox County Board of Education houses a maintenance facility in the 1951 addition and has constructed 2 maintenance buildings on the site between the school building and the football stadium. The Board of Education leased the remaining portion of the school building to be developed into housing. That did not come to fruition and the building fell into major disrepair.

In November 2012, Knox County Board of Education Second District representative Ms. Indya Kincannon approached the Community Design Center to study possible adaptive reuses for the Rule High School building and site. The request was for a similar process of analysis and community input used in the Oakwood School project. The Community Design Center went to the City of Knoxville Community Development Department and Knox County Commission to support their work on the project. Support from the City is provided through the HUD funded Community Development Block Grant technical services contract and Knox County provided a technical assistance grant.

Rule High School

PROCESS AND RECOMMENDATIONS 2

The Community Design Center developed a public / stakeholder involvement process, assembled a representative steering committee, and a team of volunteer professional advisors to assist the Center. The process consisted of:

I. Documenting the existing building conditions

II. Identifying and organizing a representative steering committee

III. Identifying and organizing volunteer professional advisors including meeting facilitators, designers and construction professionals

IV. Organizing and facilitating a public input meeting

V. Request a Cost Estimate - Stabilization and Demolition and Environmental Abatement Assessment VI. Assessment of Input and Cost Estimates and Development of Options and Recommendations

Recommendations to the Board of Education

As a result of our investigations, community and stakeholder input, it is our belief that the present state of Rule High School is detrimental to the well being of the surrounding community. The building contains environmental hazards and sections of the building are blighted, abandoned, and have been left to deteriorate through neglect. It is our recommendation that the Knox County Board of Education, Knox County Government, and Knoxville City Government at a minimum engage in a collaborative effort to allow for revitalization of this site.

In order for the Board of Education to surplus all buildings and site there should be financial assistance offered to relocate the existing Knox County Schools Maintenance Facilities, which are located in a portion of the school building and two new structures located on the site. If this is not deemed viable then the Board of Education can explore other options to determine what portions of the building and site may be surplus. See Appendix “A”.

Rule High School

PROJECT PARTICIPANTS 3

STEERING COMMITTEE

Gloria Deathridge Knox County Board of Education District Representative

Rogers Doughty City of Knoxville, Community Development Department Bob Whetsel City of Knoxville, Director of Redevelopment Doug Dillingham Knox County Schools Building and Grounds Director Hugh Holt Knox County Purchasing Department Purchasing Director Steve Ritter Lonsdale Neighborhood Neighborhood Association Representative Jack Williams Rule Alumni Representative Kim Trent Knox Heritage Executive Director Tony Norman Knox County Commission Chairman, 3rd District Representative

COMMUNITY DESIGN CENTER

Wayne Blasius Volunteer / Local Developer

Mary English,PHD Volunteer Facilitator Dave Watson Executive Director Leslie Fawaz, AIA Studio Design Director Jordan Nalley Architecture Student Intern

Rule High School

PUBLIC INPUT RESULTS 4

A notice announcing a public meeting regarding Rule High School was made available through email lists, posters printed and placed in the windows of local businesses, and flyers distributed through the community. The meeting was held at the L.T. Ross building on Western Avenue, May 2, 2013. The purpose of the meeting was to gather input from the public and local community regarding possible solutions for the future of Rule High.

The meeting had 25 people in attendance - 11 of which were neighborhood representatives. They were asked to break into groups and given 2 questions to answer. Each group came up with 3 solutions to the questions. Afterward, the meeting participants were given 3 votes each to vote for their favorite solutions. Recorded below are the results.

Question #1 - What you do want to see developed on the site and in the building?

Community Center 13 Votes

All Sports Complex with Retail 12 Votes

Assisted Senior Living 8 Votes

Residential Housing 7 Votes

Mixed Use 4 Votes

Business Park 4 Votes

Residential Live/Work 3 Votes

Park Community Gardens 3 Votes

Restored As A School 1 Vote

Board of Education Office Building 1 Vote

Sustainable Development No Votes

Basketball Facility No Votes

Art Space No Votes

Affordable Housing No Votes

Rule High School

Question #2 - What you do not want to see developed on the site?

1. No demolition of whole school

2. No demolition without a plan

3. No vacancy continued

4. No Box store

5. No Police Station

6. No High-end condominiums

Alumni and Friends of Rule High School

After the initial public meeting, the Community Design Center was contacted by William O. Burris, an alumni of RHS, regarding the redevelopment of the RHS property. Mr. Burris is part of a group of RHS Alumni that meet socially, once a month. In a discussion pertaining to the current dilapidated state of RHS, the group would like to see the school redeveloped. One possible solution, they discussed, would be a Knox County Vocational School. Mr. Burris submitted a petition to the Community Design Center of more than 200 signatures from concerned alumni and friends asking that Rule High School be redeveloped in a beneficial manner.

PUBLIC INPUT RESULTS (continued) 5

Rule High School

ANALYSIS OF PUBLIC INPUT RESULTS 6

The following analysis and recommendations are compiled from local developer and contractor input received through the analysis and public input. Several suggested uses were considered from the public input meeting and the ones that received the top votes were analyzed. Most uses could qualify for Tax Increment Funding (TIF) to enhance project feasibility.

POSSIBLE USES

The following reuse options identified in the public input process are listed with their associated strengths and challenges.

COMMUNITY CENTER

Rule High School meets the criteria for reuse as a community center. A community center would require minimal rehabilitation as the school is very similar programmatically. Rule High has ample classroom space as well as athletic facilities for community sports. A community center would also benefit the community by providing after school activities as well as adult and senior oriented programs. It is to be noted that there are several existing Community Centers in close proximity including the L.T. Ross Building and the newly renovated Lonsdale Community Center.

SPORTS COMPLEX A public sports venue, including a community park, would be very positive for the neighborhood. Given the market-based challenges to make redevelopment economically feasible, this might be a good option. RESIDENTIAL The property is well suited for residential use due to its location. The Rule site makes for easy work commutes and is also near local colleges and schools. Another selling point is the expansive views of downtown Knoxville and the Smoky Mountains. A potential challenge to residential development is the cost of renovation and the market value of rents and sales in the area. It could be difficult to recoup the costs of renovation with current local property values and rental fees.

Rule High School

ANALYSIS OF PUBLIC INPUT RESULTS (continued) 7

ASSISTED LIVING Similar to residential, assisted living is another good fit for the Rule High site. The site provides a self-contained campus that accommodates the needs of assisted living residents. Additionally, the close proximity to downtown makes for ease of day trips to local theaters, parks and other activities. Like residential, a potential challenge to assisted living is the cost of renovation and the revenue generated. It could be difficult to recoup the renovation costs with the income generated from a assisted living facility.

BUSINESS PARK

The Rule High campus and local neighborhood are appropriate for office use. Programmatically, the high school lends itself for a simple office adaptation. Close to downtown Knoxville and highway 275, the site provides easy access by car. Rule High has plenty of on-site parking for employees and visitors. Challenges to a business park would be a lull in the Knoxville office building market versus the cost of renovation.

VOCATIONAL SCHOOL

RHS Alumni discussed the school being developed into a Knox County Vocational School. It is not known if the Knox County Board of Education has any interest in this site for that purpose. It would be one of the easiest rehabs, public funding would remove the market-challenges, and vocational training in the inner-city would be very beneficial and might encourage people to move back to the neighborhood.

Rule High School

COSTS ESTIMATES AND ENVIRONMENTAL ASSESSMENT 8

Three cost estimates were collected for this preliminary planning report, demolition cost, stabilization cost, and pre-renovation hazardous materials abatement costs. The demolition and stabilization costs were provided by Rentenbach Constructors Incorporated and the hazardous materials costs were provided by S&ME Inc. engineering.

DEMOLITION - Demolish 1927 and 1949 Buildings and stadium structures

Demolish 1927 and 1949 buildings (93,961sf @ $5/sf) $ 469,805Install 2 walls to secure 1951 addition (720sf @ $30/sf) $ 21,600Demolish stadium structures $ 75,000Miscellaneous site grading and seeding $ 30,000Contractors insurance, overhead and profit (15%) $ 112,902TOTAL FOR DEMOLITION without Environmental, 1951 addition, and maintenance buildings $ 709,307NOTES:1. This scope of work includes the following: a. Demolish the existing 1927 and 1949 portions of the school b. Following demolition, install new exterior wall closures at the ends of the two existing corridors that connect the 1951 vocational addition to the 1927 building. c. Demolish the football field bleachers, fencing, and structures d. Miscellaneous grading and grass seed at demolished structures2. No work is included for the existing 1951 portion of the school as this space is currently occupied by Knox County School Maintenance Department.3. No environmental assessments or abatement costs are included.4. No design fees are included.5. The cost estimates included herein are conceptual and are intended for planning purposes only.Estimate provided by: Marty E. Gibbs, PE, Vice President Rentenbach Constructors Incorporated - (865) 546-2440

Demolish Maintenance Facility (12,255 sf @$5/sf) $ 61,275*Demolish 1951 building (19,000 sf @ $5/sf)* $ 95,000*TOTAL FOR DEMOLITION $ 865,582*without Environmental See Recapitulation Chart *Figure based on square footage analysis of Retenbachs figures by the CDC.

Rule High School

COSTS ESTIMATES AND ENVIRONMENTAL ASSESSMENT (continued) 9

STABILIZATION - Repair roofing and secure 1927 and 1949 school buildings

Replace Roof, 67,935 sfa. remove existing roof @ $3/sf) $ 203,805b. remove / replace roof decking @ $2.78/sf $ 189,000c. install new EPDM roof (15-yr warranty) @ $9/sf $ 611,415

Cover Existing Windows with Plywood, 12,064 sfa. plywood @ $2/sf $ 24,128b. 2x4 supplemental framing @ $0.32/sf $ 3,850c. equipment rental (fork lift and personnel lift) @ $0.41/sf $ 5,000d. hardware / fasteners @ $0.10/sf $ 1,206

Contractors insurance, overhead and profit (15%) $ 155,761

TOTAL FOR STABILIZATION $1,194,165

NOTES:1. This scope of work includes the following: a. Re-roofing the existing 1927 and 1949 portions of the school b. Boarding up existing windows of the 1927 and 1949 buildings. c. Complete replacement of the existing roof deck with new steel decking - 1 1/2” 22 gauge (painted).2. No work is included for the existing 1951 portion of the school as this space is currently occupied by Knox County School Maintenance.3. No environmental assessments or abatement costs are included.4. Demolition and disposal of the existing roofing materials and roof decking is included with the assumption that no asbestos containing materials (ACM) are present. In the event ACM is discovered, either within the existing membranes or insulation, then this material will require abatement and disposal by a qualified abatement company.5. No structural framing and / or foundation improvements are included.6. With much of the existing roof decking concealed by plaster or gypsum ceilings, a “destructive” investigation should be considered in effort to better analyze the condition of the existing roof decking. If portions of the existing roof decking can be reused or repaired without full replacement, then the estimated costs included herein can be reduced.

Rule High School

COSTS ESTIMATES AND ENVIRONMENTAL ASSESSMENT (continued) 10

(Stabilization notes continued)

7. Gauging the existing roof decking conditions from that of the auditorium area (1949 addition), it appears the existing roof decking is a gypsum based and / or cementitious based deck assembly, and may likely require complete replacement. The most economical replacement is steel deck panels. The pricing herein is to replace the entire existing roof deck with steel decking. However, no costs are included for spray applied fireproofing (SAF) treatments. Depending on the future potential occupancy type, the need to add SAF at a later date may be required.8. No design fees are included.9. The cost estimates included herein are conceptual and are intended for planning purposes only.

Estimate provided by: Marty E. Gibbs, PE, Vice President Rentenbach Constructors Incorporated - (865) 546-2440

The following report on potential hazardous materials and associated costs was provided by Eric Solt, PG with S&ME Inc., 865-970-0003 with abatement cost assistance from A&A Contractors.

Pre-renovation hazardous materials survey $ 12,000 - $18,000Estimated asbestos abatement costs $900,000 - $1,200,000

TOTAL (Hazardous Materials Abatement Costs) $912,000 - $1,218,000

Based on the information you provided regarding Rule High, S&ME estimates that a pre-renovation hazardous materials survey would cost between $12,000 and $18,000. Please note that S&ME has not reviewed any asbestos survey or management plan information pertaining to the facility for this estimate. Likewise, S&ME requested that A&A Contractors review the information you provided regarding the facility and provide a rough estimate of potential asbestos abatement costs. Based on the information reviewed (age of structures, square footages)and experience with similar structures, A&A provided a range of estimated asbestos abatement cost of $900,000 to $1,200,000.

ENVIRONMENTAL ASSESSMENT

Rule High School

COSTS ESTIMATES AND ENVIRONMENTAL ASSESSMENT (continued) 11

BUDGET RECAPITULATION BUILDING STABILIZATION

STABILIZATIONENVIRONMENTAL ABATEMENTS&ME Inc. Engineering $12,000 $18,000

$900,000 $1,200,000

ENVIRONMENTAL ABATEMENT TOTAL $912,000 $1,218,000STABILIZATIONRentenbach Constructors Inc. Replace Roof - 67,935 sf

a. remove existing roof @ $3/sf $203,805b. remove / replace roof decking @ $2.78 sf $189,000

c. install new EPDM roof (15+yr warranty) @ $9 / sf $611,415

Cover Existing Windows with Plywood - 12,064 sfa. Plywood @ $2/sf $24,128

b. 2x4 supplemental framing @ $0.32/sf $3,850c. equipment rental (fork lift and personanel lift) @ $0.41 sf $5,000

d. hardware / fasteners @ $0.10/sf $1,206

Contractors insurance, overhead and profit (15%) $155,761TOTAL FOR STABILIZATION $1,194,165

TOTAL $2,106,165 $2,412,165

Estimate Range

COST ESTIMATE RECAPITULATION

Rule High School

COSTS ESTIMATES AND ENVIRONMENTAL ASSESSMENT (continued) 12

BUDGET RECAPITULATION BUILDING DEMOLITION

DEMOLITIONENVIRONMENTAL ABATEMENT (@ 80%)S&ME Inc. Engineering $12,000 $18,000

$900,000 $1,200,000

ENVIRONMENTAL ABATEMENT TOTAL @ 80% $729,600 $974,400

DEMOLTIONRentenbach Constructors Inc.

Demolish Maintenance Facility (12,255 sf @ $5/sf) $61,275Demolish 1951 addition (19,000 sf @ $5/sf) $95,000

Demolish 1927 and 1949 buildings (93,961 sf @ $5/sf) $469,805Demolish stadium structures $75,000

Miscellaneous site grading and seeding $30,000Contractors insurance, overhead and profit (15%) $109,662

TOTAL FOR DEMOLITION $840,742

TOTAL $1,570,342 $1,815,142

COST ESTIMATE RECAPITULATION

Estimate Range

Rule High School

OPTIONS FOR BOARD OF EDUCATION

Option 1 - Cost to Board of Education: 2.2 Million plus renovation costs.

Maintain control of the entire school building and entire site and convert existing school building into a vocational school. Tear down / renovate the stadium due to safety concerns future use to be determined

Option 2 - Cost to Board of Education: 2 Million plus renovation costs.

Maintain control of entire school building and maintenance facility, but surplus land with stadium. Demolition options – Tear down Stadium and clear this area of all structures due to safety concerns.

Option 3 - Cost to Board of Education: No cost

Surplus building portion not used and surplus stadium site. Maintain building addition currently being used and maintenance building.Allow building and stadium area to be owned and controlled by others.

Option 4- Cost to Board of Education: Cost to relocate services in the 1951 addition of the school.

Surplus school building and stadium, but maintain control of the maintenance facility

Option 5- Cost to Board of Education: 1 Million plusSurplus the building and entire site including maintenance facility and stadium

Rule High School building has the original building with the 1948 gym and auditorium addition and the 1951 vocational school addition. These two building sections are relatively independent of each other. The 1951 addition could remain usable building if the rest of the school is demolished. The original building and 1948 addition could remain if the 1951 portion is removed and a more historic and attractive building could be developed.

APPENDIX A - OPTIONS FOR BOARD OF EDUCATION 13

Rule High School

APPENDIX B - PUBLIC MEETING PRESENTATION 19

Hard copy of PowerPoint presentation given at public meeting, printed two slides per page.