Project Overview

Over the past decade, Norfolk Public Schools have experienced substantial growth in enrollment, adding over 100 students. Enrollment at H. Olive Day School has risen by 25%, while Freeman Kennedy School is currently operating at full capacity. This surge in enrollment has led to a significant shortage of educational space. To accommodate the growing number of students at H. Olive Day School, the music room, technology lab, teacher prep room, server room, and library offices, have been repurposed as classrooms and instructional spaces. The stage/auditorium are at HOD has been converted into storage and office space for the music teacher and technology integration specialist. At Freeman Kennedy School, the science lab has been converted into a classroom. Curricular and instructional programs have been negatively affected by the lack of space, and class sizes in Norfolk are now larger than those in comparable districts, including Plainville and Wrentham.

Since 2017, the school district has been analyzing this issue to find a cost-effective solution that ensures adequate educational space. Over the past six years, the district and School Committee have conducted three separate demographic studies to assess current enrollment and project future growth. All studies confirm that this is not a short-term problem, with the most recent demographic review by Demographic Analytic Advisors (2023) predicting an additional 200 students by 2035. Currently, it is likely that the Art room at the H.O.D. will be converted into a classroom next year. There is simply no additional space. Even with larger class sizes, Norfolk’s current facilities will not be able to accommodate this growth.

Evaluating Options And Proposed Solution

After evaluating several options, including constructing an early childhood facility, using modular classrooms, and considering various building expansions, it was determined that an addition to the Freeman Kennedy School was the most efficient solution. This project will address the space shortages at both schools by relocating preschool programs from H. Olive Day School to Freeman Kennedy. The upper floor of the addition will contain additional classroom space for grade 3-6. Norfolk’s preschool programming and the district Special Education offices will be relocated from H.O.D. to the first floor of the addition. Seven classrooms, and additional instructional space for specialists,  will be freed up at H. Olive Day. The music room and auditorium/stage area will also be reclaimed. At Freeman Kennedy  approximately 37,000 square feet of new space will be created to address both current and future needs.

Feasibility Studies And Decision Making

A construction feasibility study, funded with Town Meeting approval in 2023, was conducted to assess the project's viability. A dedicated School Building Committee, made up of town officials, School Committee members, and residents appointed by the Select Board, was formed in 2024. The School Building Committee conducted a second feasibility study to assess potential modular classroom solutions. After thorough review, the committee unanimously chose the permanent building addition as the most cost-effective long-term solution. A permanent addition has a longer life expectancy than a modular classroom solution, with fewer disruptions to time on learning and better security than a detached modular classroom option. 

Estimated Cost And Funding

The proposed permanent building addition is estimated to cost $37.9 million, this estimate includes construction and all“soft costs”associated with the project. Norfolk Public Schools is currently seeking $4.3 million to cover the design development, construction documentation, and bidding phases of the project. This funding was approved by a 2/3 majority vote at the 2024 Norfolk Fall Town Meeting. As part of a debt exclusion, the funding must also be approved through a ballot vote on February 1, 2025. The $4.3 million is a component of the overall cost estimate of $37.9 Million dollars. During this phase, the School Building Committee, School Committee, and design team will refine the design, create construction documents, secure local and state permits, and solicit construction bids. Additionally, an Owner’s Project Manager (OPM) will be hired to represent the Town’s interests throughout the project. The design phase is expected to take 12-18 months. At the end of this phase, Norfolk will present a firm construction bid to Town Meeting for approval before proceeding with the bid award and construction. This two-step approach, funding both the design and construction phases through separate debt exclusion votes, ensures that the construction costs will be based on a reliable, firm bid, removing any uncertainty for Town Meeting. The estimated average tax impact of the proposed $4.3 Million dollar debt exclusion is $171.92 annually. The estimated impact of the second debt exclusion (to fund the remaining project costs) on the average household is $722.08. As such, the combined tax impact for the two anticipated debt exclusions on the average household is $894.00 annually. To date, Town Meeting has approved the expenditure of $494,000 on demographic studies and feasibility work associated with this project. If the project is approved as presented, the new addition is anticipated to open in the Fall of 2027. 

What If The Project Is Not Approved?

If the project is not approved, Norfolk Public Schools will face the challenge of accommodating an additional 200 students within its current facilities, which is not physically possible. As a result, the project will be brought back to Town Meeting for further review and approval in the future. Cost estimates for the project are expected to increase by 4% to 12% annually, based on publicly available data. Furthermore, with schools already overcrowded, temporary solutions, such as modular classrooms in trailers, may be required during the project, leading to higher costs for the town and potentially disrupting the quality of instructional programs.