Development of 20-Year Facilities Plan
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THE STRATEGY
A proactive 20-year roadmap designed to manage aging infrastructure before it becomes a financial crisis.
THE GOAL
Protecting our community's greatest asset - our schools - while ensuring fiscal responsibility for every home owner.
In August 2025, the Board of Education launched a proactive 20-Year Facility Plan to prepare our schools for decades to come while maintaining fiscal responsibility for taxpayers. A comprehensive needs assessment identified four aging schools - Pilgrim Park (1958), Swanson (1960), Wisconsin Hills (1969), and Tonawanda (1969) - that require reinvestment to remain safe, accessible, and aligned with today's educational standards.
Following 20 hours of meetings, the Board developed a two-part strategy: $71 million funded through district operating budgets to address scheduled maintenance and repairs over the next decade, and a long-term renovation component designed to extend the life of the four priority schools by 50 years through cost-effective renovation (40% - 50% less than new construction). With the 2008 referendum debt nearing retirement and the district currently at its lowest mill rate in history ($6.26), the timing presents a unique reinvestment opportunity.
The next step in the plan development process is community feedback via a mailed survey in April to guide final decisions regarding facility improvements and funding strategies.
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Our Story is Unique...
FINANCIAL BACKGROUND
Since the $62.1M high school referendum in 2008, the Board of Education has deployed several financial management strategies that benefit our students and the community.
Zero Deferred Maintenance
District has invested an additional $100 million from its annual operating budgets to maintain, repair and improve its facilities
Lowest Mill Rate
2025 marked the lowest mill rate in district history at $6.26
Aaa Rating
Earned one of only three Aaa bond ratings among 421 Wisconsin districts
$5.1M
Budgeted annually for ongoing facility maintenance
$3M
Interest saved on behalf of taxpayers through the refinancing of 2008 high school referendum debt
$45M
Through strategic healthcare plan design changes, Elmbrook has avoided over $45M in healthcare expenses
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Over the last 15 years, Elmbrook has deployed active facility consolidation and enrollment management practices
| 2012 | Closed Hillside Elementary |
| 2017 | Redistricting of Swanson Elementary to Dixon |
| 2018 | Sale of Central Administrative Office / Brookside Property |
| 2020 | New District Office |
| 2025 | Fairview South Renovation |
| 2026 | Sale of Hillside Property |
Reinvestment Opportunity
In 2028, the debt from the 2008 high school referendum will be fully paid off. As a result:
- The debt portion ($.56) of the school property tax mill rate will decrease.
- There is an opportunity to reinvest up to $85 million in facilities without increasing the debt portion of the school property taxes over the current level.
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FACILITY PLANNING BACKGROUND
Last summer, the Board of Education began working with consultants to study the academic, security, and maintenance needs at each school. After evaluating various options, including building new schools, we determined that renovating our schools was most cost-effective.
Over the past few months, the Board drafted a plan to guide the investments needed at each school over the next 20 years. We are now asking our community to evaluate two different funding strategies.
1. Ongoing building maintenance would be paid for through the annual operating budget.
Over the next ten years, the District would spend $71 million on regular maintenance, including repairing and replacing:
- Major building systems (HVAC, plumbing, and electrical)
- Roofs and parking lots
- Windows and doors
- Athletic fields
- Security cameras and monitoring systems
2. Renovating the District’s four oldest schools would be paid for by a voter-approved referendum.
Major renovations are too expensive to be paid for through the annual operating budget. Because of this, the District would need to ask voters to approve a capital (building) referendum to fund these larger projects. The estimated cost of these renovations is $100 million. Specific project details are provided below.
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These projects are intended to modernize learning spaces, improve accessibility and safety, and ensure these schools continue serving students and the community for decades to come.
Pilgrim Park Middle School
Built in 1958
Proritized Needs:
- Light renovation in all classrooms (replace ceiling tiles and flooring, update lighting, and paint)
- Address Americans with Disabilities Act (ADA) accessibility issues in the music and gym areas
- Expand the gym to accommodate three simultaneous classes due to growing enrollment
- Update robotics, woods, art, and technology classrooms to meet curriculum standards
- Improve traffic flow on Pilgrim Parkway and reduce congestion around the school site
Enrollment & Facility Capacity
2025 Enrollment: 915 students; 80% Capacity
Facility Capacity: 1,146
Project Estimate: $52M
Tonawanda Elementary School
Built in 1969
Prioritized Needs:
- Replace the open-concept layout with classroom walls to improve student focus and safety
- Expand classroom sizes to meet current District space standards
- Redesign parts of the building to align with current District security standards
Enrollment & Facility Capacity
2025 Enrollment: 518 students; 91% Capacity
Facility Capacity: 569
Project Estimate: $33M
Swanson Elementary School
Built in 1960
Prioritized Needs:
- Redesign academic support spaces and improve ADA accessibility
- Remodel the library and large learning areas for classroom instruction and community use
- Light renovation in all classrooms (new ceiling tiles, lighting, paint, and flooring)
Enrollment & Facility Capacity
2025 Enrollment: 785 students; 79% Capacity
Facility Capacity: 995
Project Estimate: $9M
Wisconsin Hills Middle School
Built in 1969
Prioritized Needs:
- Update robotics, woods, art, and technology classrooms to meet current curriculum standards
- Improve ADA accessibility in the music area
- Remodel the cafeteria for large-group instruction and community use
Enrollment & Facility Capacity
2025 Enrollment: 854 students; 74% Capacity
Facility Capacity: 1,115
Project Estimate: $6M
While we have earmarked $71 Million from future annual operating budgets for repairs and small improvements at all schools, four of our facilities (built 1958–1969) require more than just routine maintenance to prepare these spaces for use over the next 50 years. With prioritized needs identified, the next question is how to fund them. These options illustrate different funding approaches and the corresponding impact on taxpayers.
COMPREHENSIVE
PLAN
$.11 MILL RATE INCREASE
(TOTAL $.67)
DEBT REPLACEMENT PLAN
$.56 MILL RATE
(NO CHANGE)
If Elmbrook voters approve the debt replacement plan, the property tax mill rate would not increase over the current level.
DEBT
RETIRED
$.56 MILL RATE REDUCTION
Tax Reduction: $56/$100K Value
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ACTIVELY SEEKING COMMUNITY FEEDBACK
April 2026 Community Survey
Conducted by School Perceptions, this community-wide survey will be distributed to all households, staff, and families in April 2026. Results will be weighted to reflect district demographics (including 60–70% non-school-age households) and presented to the Board on May 12. All residents are encouraged to partake in this survey to help guide next steps.
Facility Tours
APRIL TOURS: We invite you to tour Tonawanda and Pilgrim Park, ask questions, and see the challenges we aim to address.
- Wednesday, April 15; 6-7pm | Tonawanda
- Thursday, April 16; 6-7pm | Pilgrim Park
In February 2026, 110 residents participated in four facility tours held at Pilgrim Park, Swanson Elementary, Wisconsin Hills, and Tonawanda Elementary. Additional details about these facilities and their prioritized needs can be found in the Facility Profiles above.
Senior Leadership Listening Sessions
Throughout February, Elmbrook’s Senior Leadership team hosted listening sessions with staff across the District to provide education on the complexities of the facility plan. These sessions created space for staff voices to be heard and ensured their perspectives were thoughtfully considered as planning efforts continue.
Municipal Leadership Engagement
Elmbrook’s Senior Leadership team and Board of Education are actively engaging with Village and City officials, residents, and community stakeholders to foster thoughtful dialogue around this complex topic. In addition, they are meeting with and presenting to local community organizations to provide clear, transparent information, answer questions, and ensure stakeholders are well-informed as planning and decision-making efforts move forward.
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Updates
Chris Thompson (Chief Strategy Officer) provided an update to the Board of Education at Tuesday's meeting on the development of the 20-year Facilities Plan. You can view his presentation here and learn more about the planning process on our webpage: elmbrookschools.org/facilityplanning.