A few Baltimore schools had to close down a few years ago because they had no working heat/AC. Asbestos is an issue. As are pests. It's not that it was uncomfortable to be in some of these buildings, it was literally unsafe. When things get this dire, they cost a lot more to fix. Anything you move in to do uncovers other issues, and contractors can bend you over on change orders because it simply has to get done. I wouldn't be surprised to find some amount of graft involved, either.

So, yes, maintenance is a significant portion of spend. The schools were allowed to get into really bad shape, physically, in a way that doesn't at all reflect on the enthusiasm or capability of students or teachers.