It seems that the strategy is to nominally reduce the scope of the project to bring the cost below the threshold where a community referendum is required. But after the project is well along and the inevitable cost overruns arise, the school board will add to the budget with the rationale that "we can't stop now with an incomplete and unuseable building," and hence avoid a community referendum.
Remember the elementary school renovation projects --- when it was all said and done, we paid far more than the original estimate.