I have to question the O.P. just a bit.
If the building work is done a voluntary basis, how are they running millions of dollars over budget? I understand that building materials have to be purchased, permits have to be pulled, etc. But in most construction projects, the majority of the costs go to paying the workers. The org doesn't really have that problem.
Did the org hire and outside engineering and architectural consultants to do the designing? Did the org hire larger construction firms to do the big work? Even at that, I have a hard time believing that their building deficits are "in the millions".
Am I missing something?
I have witnessed first hand that they have hired construction firms, I saw them last year, at Warwick. They were also to sign a contract that wouldn't allow them to "interact" with witnesses and esp the sister. That project is too big and too complex to be JW's only. Multiple contract firms were hired and are still hired that I know of to move the project along at the needed pace.
I know one of the dorm complexes at Wallkill was millions over budget due to structure permits alone. Something about the area needing to be able to withstand a certain earthquake rating because it was a large housing complex that people lived in. That alone was a few million over budget in the structure alone. That was just ONE residential complex at WallKill. They just started remodeling another.