I read through IEBC and it does seem that my situation either falls under Level 1 Alteration which is the removal of finishes and fixtures or Level 2 which would be the total amount of work that we are usually doing. The toilet rooms are only part of the work being done. Either way it looks like it is pointing me to chapter 11 of IBC and therefore ANSI. The only thing would be if we can argue that making the existing water closet compartment 5'-8" wide for instance would be technically infeasible.
Remember that under the IEBC (unless the jurisdiction has royally screwed it up, as Virginia appears to have done), there are three methods on compliance. The applicant/designer gets to choose which path to follow. Option 3, the Performance Method, is the equivalent safety points scoresheet approach. Very few applicants choose that, but it is available to you.
Far too many architects get confused between the Prescriptive Method and the Work Area Method. The concept of Level 1, Level 2, and Level 3 applies ONLY to the Work Area Method.
Start with the definitions. You mentioned replacing finishes and fixtures. The classification of Work i Chapter 6 uses some of those words, but the definition of "Repair" also uses those words:
REPAIR. The reconstruction, replacement or renewal of
any part of an existing building for the purpose of its maintenance
or to correct damage.
Direct replacement of finishes and/or fixtures is typically a repair. The IEBC Commentary adds this to the definition of "Repair":
As indicated in Section 105.2.2, the repair of an item
typically does not require a permit. This definition
makes it clear: repair is limited to work on the item
and does not include complete or substantial replacement
or other new work. Note that the definition deals
with repair both as it relates to maintenance and to
fixing damage inflicted on a building for various reasons.
For example, the replacement of stairs due to
daily wear and tear is related to the maintenance of a
building, whereas a wall hit by a forklift or damage as
a result of an earthquake would be considered damage.
So what is an "Alteration"?
ALTERATION. Any construction or renovation to an
existing structure other than a repair or addition
Commentary on the definition of "Alterations":
The code utilizes this term to reflect construction
operations intended for an existing building, but not in
the scope of an addition or repair (see the definitions
of “Addition” and “Repair”).
So then we go to Chapter 3, "Provisions for all Compliance Methods." Note that per 301.1, repairs, alterations, changes of occupancy, and additions are subject to one of the subsections of 301, and to sections 302 through 309. However, section 301.3 says that only alterations, changes of use, and additions are subject to one of the methods in 301.3.1, 301.3.2, and 301.3.3. So "Repairs" are not subject to the classification of work, and are not considered to be alterations.
I don't know where to look for it under the new (2010) ADAS but, when the ADA and the original ADAAG first came out in 1994, most states had had accessibility requirements under UFAS and/or some edition of A117.1 for close to 20 years. There was a provision, either in the ADA itself or in the ADAAG, that a facility which had been made accessible under a previous standard did not have to be upgraded to comply with a newer accessibility standard.
I don't know if this provision is still in the ADAS, or how it might impact state accessibility requirements under the IEBC and A117.1.
There appears to be considerable overlap[ between a "Repair" and a Level 1 Alteration. It may come down to the scope. If you have to patch the tile in a toilet room, that's a repair. If you strip it ALL out and replace it with all-new tile, that's a Level 1 Alteration. Ditto for fixtures. If you replace one fixture in a multi-fixture toilet room because it broke, that's clearly a repair. If you replace ALL the fixtures because they're shabby or outdated, that's a Level 1 Alteration. If you
add or eliminate any door or window, reconfigure or extend any system, or install any additional equipment, it becomes at least a Level 2 Alteration.
I don't think you can mix Level 1, Level 2, and Level 3 within a project. This, in an office alteration, even if all you're doing in the toilet rooms in replacing finishes and fixtures but NOT moving any walls, doors, or windows, but in the office areas you ARE adding or removing walls, doors, and/or windows, the entire project becomes a Level 2 Alteration. If the work area exceeds 50% of the floor area of the building, it rises to a Level 3 Alteration.