REPORT TO COUNCIL
SUBJECT
Title
Discussion of the George F. Haines International Swim Center Visual Observation Assessment Conducted by LPA, Inc. and an Overview of Next Steps
Report
COUNCIL PILLAR
Enhance Community Sports, Recreational and Arts Assets
BACKGROUND
The George F. Haines International Swim Center (“Swim Center”) has been in operation since 1967. The Swim Center includes an administrative building, support buildings for restrooms and storage, concrete viewing stands, a 50-meter x 25-yard competition pool, a 6-lane x 25-yard instructional pool and a diving pool with a diving tower that accommodates five springboards and a 10-meter diving tower.
The Swim Center is operated under the auspices of the City’s Parks and Recreation Department which offers a vast array of aquatic programs for the public. In addition, the Swim Center has historically served as the home facility for local swimming groups such as the Santa Clara Swim Club, Aquamaids and the Santa Clara Dive Club.
The Swim Center, currently in its 56th year of operation, has far exceeded the standard useful life of a community pool which is generally accepted to be in the range of 25 to 40 years. Moreover, many of the amenities within the center have also exceeded their useful life as noted in the 2018 Parks & Recreation Facility Condition Assessment Document (Attachment #1 - Kitchell Report).
Over the years, there have been numerous discussions regarding the need for a renovated or rebuilt facility; however, polling results of Santa Clara voters has indicated that the level of support is not sufficient to warrant a revenue measure for a new Swim Center. Furthermore, the City does not have an existing capital improvement budget that could support the scope and magnitude of a renovated or rebuilt facility without negatively impacting the City’s other unfunded capital needs which is estimated to be in excess of $571 million dollars. Consequently, the City has invested its limited resources into maintenance of the facility in an effort to further extend the useful life of the existing facility pending the identification of a viable funding strategy.
Despite this effort, it is important to note that in 2023, approximately 100 days of service capacity was lost at the Swim Center due to equipment failures - primarily because parts are no longer available due to the age of the existing infrastructure and equipment. The City’s strategy to extend the life of the facility through maintenance is no longer productive or sustainable. An alternative strategy is needed.
In July 2023, the City Council approved a budget appropriation to hire a consultant to assist the City in exploring the viability of a potential November 2024 revenue measure to fund infrastructure. The consultant has been selected and an agreement is currently in development. In February, staff will be bringing forward an overview of the timeline and milestones for a potential November 2024 Revenue Measure. Potential funding for aquatic facilities is just one of numerous categories of City facilities that may be considered for inclusion in a November 2024 Revenue Measure.
To provide additional information on all park and recreation facilities, and detailed information on the Swim Center, the City has initiated three separate but related efforts:
1. The development of a Parks Master Plan to help guide a community discussion around a vision for future parks and recreational amenities including aquatic facilities. A presentation on the overall timeline and process for the development of the Parks Master Plan is also tentatively scheduled to be brought forward to the City Council in February 2024;
2. An assessment of the Swim Center to identify and evaluate current conditions, provide documentation related to deficiencies and an estimate of costs to address those on-site deficiencies. The consultant team of LPA Inc. (“LPA”), Aquatic Design Group and SGH was hired to perform this work; and
3. A preliminary analysis of replacement options and cost estimates. This work builds upon and updates previous studies that identified options to replace the Swim Center, under various scenarios. Specifically, the City has retained HL Construction Management Inc. to develop preliminary cost estimates to reconstruct the Swim Center under the following scenarios:
i. Replace the existing Swim Center in the same location: This option involves a reconstruction of the existing facility with similar or identical pool sizes as well as replacement of the drive tower, grandstand, and accessory structures.
ii. Redesign and reconstruct Swim Center in the same location: This option involves a redesign of a new facility at the existing site reflective of current trend in aquatic facilities (for example, a zero-depth entry and/or recreational pool or a splash pad amenity).
iii. Design and Construct a new Swim Center in an alternative location within Central Park: This option involves the design of a new facility at an alternate location (as envisioned in the Central Park Master Plan), reflective of current trends in aquatic facilities (for example, a zero-depth entry and/or recreational pool or a splash pad amenity).
The purpose of this report is as follows:
1) To provide the consultant team the opportunity to present their findings and respond to questions regarding their report;
2) To provide an opportunity for staff to provide an update on the actions that have been taken since the draft report was received by the City, as well as efforts to assist the stakeholders that have been impacted by the decision to close the Swim Center; and,
3) To identify future actions that may need to be considered in order to maintain the safety and security of the Swim Center and surrounding Central Park amenities.
DISCUSSION
Visual Observation Assessment Report
On January 11, 2024, City staff met with representatives of the LPA consultant team to review preliminary findings. The consultant team recommended that the Swim Center not be used until such time as repairs or replacements could be completed to address safety and structural concerns noted in their report. Out of an abundance of caution, the City Manager directed staff to close the facility immediately pending the completion and presentation of the consultant’s final report.
Enclosed as Attachment 2 is the final report from the consultant team. The consultant team examined the Swim Center for compliance with several codes and standards such as the California Building Code, the California Mechanical Code, and the California Plumbing Code. It is important to note that the report does not fully examine accessibility issues at the facility and that no specific findings were made under the Americans with Disabilities Act (ADA). Issues related to accessibility at the Swim Center are addressed in the City’s ADA Self-Evaluation and Transition Plan.
As noted in the report, some of the major deficiencies include, but are not limited to, the following:
Administrative Building
1. Supporting walls and columns in the main administrative building are structurally unsound and have significant corrosion of metal components;
2. A shower addition that was previously shut down by the City;
3. Elements of the main building such as the tower to the south of the existing building on the roof are not part of approved plans.
4. The low-slope roof has 16 “skylight” openings with no cover, safety
barrier, or safety markings. This safety hazard is exacerbated by the ease of roof-level access, where a single flight of stairs leads directly to the roof (there are no locked gates or restrictions to the roof level).
Diving Tower and Viewing Windows
1. Corrosion and cracking of the Diving Tower platform that affects the structural integrity of the tower and creates unsafe conditions for the users.
2. A main staircase that is corroded beyond use and is currently in an unsafe condition.
Pools and Deck
1. The pool mechanical and lighting systems have a variety of code violations that will require significant investment to remedy and upgrade to meet building code requirements. For example, the 50-meter pool and the training pool are on the
same pump and filter system which is no longer allowed. In addition, both the pool deck and the pool shell plaster are delaminating and cracking which will require replacement.
2. Throughout the pool deck, there are signs of deterioration and distress indicating the deck is at or beyond its life expectancy.
3. The diving pool mechanical system does not meet the code which requires a six-hour turnover rate.
4. The viewing area under the deck at the dive pool and the deck above are showing signs of deterioration and raises concern related to its structural stability.
Viewing Stands
1. Roof drains have eroded the foundation of the columns and towers.
2. Tower and supporting stairs for access to roof needs replacement.
3. There was limited, if any, compliant accessible seating throughout the facility.
4. Portions of the gutters of the main canopy are corroded to the point of failure creating safety concerns for the storage and concession areas that are under the main canopy.
At the January 30, 2024 City Council meeting, the consultant team will present their findings and will be available to answer questions regarding their report including the various factors that led to their recommendation that the City not use the facility until the conditions noted in their report have been addressed.
Engagement with Affected Stakeholders
The sudden closure of the Swim Center impacted both City-sponsored programs as well as the programs of the Swim Center’s community partners. To minimize the impact to aquatic programs, the City has relocated its lap swim program to the Mary Gomez pool site and has also offered time at Mary Gomez pool to the Santa Clara Swim Club. The Warburton pool has been made available to the Aquamaids as well as to the Santa Clara Dive Club. It is important to note that these Aquamaids and Santa Clara Dive Club require elevated pool temperatures so the use of the Warburton pool for the City’s lap swim program or the Santa Clara Swim Club’s programming is not a viable option from an operational perspective.
City staff has also been in contact with counterparts in other cities and the Santa Clara Unified School District to inquire about the availability of their pools. Both the City of Sunnyvale and the Santa Clara Unified School District have indicated that they have connected with the Santa Clara Swim Club and discussions are ongoing.
In a meeting with the Santa Clara Swim Club, the Club identified the need for office space, storage, and dry land training facilities. On Friday, January 19th, City staff conducted a tour of all pool facilities to identify options to meet these needs. Preliminary research indicated that the Montague pool site might accommodate the needs of the Swim Club with some modifications and the development of a use agreement. It is important to note that this site is a School District property for which the City has a joint-use agreement. City staff has contacted the District and confirmed that the District is open to the use of the site to support the City’s efforts to assist the Swim Club.
On Wednesday, January 23rd, staff noted that the plaster in both pools is now cracking and will require remediation. Consequently, until the site can be fully evaluated, the Montague pool site is not considered to be a viable option for water programs at this time.
Nevertheless, the Montague pool site can be made available for office space, storage and dry land training. As such, City staff will be scheduling meetings with the Swim Club to discuss the requirement improvements needed to accommodate their use, development of an agreement with respect to operations, maintenance, and rental use fees as well as a timeline for a smooth transition. Staff has been in communication with the Swim Club and will be moving forward with these negotiations in the coming weeks.
While the City does not have the capacity or fiscal resources to address all of the needs of the affected stakeholders, staff remains committed to developing solutions in partnership with the groups with a goal of minimizing the negative impacts related to the closure of the Swim Center.
Impact to Central Park Operations
As noted in the consultant’s report, the storage areas and restrooms located adjacent to the viewing stands are in relatively good condition with accessibility from inside the Swim Center, as well as the outside park area. However, the corrosion on the roof of the viewing stands and its proximity to these support amenities is a cause for concern. Staff has requested further analysis of whether these areas could be used if the damage to the roof can be remedied. These amenities are critical to the operations of Central Park in that the northern restrooms serve the softball fields and the restrooms on the south side provide service for the lawn bowling area. In addition, both facilities are critical amenities that support larger community events such as the Art and Wine Festival. Moreover, if this area can be utilized safely, that will also help alleviate the need for storage for both City and Swim Club programs. Staff will be working with the consultant to further evaluate options that might allow for the continued, safe use of these facilities.
Next Steps
It is recommended that the City Council note and file the consultant’s report. Staff will review the recommendations in the report and develop short and long-term proposals including, but not limited to:
1. A determination regarding the continued accessibility of the storage and restroom areas;
2. Actions needed to maintain the safety and security of the existing pool site;
3. Actions needed to accommodate an increase in programming at other pool sites;
4. Design options and funding alternatives to replace the existing Swim Center; and
5. A status report on the ongoing efforts to maintain programming and services impacted by the Swim Center closure.
Staff would return to Council with an update prior to the end of the fiscal year (June 2024) for consideration prior to the discussion and action on a potential November 2024 ballot measure.
ENVIRONMENTAL REVIEW
The action being considered does not constitute a “project” within the meaning of the California Environmental Quality Act (“CEQA”) pursuant to CEQA Guidelines section 15378(a) as it has no potential for resulting in either a direct physical change in the environment, or a reasonably foreseeable indirect physical change in the environment.
FISCAL IMPACT
The fiscal impact of this report will depend on future decisions related to the development of a replacement facility as well as actions related to the safety and security of the existing facility. In the short term, the City does not anticipate a loss of revenues as City programs can be accommodated in alternate facilities. However, to the extent that City facilities are constrained or negatively impacted by unanticipated maintenance issues, revenues from the aquatics programs may be impacted. Non-City stakeholders groups will most likely incur a fiscal impact related to their need to identify alternative programming sites.
COORDINATION
This report has been coordinated with the City Manager’s Office, the City Attorney’s Office, and the Department of Parks and Recreation.
PUBLIC CONTACT
Public contact was made by posting the Council agenda on the City’s official-notice bulletin board outside City Hall Council Chambers. A complete agenda packet is available on the City’s website and in the City Clerk’s Office at least 72 hours prior to a Regular Meeting and 24 hours prior to a Special Meeting. A hard copy of any agenda report may be requested by contacting the City Clerk’s Office at (408) 615-2220, email clerk@santaclaraca.gov <mailto:clerk@santaclaraca.gov> or at the public information desk at any City of Santa Clara public library.
RECOMMENDATION
Recommendation
Note and File Report
Staff
Reviewed by: Cynthia Bojorquez, Assistant City Manager/Acting Parks & Recreation Director
Approved by: Jōvan Grogan, City Manager
ATTACHMENTS
1. Kitchell Report
2. LPA Visual Observations Assessment Report