REPORT TO PARKS AND RECREATION COMMISSION
SUBJECT
Title
Parks and Recreation Commission Will Consider a Recommendation to Council to Adopt Definitions for Aquatic Facility Use Categories; Adopt Priorities of Aquatics Facility Use; and Approve Amendment to the FY 2025/26 Municipal Fee Schedule and sequential adjustments through Fiscal Year 2028/29
Report
BACKGROUND
The City of Santa Clara has a long-standing commitment to supporting youth organizations, including sports (e.g., Police Activities League, baseball, football, soccer, aquatics), dance, and the Special Olympics.
The City operates eleven pools across five aquatic facilities: the George F. Haines International Swim Center (ISC), Mary Gomez Swim Center (Gomez), Montague Swim Center (Montague), Warburton Swim Center (Warburton), and the Natatorium at the Senior Center. The Parks and Recreation Department uses these facilities to offer swim lessons, recreational swim, lap swim, and aquatic fitness programs. The pools are also available for hourly and seasonal rentals by local youth non-profit aquatic organizations.
Historically, three Santa Clara-based 501(c)(3) youth aquatic clubs have been the primary users under City permits: the Santa Clara Diving Club, the Aquamaids - Santa Clara Artistic Swimming Club, and the Santa Clara Swim Club. These organizations (Clubs) provide youth competitive aquatics programs, swim instruction, and some adult fitness offerings.
Over the years, these Clubs have entered into various agreements with the City for facility use; however, the associated fees have not been applied consistently across all sites and/or Clubs. These inconsistencies have contributed to a gap in the City’s ability to fund ongoing operating costs, labor, maintenance, and capital improvements. The existing agreements and fee structures do not align with the City Council’s adopted cost recovery model and are insufficient to meet the long-term infrastructure and community needs.
Between 2024 and present, the City Council has held multiple meetings regarding the future of the ISC; including an interest in developing a new fee and operational model for all aquatic facilities that better aligns with operating costs and long-term capital replacement needs. In December 2024, staff began holding monthly in-person meetings with Club representatives to strengthen community collaboration, provide updates on ISC projects, discuss Measure I General Obligation Bond opportunities, and gather input on facility design elements.
DISCUSSION
Public swimming pools serve as more than just a place to cool off on hot summer days. Learning to swim is an important life skill, and aquatic facilities are essential for mental and physical health and fostering a sense of community.
The City’s long-standing practice of subsidizing local non-profit organizations through fee waivers and below-cost facility rentals has not kept pace with the operational and capital expenses required to maintain the City’s infrastructure, including its aquatics facilities. As facility infrastructure continues to age, the costs for operations, maintenance, and capital improvements have outpaced the City’s capacity to fund them through the General Fund. The emergency closure of the ISC in January 2024 highlighted this issue and reinforced the need to assess how the Parks and Recreation Department and local non-profit Clubs collaborate to meet the community needs through programing efforts at the City’s aquatics facilities moving forward.
The purpose of this report is to describe the process staff used to research and develop Aquatics Facility User Categories, Priorities of Use, and a new Municipal Fee Schedule for Parks and Recreation Commission recommendation to the City Council for final approval. The proposed framework establishes transparent user group categories and definitions, and facility allocation process between the City, the Clubs, and the public, while aligning fees with the City’s cost recovery policy and Measure I Bond requirements. Consistent application of this fee structure across all aquatic facilities and Clubs will also support more efficient and sustainable operations, maintenance, and long-term capital replacement.
The proposed Aquatics Facility Use Categories and Priorities of Use reflect the City’s continued commitment to youth sports and recreation and mirrors the same approach used for the Youth Sports Field User Group Categories and Definitions and Fee structure adopted by City Council in March 2025. The proposed structure further emphasizes the importance of water safety, youth athlete development, and the City’s commitment to health and wellness.
AQUATIC USER GROUP CATEGORIES AND DEFINITIONS
Resident Youth Non-Profit Organization - A “resident youth non-profit organization” is defined as an organization registered as a current 501(c)(3) IRS with State and Federal government with a Santa Clara address, membership open to the public, and roster(s) reflecting at least 51% Santa Clara residents.
Resident Adult Non-Profit Organization - A “resident adult non-profit organization” is defined as an organization registered as a current 501(c)(3) with State and Federal government with a Santa Clara address, membership open to the public, and roster(s) reflecting at least 51% Santa Clara residents.
Other Government Agency - For the purposes of this document “Other government agency” is defined as a School District, Military, County, State or Federal government entity/organization.
Santa Clara Resident - A “resident” is defined as an individual who resides or owns property in the City of Santa Clara. Residency will be verified through a CA driver’s license, utility bill, vehicle registration, bank statement or like documentation. Residency may also be established by proof of attendance at a Santa Clara Unified School District school or a private school located within the City of Santa Clara.
Non-Resident - A “non-resident” is defined as an individual or organization that does not meet the resident definition outlined above.
Commercial Entity - A “commercial entity” is a company or business entity hosting a recreational event or commercial activity. Facilities are not available for commercial activities unless authorized by appropriate permit, license, or agreement with the City.
Tie-Breaker for Competing Requests - If competing use requests occur within a use category, priority will be granted to organizations according to the following metrics:
1. Organization serving 51% or more Santa Clara residents;
2. Total number of Santa Clara residents served;
3. Historical use of City of Santa Clara facilities with use and fees in good standing.
AQUATICS USER GROUP PRIORITY
Priority User Group #1 - City Programs
City of Santa Clara scheduled programs and activities (e.g., recreation swim, lap swim, swim lessons, water exercise, competition, special event, etc.).
Priority User Group #2 - Santa Clara Resident Youth Non-Profit Organization
Youth non-profit organization; Participant proof of residency requirement verified by roster(s) and all non-resident youth participants are subject to a contribution toward the City’s scholarship program (currently the Wade Brummel Program or a future aquatics-specific program). Tie-breaker will be implemented to resolve competing requests.
Priority User Group #3 - Santa Clara Resident Adult Non-Profit Organization
Santa Clara based organization; Organization serving adults ages 19 and up, current 501(c)3 status, and participant proof of residency requirement verified by roster(s). There is no requirement to contribute to the scholarship program in this user group category. Tie-breaker will be implemented to resolve competing requests.
Priority User Group #4 - Other Government Agency
Government organization serving youth or adults; Santa Clara Unified School District, Military, County, State, or Federal. There is no requirement to contribute to the scholarship program in this user group category. Tie-breaker will be implemented to resolve competing requests.
Priority User Group #5 - Santa Clara Resident - Non-501(c)3, Private Use
Proof of residency for individual or organization submitting application; individual submitting the application must be present during the reservation and serve as the point of contact with the City. Competing requests within this user group category are resolved/allocated on a first-come, first-served basis (date and time stamp implemented on all applications within Group #5). There is no requirement to contribute to the scholarship program in this user group category.
Priority User Group #6 - Non-Resident - Non-501(c)3, Private Use
Individual or organization whose membership does not meet the minimum requirements for Groups 2 - 5. Competing requests within this user group category are resolved/allocated on a first-come, first-served basis (date and time stamp implemented on all applications within Group #6). There is no requirement to contribute to the scholarship program in this user group category.
Priority User Group #7 - Commercial Entity
A company or business entity. Competing requests within this user group category are resolved/allocated on a first-come, first-served basis (date and time stamp implemented on all applications within Group #7). There is no requirement to contribute to the scholarship program in this user group category.
AQUATICS FACILITY PERMIT APPLICATION SCHEDULE
Applicants must submit a Facility Permit Application according to the following quarterly deadlines. Applications must include program type, preferred and alternate locations, requested dates and times and number of lanes.
|
Deadline |
Use Period |
|
November 1, 2025 |
January 1, 2026- May 31, 2026 |
|
May 1, 2026 |
June 1, 2026 - August 31, 2026 |
|
July 1, 2026 |
September 1, 2026 - December 31, 2026 |
|
July 1, 2026 |
Subsequent events in the upcoming year, January - December 2027 |
Complete rental guidelines will be available online and provided to the user with each approved permit.
AQUATICS FACILITY FEE SCHEDULE
The City’s FY 2025/26 Municipal Fee Schedule currently establishes pool rental rates at $82 per hour for shared use and $289 per hour for exclusive use. These rates do not account for factors such as organization type, residency, facility size, or lane usage. As a result, the existing fee structure is outdated and does not reflect current market rates or the actual cost of operating and maintaining aquatics facilities.
To develop updated fees, staff worked with the City’s third-party vendor, ClearSource, to evaluate operating and capital replacement costs. ClearSource recommended maintaining the FY 2025/26 rates of $82 per hour (shared) and $289 per hour (exclusive), consistent with cost estimates. Additionally, a 2019 Bay Area Pool Operators Association (BAPOA) study conducted for the City of Sunnyvale, benchmarked municipal aquatics facility rental rates across Santa Clara County including Campbell, Cupertino, Los Gatos/Saratoga, Milpitas, Morgan Hill, Mountain View, Palo Alto, San Jose, Sunnyvale; YMCA, private facilities and non-Santa Clara County sites were excluded from this exercise. The analysis revealed wide variation in pricing structures, amenities, and fee methodologies among agencies varying from $7.83 to $12.50 per lane, per hour, with additional fees for agencies requiring the renter to utilize the city’s lifeguards.
Based on benchmarking data and the City’s aquatics inventory, staff proposes a lane-based fee structure for FY 2025/26 and beyond, applicable to the Mary Gomez, Warburton, Montague, and ISC facilities. As proposed, each facility will have a two-hour minimum rental equivalent to its full pool lane count, except for the Racing Pool at the ISC where two options are recommended, half pool (11 lanes) or full pool (22 lanes) rental. Lifeguards may be made available at an additional expense according to availability.
|
|
Gomez |
ISC |
Montague |
Warburton |
|
Number of Total Lanes |
6 |
6, Training 22, Racing 7, Dive |
4 |
6 |
|
Proposed Rental Guidelines` |
Min 6 lanes |
6, Training, 11 or 22, Racing 7, Dive |
Min 4 lanes |
Min 6 lanes |
Proposed Aquatics Facility Per-Lane Fees
Staff analysis resulted in a proposed rate structure intended to assist with cost recovery and mitigate general fund obligation. This structure also allows user groups to forecast rental costs within their business model.
|
Priority User Groups |
FY 2025/26 |
FY 2026/27 |
FY 2027/28 |
FY 2028/29 |
|
Priority 1 |
n/a |
n/a |
n/a |
n/a |
|
Priority 2 * |
$8/hr per lane |
$10/hr per lane |
FY 26/27 rate, plus CPI |
FY 27/28 rate, plus CPI |
|
Priority 3 |
$16/hr per lane |
$20/hr per lane |
FY 26/27 rate, plus CPI |
FY 27/28 rate, plus CPI |
|
Priority 4 |
$16/hr per lane |
$20/hr per lane |
FY 26/27 rate, plus CPI |
FY 27/28 rate, plus CPI |
|
Priority 5 |
$20/hr per lane |
$22/hr per lane |
FY 26/27 rate, plus CPI |
FY 27/28 rate, plus CPI |
|
Priority 6 |
$40/hr per lane |
$44/hr per lane |
FY 26/27 rate, plus CPI |
FY 27/28 rate, plus CPI |
|
Priority 7 |
$40/hr per lane |
$44/hr per lane |
FY 26/27 rate, plus CPI |
FY 27/28 rate, plus CPI |
* Priority User Group 2 is subject to an additional per-non-resident youth fee to support the Wade Brummel Scholarship or an equivalent aquatics-specific program.
Staff reviewed the proposed categories, priorities, and fee schedules detailed in this report with Club representatives during meetings held on July 9, August 5, and September 23, 2025. The Clubs agree with the staff proposal detailed in this report. Following completion of Phase 2 of the ISC Rehabilitation Project, staff will return to the City Council with updated fee recommendations reflecting additional rental amenities such as storage, meeting rooms, concession stands, and office space.
On October 20, the Parks and Recreation Commission (Commission) reviewed this item and provided feedback to further define user group categories and handle competing requests within each category. Commission feedback is included in this report.
WADE BRUMMEL SCHOLARSHIP PROGRAM
The Wade Brummel Scholarship Program was established in October 2015 to provide financial assistance to Santa Clara youth who wish to participate in organized sports but lack the financial means. On March 11, 2025, City Council approved updates to the program-based on input from youth sports organizations and the Parks and
Recreation Commission to better meet community needs. Beginning in FY 2026/27, the per-non-resident athlete fee will increase to $35, followed by $45 in FY 2027/28.
Organizations within Priority Use Group #2 are required to contribute to the Wade Brummel Scholarship Program or a future aquatics-specific equivalent program designated by the City.
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(b)(4) in that it is a fiscal activity that does not involve any commitment to any specific project which may result in a potential significant impact on the environment.
FISCAL IMPACT
Implementing an updated, transparent, and comprehensive fee structure-along with a clear use priority framework-will create a consistent and equitable method for allocating facility access across all aquatic sites. This approach supports the City’s cost recovery objectives and helps reduce the ongoing maintenance and capital funding gap associated with aquatics facility operations.
The new structure will enable the City to continue partnering with the established Clubs while also exploring opportunities to expand facility use and programming while providing a sustainable community aquatics operational model.
As a condition of the low-rate general obligation bond, the City is required to establish definitions for user groups, priorities for their use and apply a transparent and comprehensive fee structure. The City's Bond Counsel is pursuing the lowest general obligation bond interest rate relative to non-profit use. This action will support the City’s interest to obtain the lowest interest rate for the bond so that City funding can be advanced for infrastructure projects identified in the bond.
PUBLIC CONTACT
Public contact was made by posting the Parks & Recreation Commission 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 or at the public information desk at any City of Santa Clara public library.
RECOMMENDATION
Recommendation
Parks and Recreation Commission recommend the City Council:
1. Adopt Definitions for Aquatic Facility Use Categories;
2. Adopt Priorities of Aquatics Facility Use; and,
3. Approve Amendment to the FY 2025/26 Municipal Fee Schedule and sequential adjustments through Fiscal Year 2028/29
Staff
Prepared by: Carolyn McDowell, Senior Management Analyst
Approved by: Damon Sparacino, Parks and Recreation Department Director