GOT POOLS? GOT PROBLEMS? GET A PLAN!

Utilizing a unique planning process, Omaha has successfully produced a Citywide Pool Plan.

It's not a pretty picture. Standing before an auditorium filled with 500 people vehemently opposed to the city's decision to close their neighborhood swimming pool. Sure, only about 20 people swim there every day. And, yes, it costs the taxpayers $11 per swimmer to operate the pool. But still, don't take our pool away. There must be a better way. There is, and Omaha, Neb., has found it.

Utilizing a unique planning process, Omaha has successfully produced a Citywide Pool Plan. Three years after the plan's adoption, three existing traditional pools have been renovated into aquatic centers, and two others are currently under construction. Families have rediscovered Omaha's pools, attendance and cost efficiency have improved, and four underutilized pools have been closed. Perhaps the most remarkable result, though, has been the public's support for this plan, as evidenced by more than $1 million in private foundation investment already contributed to the plan's implementation. According to pool consultant Carl Fuerst of Leisure Concepts & Design Inc. in Mt. Prospect, Ill.: "Rather than looking at an individual pool, Omaha tackled its entire pool system. The success of their plan has been amazing. It shows what proper planning can do."

A Crisis Looms

Four years ago, Omaha faced a predicament. A large number of public pools, 21 outdoor and three indoor, were operated by the Department of Parks, Recreation and Public Property. The average attendance at the outdoor pools was a dismal 6,532. In fact, six pools traditionally attracted fewer than 4,000 swimmers. The revenue picture was similarly bleak. One pool actually required an annual subsidy of more than $17 per swimmer.

Supporting the operation of Omaha's outdoor pools required an increasingly large portion of the recreation division's budget. As a result, other important programs were being compromised.

Other factors foretold a crisis. Although most pools were in relatively good condition, designs were definitely "stuck in the '60s." Concrete postage stamps surrounded by "prison" fences best described Omaha's pools. Fuerst told Omaha: "Your pools aren't meeting today's aquatic needs. You're missing the families. Frankly, your pools are expensive baby-sitting facilities and little more."

The annual budget drain required to operate the current pools, and lack of a clear pool "vision," were also handicapping the department's efforts to address the unfulfilled aquatic needs of Omaha's expanding suburban areas. Clearly, Omaha's extensive pool system needed help.

The Solution - A Plan

In an effort to formulate a plan and determine a long-range vision for its aquatic facilities, the department turned to the citizens of Omaha. The department was challenged to develop a highly participatory process that would evaluate the status of aquatic recreation, identify opportunities that would enhance public swimming, and develop a visionary Citywide Pool Plan that would act as a "road map" for the future development of Omaha's aquatic facilities

To address this objective, a group of community members appointed by the city council, along with representatives from the Park and Recreation Advisory Board, formed the core of a pool task force. Under the direction of the Department of Parks, Recreation and Public Property, the task force included city staff experienced in pool operations, management, and maintenance. Representatives from the city's divisions of planning and finance agreed to assist in anticipating growth trends and population changes and determining potential funding options. The mayor also supported the planning process and provided input.

Two consultant firms were added to the team, RDG Schutte Wilscam Birge Inc., a regional architectural and planning firm, and Leisure Concepts & Design Inc. The planning process used a multitask approach.

THE PLAN

Its Goals

Having assembled and reviewed a massive amount of information during the "process" portion of the Citywide Pool Plan, as detailed later in this article, the task force identified goals to clarify the vision and intent of the plan. These goals included:

* Increasing participation from youngsters, adults, and families.

* Increasing revenues.

* Reprioritizing capital funds to implement the plan.

* Satisfying a broad range of aquatic interests.

* Providing a safe, secure environment that offers an attractive, exciting, healthy, and quality aquatic experience.

* Providing an ongoing, proactive maintenance program.

* Developing an equitable and affordable level of service.

* Forging community support.

The Proposed Facilities

During the analysis portion of the master plan process, committee members evaluated the national trend toward constructing large, centralized leisure pools. The task force found this to be an effective method for providing aquatic services. However, Omaha's strong neighborhood identity -- especially in its older areas -- required a unique service approach. Omaha's plan needed to capture the efficiency and attendance of large aquatic centers while still providing a neighborhood-based service. Clearly, no one pool met all facility needs. Omaha's pool system needed to be uniquely "Omaha."

To address these competing objectives, five distinct aquatic-facility categories were established as the heart of the plan. With these five unique categories, the plan integrated the new concepts into the current pool system, recommended the construction of new pools where necessary for equitable service, and established a schedule for implementation. Four of these categories provided a unique level of leisure-pool amenities tailored to a specific role in the citywide plan. These leisure-pool design elements included large waterslides (drop, tube, and flume); zero-depth entry; participatory waterplay features; chaise longues and shaded areas; waterfalls; diving facilities; heated water; competitive and fitness capabilities; water in motion; turf areas and extensive landscaping; watersprays and drops; volleyball courts; dry and wet sand play areas; decorative barriers; and perimeter fencing and picnic areas.

The five categories of pools were:

* Waterparks: Four large aquatic complexes, referred to simply as waterparks, have been proposed. A waterpark is planned for each quadrant of the city. These facilities are equipped with the fullest range of leisure-pool amenities, and are designed to attract families and visitors of all ages. Two of these centers will be located at the sites of existing pools. Waterparks serve a bather capacity of 800 to 1,500, require a five- to 10-acre site, and carry an estimated cost of between $3 million and $5 million.

* Family-fun pools: This plan called for the renovation of six existing pools that have enjoyed historically high attendance and which are located in areas that don't feature easy access to the larger waterparks. These family-fun pools are programmed for a total rehabilitation, which will add zero-depth water and many of the leisure-pool amenities. Like waterparks, family-fun pools attract families and swimmers of all ages. The cost associated with family-fun pools is roughly $1.5 million.

* Splash pools: Splash pools have been recommended at four sites. At two locations, they will replace existing traditional pools. Splash pools feature limited leisure amenities developed around a shallow, zero-depth pool. They are primarily designed to attract families with younger children. Splash pools require lifeguards and are located where prior pool service, population, or demographics indicate additional pools would complement waterparks and family-fun pools. Splash pools have a bather capacity of 300 to 350 and require two to 2.5 acres of land. Approximate cost hovers around $1.25 million.

* Water playgrounds: These facilities are intended to replace pools in locations where the maintenance of a more significant category of pool is not feasible, or the area's waterpark or family-fun pool will be delayed. Water playgrounds do not have standing water. These facilities incorporate interactive water-play apparatus, sprays, and fountains with a typical park playground. Two water playgrounds are programmed, with a cost of $150,000 to $500,000.

* Transition pools: Seven existing pools are categorized as transition pools. These pools will continue to operate while the master plan is implemented. A transition pool will be removed from service when major renovations are required to keep it operational, the waterpark or family-fun pool serving the area is constructed, or the pool is operated through a third-party agreement and that operator terminates the agreement.

Once the pool categories were determined, service areas and other criteria recommended through the "process" phase of the plan were used to locate these pools across Omaha. These locations are altered during regular updates of the plan.

The Plan's Success

The success of Omaha's pool plan is fairly obvious on a number of levels. First, the direction provided by the plan resulted in the construction of two family-fun pools and one splash pool. Additionally, the city's first waterpark will open this season, and construction on its first water playground will begin. Have these new facilities met the plan's objective to increase attendance and improve revenue?

Another objective of the plan was to gather public support for this new public pool "vision." Has the plan succeeded? Many indicators say yes. For example, a recent phone survey revealed that 84 percent of residents ranked the continued improvements to Omaha's public pools as either "important" or "very important." As a result, continued pool development, in accordance with the Citywide Pool Plan, has been selected as one of the department's "Big Rocks" for the future.

Remember the all-too-common story of the angry residents who opposed the pool closing? Thanks to the plan, a recent neighborhood meeting concluded with the attendees supporting the plan's recommendation to remove their traditional pool and replace it with a water playground. The 1998 removal of one transition pool, and the scheduled removal of three others this year, is even more amazing.

Another remarkable effect of the Citywide Pool Plan is the amount of community financial support that has been generated. Although the plan's first two leisure pools were financed entirely by city funds, the most recent family-fun pool was primarily funded by two local philanthropic organizations: the Peter Kiewit Foundation and the Gallagher Foundation. And this support continues. The city and the Kiewit Foundation are jointly funding the city's first waterpark. Additionally, a partnership with local real-estate developers is being formed to construct a waterpark for currently neglected suburban residents. In only three years, Omaha's clear, concise vision toward providing quality aquatic services has produced more than $1 million in non-city financing. For a city that hadn't initiated a major pool-improvement project for almost 15 years, the success of the Citywide Pool Plan is amazing.

THE PROCESS

Evaluation of Existing Pools

In order for the task force to plan Omaha's aquatic future, the condition of all the pools needed to be evaluated. Joe Lang, a partner with RDG Schutte Wilscam Birge, stated: "Early on, the task force identified the need to determine the physical condition of each pool. When decisions were to be made regarding pools to be renovated or potentially closed, it is important to know the comparative condition of each." A local engineering firm was retained to evaluate the condition of each pool. Estimates were provided for necessary repairs, with an average cost of $145,000 per pool.

Not only was the condition of the pools important, the possibility for future expansion was also critical. Each location was inventoried, and aerial photographs were prepared for ongoing reviews.

A consultant also reviewed and approved the city's current maintenance procedures. Several procedural changes were, however, recommended.

Annual Pool Utilization Analysis

To assist in the evaluation of Omaha's existing outdoor pools, a three-year average-attendance report was prepared. This multiyear approach was used to adjust for variations in weather, which might influence attendance, and to mitigate the occasional temporary pool closings, which occur due to mechanical problems.

During the evaluation of these attendance figures, consultant Fuerst advised, "The trend in aquatic planning is for fewer but larger aquatic centers rather than small neighborhood pools." Omaha's pool attendance supported that trend. Its small neighborhood pools were consistently among the weakest performers. However, the task force remained supportive of some type of neighborhood aquatic facility. "In the older part of Omaha, neighborhoods are very strong. Residents look for their public services to be provided within this neighborhood structure," Lang stated. A consensus developed for the task force to support some level of neighborhood pool in Omaha's older section. These pools had to be cost-effective and attract their intended audiences.

As part of this pool utilization review, population density, age-group distribution, geographical characteristics, and other factors were studied.

Financial Performance Review

Although attendance was seen as a key indicator of pool viability, financial performance was also a critical factor. A "pool subsidy/cost per swimmer" calculation was adopted by the task force to evaluate each pool's financial performance. This approach allowed each pool to be evaluated based upon the taxpayer subsidy necessary in addition to the revenue generated by that pool to fund the annual operation and maintenance of the facility. To calculate this figure, all outdoor-pool costs, except for capital improvements, were included. Capital expenditures were not determined to be recurrent and, therefore, not a true gauge of a pool's annual performance.

Although the vast majority of Omaha's public swimming is provided by the Department of Parks, Recreation and Public Property, other aquatic facilities are available. Some areas of Omaha have private neighborhood pools with pricing comparable to public pools.

Additionally, many nonprofit groups and Y's provide pool's and a fee schedule similar to the city's. These facilities were mapped as a resource for the task force's evaluation.

Review Future Pool Trends

The Department of Parks, Recreation and Public Property retained Leisure Concepts & Design Inc. to assist the task force in determining design criteria for future pool renovation and construction. Through slide presentations and several on-site visits to view other pools, the task force was sold on the leisure-pool concept. Leisure pools showed a proven record of attracting families, a group totally lost to the current Omaha pool system and a prime target of the task force.

The leisure-pool concept was innovative yet practical. It appeared to respond to the very basic leisure needs and interests of the prospective user. Its emphasis is based on the premise that the public-swimming pool visitor is primarily interested in a quality aquatic experience.

Another selling point of the leisure-pool concept is its economic track record. More visitors came, and they stayed longer. Because of the improved services, swimmers supported increased gate fees. Concession revenues can be developed to a much greater degree. And, according to Fuerst, "After-hours rentals by local businesses and organizations can also be an excellent source of extra income."

The ability to integrate leisure-pool principles into existing pools also attracted the task force. By this time, it was clear that some of Omaha's existing pools were ideally located and were already served by access roads, parking facilities, bathhouses, and utilities. As a result, pool renovation became financially attractive and a critical element of the Citywide Pool Plan.

The Process Wraps Up

A questionnaire, developed by Leisure Concepts & Design Inc., was distributed to all members of the task force. This document presenting various purposes, goals, and objectives was also circulated at public meetings and neighborhood sessions. Participants were asked to rank each item to reflect its importance in the revitalization of outdoor aquatic facilities and development of new facilities. The results of this survey became an important tool for the task force.

Using data to restudy the manner by which aquatic services were provided in Omaha, the task force began to formulate a plan. Large, cost-effective aquatic centers were recommended and located across the community. Selected existing pools were proposed for upgrades and leisure-pool amenities. Other pools were targeted for removal. Equitable service was a constant directive. It was this "clear vision" that eventually materialized as Omaha's Citywide Pool Plan.