TOWN OF OSOYOOS

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TOWN OF OSOYOOS

FINAL REPORT AQUATIC CENTRE FEASIBILITY STUDY NOVEMBER 2007

PROFESSIONAL ENVIRONMENTAL RECREATION CONSULTANTS LTD. BRUCE CARSCADDEN ARCHITECT INC.

TABLE OF CONTENTS

EXECUTIVE SUMMARY i 1. INTRODUCTION 1

1.1 Project Objectives 1 1.2 Project Management 1 1.3 Context 2 2. AQUATIC CENTRE PLANNING 3

2.1 Types of Pool Use 3 2.2 Categories of Pool Use 3 2.3 Economics of Pool Provision 4 2.4 Total Use in Any Given Market 4 2.5 Community Market Versus Regional Market 4 2.6 Total Supply / Demand within the Existing Marketplace 5 2.7 Total Swims in Similar Communities 5 2.8 Population Projections 6 3. INPUT FROM LOCAL RESIDENTS 8

3.1 Local Organizations 8 3.2 School District 9 3.3 Town of Osoyoos Administrative Staff 10 3.4 Public Open House 10 3.5 Survey Results 11 3.6 Preferred Location 13 4. PROGRAM AND OPTIONS 14

4.1 Trends in Aquatic Programming and Design 15 4.2 Preferred Option 16 4.3 Conclusions 17 4.4 Operating Costs – Proposed Aquatic Centre 19 4.5 Impact on Taxation 21 4.6 Recommendations 22 LIST OF FIGURES 1. Indoor Pool Attendance in Other Communities 5 2. School Enrolment Figures (2007 – 2015) 7 3. Features of Concept Two Indoor Aquatic Centre 10 4. Features of Revised Concept One Indoor Aquatic Centre 11 5. Aquatic Activities 12 6. Preferred Tax Increases 12 7. Proposed Aquatic Program 14 8. Preferred Spatial Relationships 15 9. Operating Cost – Proposed Aquatic Centre 20 10. Construction and Operating Cost Tax Scenarios 21

TABLE OF CONTENTS

APPENDICES 1. Concept Options 2. Comparative Information – Similar-sized Communities

EXECUTIVE SUMMARY

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PROFESSIONAL ENVIRONMENTAL RECREATION CONSULTANTS LTD. and Bruce Carscadden Architect Inc. are pleased to submit our final report addressing the possible construction of an indoor aquatic centre in the Town of Osoyoos. The research component of the study involved a considerable amount of input from the general public, as well as regularly scheduled meetings with a Project Steering Committee comprised of elected officials and Osoyoos staff. The consultants also gathered information from other communities with similar populations, and developed several design options for the client’s consideration. More specifically, the following tasks were undertaken. The preparation of information related to the planning of aquatic facilities, including:

• Types and categories of pool use

• The economics of swimming pool operations and provision

• The annual use of aquatic facilities

• The community market versus the regional market

• The total demand for an aquatic facility in the existing market

• Population projections Input from local residents included meetings with:

• Local organizations

• School District #14

• Town of Osoyoos administrative staff

• A public open house and survey

• Discussions related to a preferred location Programming and facility options were also reviewed, including:

• Trends in aquatic programming and design

• The preparation of a number of facility options

• Capital and operating costs and their impact of local taxpayers

• The presentation of a number of recommendations for the Town’s consideration

The research and input from the community and staff, plus the consultants’ experience, has resulted in the following recommendations Recommendation # 1

• Consider the construction of a four lane lap pool and leisure pool including a whirl pool / hot tub, change rooms, mechanical and administrative space. (The total cost of the facility is estimated to be $6.3 million.)

EXECUTIVE SUMMARY

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Recommendation # 2

• Conduct research to determine the availability of grants from senior levels of government to assist in the construction of the proposed aquatic centre. (Other BC communities have received grants totaling $2 million from the Federal / Provincial Infrastructure Program.)

Recommendation # 3

• Depending on the results of the Town’s research into the availability of grants, place a borrowing referendum before Osoyoos voters to determine their willingness to support a four lane indoor aquatic facility, including a leisure pool.

Recommendation # 4

• Assuming the success of the proposed referendum, retain the services of architects and planning consultants to initiate the design of the facility, followed by preparation of working drawings.

Recommendation # 5

• Determine the most appropriate location for the facility. (The consultants have suggested that the pool should be located adjacent to the Sonora Centre, but other locations including municipally owned property near the Sun Bowl and the Secondary School should also be considered.)

It should be noted that the Town of Osoyoos could also initiate discussions with the Okanagan Similkameen Regional District regarding the possibility of constructing a Regional facility. If approved, this would reduce the overall financial impact on local taxpayers.

1. INTRODUCTION

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IN JUNE OF 2007, THE TOWN OF OSOYOOS retained the services of Professional Environmental Recreation Consultants Ltd. (PERC) and Bruce Carscadden Architect Inc. (BCA) to undertake a feasibility study for an indoor aquatic centre within the boundaries of the Town of Osoyoos. The purpose of the study was “to provide useful and flexible recommendations and guidelines for the development of an Aquatic Centre. It was also anticipated that the study would complement the Town’s desire to foster a sense of community pride and enhance community growth.

1.1 PROJECT OBJECTIVES

The following objectives were identified in discussion with the client:

• To include public consultation process through a public forum involving local citizens, organizations, groups and the business community

• To gather and review existing information and become familiar with the nature and scope of the assignment

• To outline the various tasks that would be undertaken and clarify the client’s expectations

• To ensure the public’s awareness and perceptions related to construction costs, potential areas of funding and operating costs

• To identify and describe key considerations including space requirements related to the location of an aquatic centre within the Town of Osoyoos.

• To review current trends in recreation behaviour

• To address the community’s demographic profile and growth projections

• To determine the impact on local taxation to support an aquatic centre based on local demographics

The consultants have spent the past three months analyzing need and investigating feasibility. In addition, a number of options have been considered regarding the type of facility that could be built, as well as the timing for construction, capital and operating costs, and the financial implications of proceeding with the recommended facility.

1.2 PROJECT MANAGEMENT As noted above, the report was prepared by PERC and BCA in cooperation with the Town of Osoyoos Recreation Department.

INTRODUCTION

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1.3 CONTEXT In 1999, PERC was retained by the Town of Osoyoos to prepare a long range Master Plan for the delivery of Parks and Recreation services. In a survey of local residents an indoor swimming pool was identified as a high priority by a large number of residents. The interest in an indoor pool was significantly higher than any other recreation facility including a children’s water park, which was the second “most needed” amenity in the survey. At the same time, respondents expressed limited interest in an increase in taxes to support the construction and operation of an aquatic centre.

2. AQUATIC CENTRE PLANNING

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IN PLANNING AN INDOOR AQUATIC CENTRE, there are a number of key considerations that should be addressed. These are described below, and are vital in ensuring the successful construction and operation of this type of facility.

2.1 TYPES OF POOL USE

An indoor aquatic centre, like most other types of recreation facilities, is typically used in one of three ways.

• The entire pool, or parts of it, can be used on a “drop-in” basis, whereby users commit to a single use at a time when they wish. The most popular example of this type of use is public swimming.

• The pool can be used for a variety of “programs”, whereby a user registers for and pre-commits to a single use or a series of uses in which a lifeguard / instructor is involved.

• The pool can also be used on a “rental” basis, whereby a group rents some or all of a pool and organizes the use itself (typically for its members).

Combinations of these three types of use co-exist at the same time. At other times, a single use might take up the entire facility.

2.2 CATEGORIES OF POOL USE In most pools, the three types of use can be categorized under six headings.

• Recreation The motive is simply to play or swim

• Sport / Training The motive is to participate in training or in a competitive event

• Fitness The motive is to swim for fitness, or to take part in a water-based fitness class

• Skill Development The motive is to learn to swim, to improve one’s ability to swim, or to take part in an aquatic-related activity such as canoe or kayak instruction

• Therapy / Rehabilitation The motive is to take part in some type of rehabilitation program that is organized / sponsored by the local Recreation Department, or by another agency

• Special Events The motive is to participate in a swim meet or other competition, or to participate in a birthday party or seasonal activity

AQUATIC CENTRE PLANNING

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2.3 ECONOMICS OF POOL PROVISION Indoor pools are expensive to build and to operate because they are technically complex, as well as labour and energy intensive. Despite this, they deliver extensive benefits to a broad cross section of residents, and that makes them particularly valuable to a community. In fact, indoor aquatic facilities generally serve a far broader cross-section of residents – from young children to senior citizens – than any other recreation facility. Almost all communities in BC with a population of 10,000 or more residents, and an increasing number with much smaller populations, either have their own indoor pool, or have easy access to one in a neighbouring municipality. Approximately 70% of the operating costs of an indoor pool are fixed. In other words, they need to be paid regardless of how many people use the facility. Fixed costs include water heating and treatment, insurance, promotion and advertising, receiving customers, management, and the employment of qualified lifeguards. These expenses will be incurred whether there is one person swimming or 50 people swimming. Other costs vary with use, and as use increases, water treatment costs increase, additional lifeguards are required, and additional maintenance is required. Operating revenues, on the other hand, are almost completely variable. As each new user comes into the facility, he / she will pay a user fee roughly equal to the last user. So, each additional user reduces the net operating deficit that would have been realized without that user. Pools operated at a high proportion of capacity have lower operating deficits and much lower subsidies per swim than pools operated at a low proportion of capacity.

2.4 TOTAL USE IN ANY GIVEN MARKET Total demand for indoor swimming in a public pool is virtually always in the range of 4 to 10 times the total population per year. In studying and planning indoor pools for the past thirty years, PERC has rarely found a community which exhibits total indoor swims outside of this range. In fact, few communities exhibit total indoor pool use above 8 swims per capita. Communities with full access to a variety of high quality indoor aquatics facilities including a leisure pool are usually in the higher half of the 4-8 swims per capita range. Communities with restricted access to indoor pools, or with modest facilities, are more likely to be within the lower half of this range.

2.5 COMMUNITY MARKET VERSUS REGIONAL MARKET If the Town of Osoyoos with a current population of approximately 4,752 residents were to build a comprehensive new indoor aquatic facility, it is likely that the total number of swims per year would be in the area of 23,000 – 45,000 per year. However, since the nearest public indoor pool is currently located in Penticton, it is likely that when the pool first opens, there would be a significant number of users traveling to Osoyoos from Oliver,


Electoral Area “A”, and Area “C” and as far south as Oroville and Tonasket. While residents of those communities would be unlikely to use the facility as frequently as local residents, the number of potential users would increase by approximately 12,000 people. The total number of swims per year would be estimated to be 60,000 per year.

2.6 TOTAL SUPPLY / DEMAND WITHIN THE EXISTING MARKETPLACE At the present time, the only public swimming pool in the South Okanagan, between Okanagan Falls and Osoyoos, is the Oliver outdoor pool. This facility opens to the public in late May of each year, and operates for approximately four months, closing on the Labour Day Weekend. In a typical year, the pool will experience 15,000 to 18,000 swims. Interviews with stakeholders indicated that young children, in particular, utilize the pool for birthday parties and swim lessons. It is difficult to say how many people travel to Penticton to swim, but it is likely safe to suggest that the overall numbers (and frequency) are not overwhelming. In addition, many residents and tourist make use of Osoyoos Lake during the summer, and the indoor pools in local motels and hotels during winter months.

2.7 TOTAL SWIMS IN SIMILAR COMMUNITIES There are numerous factors that will affect attendance at an aquatic centre, including the features available in the facility, the manner in which programs and services are marketed, the quality of those programs and the lifeguard / instructors, and competition in the marketplace. As outlined in FIGURE ONE on page 8, attendance figures for 2006 indicate that the average number of swims in each of the communities contacted by the consultants was approximately 54,000. FIGURE ONE INDOOR POOL ATTENDANCE IN OTHER COMMUNITIES

Community Attendance

Merritt 65,000

Grand Forks 40,000

Revelstoke 51,000

Fernie 60,000 (2004)

It should be noted that if an indoor aquatic centre is constructed in Osoyoos, that it should be designed and programmed to encourage a significant amount of rehabilitation and


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therapy activity. This will undoubtedly result in a large number of retirees making use of the facility, but not necessarily at the expense of other activities. One of the factors which will dictate the types of use is the changing demographics in the marketplace. With the population getting older and the number of school aged children actually declining slightly over the next decade, there will be some significant shifts in pool usage. The number of children that will be within the swim club market is falling and the number of sports training swims will also likely decline. Also, the pressure on swim lessons will moderate and the demand for competitions will fall. On the other hand, with more adults of advancing years, the number of fitness swims and therapy and rehabilitation uses will potentially increase dramatically.

2.8 POPULATION PROJECTIONS In 2006, the Town of Osoyoos population estimate by Statistics Canada was 4,752 people. This represents a 10.6% increase since the 2001 Census. The age range that increased the greatest was the 55-64 years old at 39%. The statistics also indicate that the median age of the population is 58.2 years old and that 91% of the population is over 15 years old. In future years, growth is expected to remain at moderate levels. BC Stats predicts growth increases of 1% to 1.5% in the South Okanagan. Osoyoos’s growth rate is parallel to that or slightly higher, which would indicate the population projections for the Town could be approximately 5,900 by 2020. Destination Osoyoos has prepared population projections for the Town of Osoyoos and Electoral Area “A”. Low and Medium growth estimates ranging from 1 – 2.5% forecast the combined population of both areas to be between 7,525 – 9,917 by 2021. Osoyoos’s age distribution and that of other Okanagan communities differs from that of the rest of British Columbia, in that the percent of the area’s population between the ages of 20 and 45 is significantly less than the rest of the province, and the percentage of people over the age of 65 is roughly double the provincial percentage. For example, in Merritt, 16% of the population is over the age of 65, whereas in Osoyoos’s the figure is much higher at 37%. Similarly, Merritt’s population of 20-45 years old is 28%, and in Osoyoos the figure is much lower at 16.8%. As indicated in FIGURE TWO, the projected enrolment figures provided by School District # 53 (Okanagan Similkameen) indicates that the number of students registered in the Osoyoos schools, kindergarten through grade 12, will decrease slightly during the next eight years.


FIGURE TWO OSOYOOS SCHOOL ENROLMENT FIGURES (2007– 2015)

Year / School

Osoyoos Elementary K - 7

Osoyoos Secondary 8-12

2007 335 290

2009 303 277

2011 298 248

2013 308 224

2015 317 223

The preceding information suggests that the design and programming of an indoor pool in Osoyoos should address the demographics of the community, and the diverse needs of a broad range of age and interest groups.

3. INPUT FROM LOCAL RESIDENTS

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3.1 LOCAL ORGANIZATIONS Meetings were held with representatives from the following organizations in order to determine their interest in a new indoor aquatic facility, and more specifically, the features that an indoor pool might include.

• Okanagan Similkameen School District Superintendent

• Town of Osoyoos (Administrative staff)

• Regional District of Okanagan – Similkameen Area “A” Director

• Osoyoos Golf and Country Club

• Destination Osoyoos

• Osoyoos Soroptomists

• Swimtech First Aid and Water Safety

• Parks and Recreation staff

• Osoyoos Now

• Osoyoos and District Chamber of Commerce

• Osoyoos Lions Club

• Osoyoos Sailing Club

• Osoyoos Child Care Centre

• Osoyoos Recreation Commission

• Splash Park Committee

• Osoyoos Indian Band

There were several major findings from these meetings:

• There seems to be a genuine interest in an indoor aquatic centre in the community

• The features mentioned most frequently included:

• A pool that would accommodate length swimming, swimming for fitness and swim training

• A “leisure” pool with a variety of features for young children

• A hot tub / therapy pool with warm water

• An exercise / fitness room, with a variety of cardio equipment and weights

• Universal accessibility – into the building, in the dressing rooms, into the pools

• Steam room and sauna

• Family change rooms

• On deck viewing area

INPUT FROM LOCAL RESIDENTS

• Concerns were expressed regarding the cost of the facility and the impact on local taxpayers. Due to a recent tax increase to many area properties, discussion of future increases for RCMP services and other infrastructure projects may dissuade citizens’ interest in supporting another increase for an aquatic centre.

• With reference to the operation of the pool, meeting participants generally agreed that the facility should be managed by local government or as an option, by the not-for-profit sector.

• There were suggestions that for a nominal fee many seniors access the indoor pools and amenities available at the local hotels / motels for relaxation and fitness, and many of the new condominiums and townhouses include pools in their complexes. The addition of a community aquatic centre must include facilities that offer an exceptional experience to attract the interest of the young retirees and seniors. The general sentiment was not to build an “oversized” hotel pool, and if the cost to build and operate the preferred facility is unaffordable, the Town of Osoyoos should consider a P3 facility and / or initiate discussion with the Regional District to build a regional facility.

• An overwhelming majority of the representatives suggested that an aquatic centre facility be located adjacent to the Sonora Community Centre. It was noted that the synergy created by joining the facilities, proximity to the elementary school, convenience to downtown, and accessibility would contribute to the success of the operation.

• Many of those interviewed believed that a splash park was still needed, even though the pool may include a variety of leisure features. The notion of a splash park, situated in a park setting, free for use and conducive to family picnics is very appealing.

3.2 SCHOOL DISTRICT The Superintendent of School District #53 indicated that the teachers would be very supportive of an aquatic centre to provide children with a healthy alternative for social purposes, fitness, and jobs for teens. The cost to bus the children to Oliver for school swim lessons is prohibitive. An aquatic centre located adjacent to either the elementary school or high school in Osoyoos would be ideal from the perspective of school use.

It was recognized that the land necessary to locate the facility next to the Sonora Community Centre was owned by the School District. The Superintendent would encourage the Town of Osoyoos to present a partnership proposal to the School Board for discussion and consideration of the land adjacent to the Sonora Community Centre


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3.3 TOWN OF OSOYOOS ADMINISTRATIVE STAFF The administrative staff agreed that there appears to be a strong desire for an aquatic centre in Osoyoos. Some staff members suggested that to provide the facility that is desired, the cost to build and operate is too high for the Town of Osoyoos and that a regional facility makes more sense from a cost and staffing perspective. Cost and location were perceived as the two barriers in the community to an aquatic centre. The Town of Osoyoos owns the property referred to as Desert Park and the land adjacent to the High School. These two properties were cited as the preferred locations due to the uncomplicated access to the sites. It was suggested that admission cost should be low and a two tier system be considered for regional users if there is no contribution to the operation from the Regional District.

3.4 PUBLIC OPEN HOUSE A Public Open House was conducted August 1, 2007 at the Sonora Community Centre from 4:00 – 8:00 pm. A public survey was prepared and available at the Open House, in local newspapers, and at a pool barbeque hosted by the Recreation Department a week prior, and was also available on Town of Osoyoos website. The consultants estimate that approximately 50 to 60 local residents attended the Open House. The following information summarizes the results of the Open House survey.

3.4.1 PREFERRED CONCEPT DESIGN

The architect presented three different concepts for the Open House. Although a choice of the three concepts was not solicited by the consultants, participants initiated a list to include the people’s choice. As a result, Concept Two was determined to be the preferred option. The estimated construction cost for Concept Two is $7.8 million dollars. FIGURE THREE provides a summary of the features in Concept Two. FIGURE THREE FEATURES OF CONCEPT TWO INDOOR AQUATIC CENTRE

Features

Main Tank - 5 lanes / 25 meters

Leisure pool / play features / 3 – 20 meter lanes

Whirl pool / hot tub

Sauna / steam room

On deck viewing area


Following the Open House, a revised Option One was also developed. This option included the features described in Figure 3. The estimated construction cost of this option is $6.3 million dollars. FIGURE FOUR FEATURES OF THE REVISED OPTION ONE INDOOR AQUATIC CENTRE

Features

Main Tank - 4 lanes / 25 meters

Leisure pool / play features (combined with the main tank)

Whirl pool / hot tub

Limited viewing area

It should be noted that all the options could be built immediately adjacent to the Sonora Community Centre, however, the design could easily be adjusted if a decision is made to build the facility in another location. (Each of the concept options are provided in Appendix One.)

3.5 SURVEY RESULTS There were 127 completed surveys received at the Recreation office from interested parties. A large majority of 116 respondents were completed by residents of the Town of Osoyoos and 5 indicated they were from Electoral Area “A”. It should be noted that the results are intended to provide an overview of residents’ opinions, and while informative, are not statistically valid. (Unless otherwise indicated, all of the responses are based on a total of 127 respondents.) The following summarizes key questions on the survey.

3.5.1 AQUATIC ACTIVITIES As indicated in FIGURE FIVE on page 12, the survey results suggest that public and recreational swimming, and swimming for fitness appear to be the most popular aquatic activities, followed by swimming lessons and physical therapy.


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FIGURE FIVE AQUATIC ACTIVITIES

Activity No. of Respondents

Public / recreation swimming 100

Swimming for fitness and aquafit 96

Swimming instruction / lessons 47

Physical therapy and relaxation 47

Special events 43

Training for competitions 15

All of the activities listed above should be included as part of the program offered in a new aquatic facility. A high number of respondents (95 / 127) were 46 years of age and over. Combined with the population demographics presented in Section 2.8, the results indicate a lower response in areas of swimming instruction and training for competitions. It should be noted, also, that special events can be very important to the overall success of an aquatic centre. They can be organized around a wide variety of holidays and school professional days. Experience suggests that these activities are particularly well received by families. Several “other” suggestions were also mentioned, including scuba diving lessons, weight room activities and school lessons.

3.5.2 POTENTIAL IMPACT ON TAXATION

Participants were also requested to provide an indication of their preferences in terms of increased taxation to support the construction and operation of an indoor new aquatic facility. This information is presented in FIGURE SIX.

FIGURE SIX PREFRRED TAX INCREASES

Tax Increase No. of Respondents

No tax increase 27

An increase of $100 to $150 per year 48







There are a number of ways of looking at the responses to this question.

• 100 of the 127 respondents appear to support an increase in taxation of $100 to $150 per year



It should be noted that the survey results are not statistically reliable. However, they do indicate the general appetite for an increase in taxation. The survey results are fairly consistent with a modest pool, similar to the model presented in Concept One at the Open House. The information provided from the survey in this question was used as a guide by the consultants in determining the most appropriate option for the client’s consideration. It should be noted, however, that information gathered from other sources, such as discussions with stakeholders and the client advisory committee, was also useful in developing a preferred option. A number of survey respondents provided written comments regarding the possible construction of an indoor aquatic centre in the community. Most of these were supportive of an indoor facility, however, several suggested that the population base was too small to support an aquatic centre project.

3.6 PREFERRED LOCATION

The consultants were provided with three possible locations as options for a new aquatic centre. The three sites are: adjacent to the Sonora Community Centre, AT Desert Park and adjacent to the Osoyoos Secondary School. The consultants received overwhelming support from the community stakeholders during the interview process for the Sonora Community Centre location. Arguments were presented suggesting that Desert Park and the High School were too far from the downtown core for many seniors, young children on bikes and visitors. Others contended that the recreation facilities should be joined together whenever possible to take advantage of the synergy created with complimentary programs, shared staff, and administrative services. The other two locations for consideration, Desert Park and adjacent to the High School are properties owned by the Town of Osoyoos and zoned for public use, therefore presenting minimal work to secure either site for the location for a new aquatic centre. However, it is the consultants’ opinion that the location of an aquatic centre in a small community, supported by the local tax payers can be key to the facilities success. The cost and location of a new aquatic centre were identified by interview participants as the two main major barriers to the success of the facility being approved in a referendum. The location adjacent to the Sonora Community Centre would therefore be the consultants’ preferred option. The consultants would encourage the Town of Osoyoos to enter into discussions with School District #53 to explore the School Board’s interest in pursuing a partnership agreement for the land adjacent Sonora Community Centre.

4. PROGRAMS AND OPTIONS

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THIS CHAPTER PROVIDES A SUGGESTED PROGRAM or list of spaces that could be included in an indoor aquatic facility in Osoyoos. Using the feedback received from stakeholders and survey respondents regarding the taxation question, FIGURE SEVEN summarizes each of the major amenities that would be included in a modest pool. FIGURE SEVEN PROPOSED AQUATIC PROGRAM

Space Amenities Approx. Size Option 1 Option 2

Public Spaces Lobby and Entry Public Washrooms Viewing area

44m² 74m²

Aquatic Spaces Leisure Pool with Lazy River Lap Pool Hot Pool Sauna and Steam Rooms

50m² 270m² 210m² 287m² 13m² 13m² 0 24m²

Change Rooms Family Women Men

115m² 187m²

Natatorium

485m² 1024m²

Administration Space Reception and Control Aquatic Staff Spaces First Aid Space

32m² 40m²

Service / Support Space Maintenance Office Storage Mechanical Chemical Storage Electrical Room

93m² 129m²

Circulation and Walls 10 to 20 %

TOTAL AREA -- 827m² 1,587m²

Regardless of the size of the facility, or the number of amenities, the following spatial relationships are preferred.

17,000-19,500 sq ft

PROGRAMS AND OPTIONS

FIGURE EIGHT PREFERRED SPATIAL RELATIONSHIPS

4.1 TRENDS IN AQUATIC PROGRAMMING AND DESIGN Trends in aquatics, including the increasing frequency of use, and the types of aquatic activities in which people participate, will influence the size and configuration of the facility. Discussions with architects and planners, as well as with parks and recreation managers in other communities suggest the following trends.

• There is continued interest in leisure pools and play apparatus. Water slides continue to be attractive features, as do lazy rivers, water arches, bubble pits, waterfalls, tots pools, water cannons and sprinklers. Wave pools have some appeal as well, but they are generally seen in larger 50m pools. While all of these features are popular, it is the budget that ultimately determines the number that can be included in any one facility.

• There is an increasing interest in swimming for fitness and a need for more lanes throughout the day.

• There is an increased interest in fitness and wellness, particularly among those over the age of 50. Activities such as aquafit, physiotherapy, massage therapy, weight training and the like have proven to be very popular amenities in an aquatic centre.

• There is continued interest in a variety of pools and water temperatures within a single facility. The most popular pools will have one temperature for the main tank (the coolest water), another for the leisure pool / tots pool, and another for the hot tub. This combination addresses the needs of various age groups in the community.


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• There is an increasing interest in accessibility – for youngsters, those with a disability and for the elderly. Interests include, but are not limited to well-located lockers and railings, increased parking for those with mobility concerns, contrasting colors for those with concerns regarding vision, and ease of access into the pool, either with modern “lifts” or zero depth (or beach) entries.

• Privacy in dressing rooms has been a concern for many years, and steps have been taken in many pools to accommodate the needs of families and elderly patrons, as well as those with a disability.

• There is an increasing interest in flexibility in terms of programming that allows people the opportunity to engage in lap swimming throughout a good portion of the day, even while other activities are taking place.

• Interest in competitive swimming is generally constant, but is from a relatively small number of users, many of whom express the need for larger 50m pools, with deep water for competitive swimming, water polo, synchronized swimming and diving.

It should be noted that the consultants have carefully considered each of the trends described above, and have concluded that the most appropriate amenities for Osoyoos include shallower (up to 5 feet in depth) water as opposed to deeper water. Consideration could be given to the inclusion of a one meter diving board, however, that would dictate that approximately one-third of the pool would include water that is well over 5 feet deep, and would add to the cost of operating the facility.

4.2 PREFERRED OPTION Prior to determining which option would be the most appropriate to meet the needs and interests of Osoyoos residents, the consultants determined that the following questions should be addressed.

• What happens if a decision is made not to build an indoor pool?

If a new pool is not built, the community will likely continue to use the lake, private pools, and hotel pools for swim lesson programs and recreational swimming. During the winter months, many seniors and small children will continue to use the many indoor hotel pools for enjoyment.

. In communities with indoor aquatic centres, recreation programmers are able to offer a wide range of activities, including swim lessons, recreational swimming, swimming for fitness, and increasingly, a wide variety of health-related services. In addition, most communities with indoor facilities of this type are able to emphasize the importance of families participating in activities together, of social interaction and of opportunities for health and wellness. No other public recreation facility offers as many opportunities to local residents as an aquatic centre in terms of recreation activity.


• What happens if a decision is made to build a new pool?

If an indoor aquatic facility is built in the Osoyoos, it is likely that in the first years of operation it will accommodate in the area of 40,000 - 50,000 swims per year.

This number means that each resident in Osoyoos and surrounding areas will swim an average of 4 or 5 times per year. This includes residents of Electoral Areas “A” and “C”, Oliver, and Oroville, Washington. As the population grows, even modestly, the use of the facility will increase, resulting in increased opportunities for physical fitness, therapeutic opportunities, and use by a wide variety of local organizations, including the School Board. In all likelihood, other existing facilities such as the community centre will also experience an increase in use.

The cost of operating an indoor pool is substantial. The cost of borrowing is also significant, and has to be weighed against other capital projects, as well as the willingness of local residents to pay additional taxes. The preferred option recommended by the consultants is the revised Concept Option One, however, it is recognized that this is a relatively small pool (4 lanes versus the 5 lanes in Concept Option Two).

4.3 CONCLUSIONS The consultants have come to the following conclusions:

• The population in the Town of Osoyoos is similar to that of numerous communities in British Columbia that currently have indoor aquatic facilities. At roughly 4,700 people, the population is comparable to communities such as Grand Forks, Fernie, Elkford, and Houston, all of which have built 4 – 6 lane, 25m facilities. In the mid-eighties Sparwood built a leisure pool with 2 – 3 25m diagonal lanes.

• When the population of adjacent communities – Oliver, Area “A”, Area “C”, and Oroville – are included, the population is closer to 17,000 people. While residents of these communities will use the facility less frequently than Osoyoos residents, they will still have a positive impact on the pool. It is important to note however, that Oliver is also considering the construction of an indoor aquatic facility.

• The population will continue to grow, perhaps moderately, over the next few years, adding an ever-increasing number of retirees to the community, as well as younger families. While the proportion of each age group will change, the demand for aquatic opportunities is not expected to decrease.

• There is a strong interest in an aquatic facility in Osoyoos, and there are many residents who are concerned about increases in taxation. It is the consultants’ feeling that the Town of Osoyoos might wish to conduct a statistically reliable survey of local residents in order to determine whether or not the public will support the increased taxation necessary for the construction and operation of


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the facility. It is our contention that the cost of a survey is much less than the cost of a referendum. The cost of conducting a statistically reliable survey would likely be in the range of $10,000 – 12,000.00.

• Until 2004, there was a considerable amount of grant money available from the Federal and Provincial Governments. These were available to municipalities for a variety of amenities including recreation facilities, and in many cases amounted to a maximum of $2 million.

The survey results indicated that 21% of the respondents would not support any tax increase, while 38% would support an increase of $100 to $150. A low 41% of the respondents would support an increase of over $150. Based on the information provided by the Town of Osoyoos Finance Director, residence may support debt financing on $3 million dollars and the operating costs of a small aquatic centre. The Town of Osoyoos will need to raise through grants and reserve funds approximately $3.3 million dollars to afford a modest facility. In the consultants’ opinion, it would be best to research the availability of grant programs, and not proceed to referendum until applications have been made and approved.

Many communities have successfully raised dollars through donations from local service clubs to off set the cost of various amenities or equipment to furnish the facility. Items that could be considered would include a special “lift” to ensure comfortable access into the pool for those with a physical disability, equipment for the health and wellness area, electronic timing devices, lane ropes and the like. A number of communities have published catalogues describing specific items and their cost, encouraging service clubs, the local business community and local residents to participate in this manner.

“Recognition walls”, including the names of individuals and organizations for their contributions, are quite common in recreation facilities. Other fund raising opportunities should be explored as well.

• Consideration may be given to postponing the project for five (5) years until the population base increases sufficiently to support the construction of the desired facility.

• With the inclusion of Electoral Area “A”, in taxation for the construction and operation of a new aquatic centre facility, the impact on Osoyoos residents would be slightly decreased.

• The Town could initiate discussions with the Regional District regarding the construction and operation of a regional facility. The value clearly to working with the Regional District and neighbouring jurisdictions to be able to afford the aquatic facility most desired by all communities.

• The Town cold also entertain a P3 project with a developer. There are several successful models of aquatic centre facilities built and operated under a P3 agreement. The logistics of achieving the desired outcome can be complicated and onerous, but the end result is a facility that the community might not otherwise afford to build and operate.


4.4 OPERATING COSTS – PROPOSED AQUATIC CENTRE The projected budget presented in FIGURE NINE on page 20 is based on a modest aquatic centre facility similar to Concept One displayed at the Open House and attached as Appendix Two. The model presented does not include a fitness room or lap tank for competitive swimming. The net operating budget, presented in FIGURE NINE is estimated at $450,000. This budget projection was developed by using comparative facilities in similar sized communities. Comparative information is attached as Appendix Three. In an effort to provide prospective patrons with the greatest opportunity to access the indoor pool, an ‘open schedule’ is recommended whenever possible and was assumed in the development of the indoor pool budget. This scheduling style aims to provide maximum access to patrons by reducing or eliminating swim session restrictions such as age, gender, swim theme, and the like. This style of scheduling emphasizes integration and typically returns higher revenues than other strategies, allowing patrons to drop-in at their convenience. Furthermore, the open schedule also allows for programs to be offered simultaneously with public swimming, programs such as aquafit, swim lessons, private instruction, and other aquatic opportunities. Outside of the open schedule, there may be times that the pool must be reserved for exclusive use. Rentals and busy swim lesson sessions are typical examples of exclusive use. Rentals are often scheduled at the beginning and / or end of daily service. Saturday and Sunday mornings are a favourite time for swim lessons and may require exclusive pool use due to their popularity and revenue potential.


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FIGURE NINE OPERATING COSTS – PROPOSED AQUATIC CENTRE

POOL REVENUES

Rentals – School and Private (20,500)

Swimming Admissions – Passes and Drop Ins (120,000)

Swimming Lessons – Red Cross and Lifesaving (25,000)

Swimming Lessons – Adult and Specialized (16,000)

Special Events (5,000)

Retail – Proshop Sales (3,000)

Sundry Revenue – Locker Rentals (2,500)

TOTAL REVENUE $176,000

POOL EXPENDITURES

Program Supplies 9,000

Staff Training 10,000

Advertising and Promotion 3,000

Retail – Proshop Supplies 2,500

Insurance 12,000

Pool Supplies 22,000

Utilities (water/sewer; gas; electricity) 72,000

Facility Maintenance 50,000

Pool Chemicals and Janitorial 24,000

Labour & Benefits - Aquatics 320,000

Labour & Benefits - Maintenance 56,500

Labour & Benefits - Clerical 15,000

Annual Maintenance Shutdown 20,000

Capital Items 10,000

TOTAL EXPENDITURES $626,000

Net Budget $450,000


It should be noted that clerical costs would be higher if the facility were built at a location other than the Sonora Community Centre. From the consultants’ perspective, a net budget of $500,000.00 is suggested in order to accommodate any possible contingencies. The following program and service considerations were assumed in developing the pool budget projections.

• Use of an ‘Open Schedule’ provides the greatest access to patrons by reducing or eliminating swims with restrictions (such as age)

• 100 hours of public operation per week for forty-nine weeks each year, with three weeks each year for an annual shutdown

• Wage rates are based upon a modest $16 / hr. plus 25% in lieu of benefits

• Admission rates and fees are commensurate with an average at other indoor aquatic centres

• Clerical support is provided by a central administration

• Red Cross and Lifesaving Society programs are offered

• Maintenance costs are limited to routine janitorial work (not capital expenses or specialized remediation)

4.5 IMPACT ON TAXATION The following information presented in FIGURE TEN is based upon the Town of Osoyoos borrowing funds for facility construction from the Municipal Finance Authority. The assumed debt would be borrowed over 20 years at 5.75 %. Annual operating debt is calculated at $500,000.00. FIGURE TEN CONSTRUCTION and OPERATING COST TAX SCENARIOS

Construction

Cost

Federal/ Provincial

Infrastructure Grant

Annual debt

servicing on

borrowed funds

Borrowed Funds

Annual Operating

Costs

Total Tax Increase for the average home

assessed at $315.728

$6,300,000 $2,000.000 $359,402 $4,300,000 $500,000.00

$251.80

It should be noted that the financial information presented above takes into consideration a $2 million grant from the Federal Provincial Infrastructure Program. This figure is consistent with grants received by other municipalities in recent years for the construction


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of recreation facilities. It is also important that Osoyoos officials are aware that the success of grant applications of this type is enhanced by the inclusion of "green" technology and features that minimize the impact on the environment.

The information gathered from the informal survey conducted during the Public Open House suggests that 41% of the respondents would support an increase in taxation of over $150, and only 28% would support an increase over $200. Only one of the facilities (Concept One) is even close to $200. Realizing that the Open House survey was not statistically reliable, there is a possibility that that the support for a tax increase is either overstated or understated. As mentioned elsewhere in the report, a formal survey of a random sample of Osoyoos residents may be worth the Town's consideration.

4.6 RECOMMENDATIONS Recommendation # 1

• Consider the construction of a four lane lap pool and leisure pool including a whirl pool / hot tub, change rooms, mechanical and administrative space. (The total cost of the facility is estimated to be $6.3 million.)

Recommendation # 2

• Conduct research to determine the availability of grants from senior levels of government to assist in the construction of the proposed aquatic centre.

(Other BC communities have received grants totaling $2 million from the Federal / Provincial Infrastructure Program.) Recommendation # 3

• Depending on the results of the Town’s research into the availability of grants, place a borrowing referendum before Osoyoos voters to determine their willingness to support a four lane or a four lane aquatic facility, including a leisure pool.

Recommendation # 4

• Assuming the success of the proposed referendum, retain the services of architects and planning consultants to initiate the design of the facility, followed by preparation of working drawings.

Recommendation # 5

• Determine the most appropriate location for the facility. (The consultants have suggested that the pool should be located adjacent to the Sonora Centre, but other locations including municipally owned property near the Sun Bowl and the Secondary School should also be considered.)


It should be noted that the Town of Osoyoos could also initiate discussions with the Okanagan Similkameen Regional District regarding the possibility of constructing a Regional facility. If approved, this would reduce the overall financial impact on local taxpayers. Please note: Appendix One includes four of the options that were considered in the early phase of the study, as well as the Preferred Option, and a detailed Program Summary of the features (and their size) included in the facility.

Appendix Two includes comparative information related to operating costs in Merritt, Revelstoke, Grand Forks and Fernie.


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APPENDIX ONE

CONCEPT EXPLORATIONS AND PREFERRED OPTION



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APPENDIX TWO

COMPARATIVE INFORMATION - SIMILAR-SIZED COMMUNITIES


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COMPARATIVE INFORMATION - SIMILAR-SIZED COMMUNITIES

2006 Year End – Actuals

MERRITT REVELSTOKE GRAND FERNIE FORKS (2006) (2006) (2006) (2006)

Expenditures $623,092 $702,423 $717,037 $590,296

Revenue $212,750 $271,214 $202,282 $192,582

Net Subsidy $410,342 $431,209 $514,755 $397,714

2007 Budget

MERRITT REVESTOKE GRAND FERNIE FORKS

(2007) ( 2007) (2007) (2007)

Expenditures $652,300 $756,500 $772,296 $628,654

Revenue $205,950 $285,000 $211,136 $192,768

Net Subsidy $446,350 $471,500 $561,160 $435,886

Documents

TOWN OF OSOYOOS