Pool Advisory Committee Members

Wade Atkins, Board Member at Large, Frederick Area Swim Team (FAST)

Perry Baker, FCPS Athletics and Extracurricular Activities Supervisor

Raymond Barnes, FCPS Executive Director, Facilities Services

Amanda Baugher, FCPS Senior Accountant, Fiscal Services

Ann Bonitatibus, Committee Facilitator, FCPS Chief Operating Officer

Christine Colville, YMCA of Frederick County, Chief Executive Officer

Paul Dial, Frederick County Government Division Director, Parks and Recreation

Elizabeth Duffy, FCPS Assistant Principal, Walkersville High School

Rob Fox, Fox Swim Club, Head Coach

Mark Kavanaugh, Frederick County Advocates for Swim Teams (FCAST) President

Roelkey Myers, City of Frederick Deputy Director, Parks and Recreation

Ed Remus, Frederick High School Athletic Director

Melanie Sasse, Montgomery County Recreation, Aquatics Program Supervisor

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BACKGROUND

Frederick County Public Schools (FCPS) Facilities Services staff conducted a feasibility study in the fall of 2012 for a Frederick High School (FHS) renovation project. Following extensive research and community engagement in the feasibility process, FCPS recommended a concept adopted by the Board of Education (BOE) of Frederick County in December 2012.

Among the options in the approved concept was a replacement pool for FHS. The current pool could undergo extensive renovation, or a new pool could be attached to the replacement building or constructed as a separate building still on the FHS site.

To that end, the superintendent established a local advisory committee comprised of FCPS central office personnel, FHS and Walkersville High School (WHS) personnel, county and city officials with experience in pool recreation programs, and community leaders with experience in recreational and competition swimming programs.

Specifically, the committee was asked to address the following areas and questions:

• Examine the current funding sources available for a private/public partnership that can construct a high school pool to primarily serve FHS and FCPS athletic and instructional programs. o Identify the current projected cost of a pool building at FHS. o Are there state funds available for a pool building at FHS? If so, what are they and what is the range of budgetary support? o What local funds are available for a pool facility at the FHS site? o What private funds may be available for a pool facility at the FHS site? What is the range of support? o Are there grant opportunities available for a pool facility at the FHS site? If so, what are they and what is the range of budgetary support?

• Provide a framework for use of the pool facility. o Which stakeholders (users) within FCPS and community would access the pool facility? o Identify and prioritize the functions the pool facility would serve if built on the FHS site. (e.g. instructional, athletic, recreational, etc.) o What data exist demonstrating current use of all county pools (school system and community)? Does the data justify the need for a FHS pool facility? o Outline the logistical considerations for the use of the pool facility, including child safety and overall security. o Who would manage the logistics? Is this the same individual(s)/organization(s) who has final authority about the use of the pool facility?

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• Determine the viability of a pool facility/program sustainability. What additional or ongoing costs will be incurred? o What will the costs be for personnel? o What will the costs be for energy use? o What is the possibility that revenues can be generated? What would be the projected net income? Who would be responsible for managing the finances? For what will the revenues be used? o Who will be responsible for preventive maintenance and facility repair?

The above questions reflect the evolving conversations as guided by the superintendent’s charge. A copy of the original charge letter from the superintendent is provided in Appendix A.

CORE VALUES

At the first meeting of the advisory committee, core values were established to guide the committee’s work. These values were important because they grounded shared beliefs and created collegial operating norms.

The first value adopted by the committee was that swimming was embraced as an important educational, athletic, recreational, and health/wellness component in the broader Frederick community. All of these areas were accepted as complementary in nature, which eliminated potential conflict over the “ownership” of swimming programs in Frederick County. All organizations represented on the advisory group had equal share.

The second value was to adopt an agnostic stance to the idea of public versus private operations of pool facilities. This meant that no one on the committee would lead with advocacy toward one operational model. By adopting this stance, committee members were open to public, private, and partnership solutions following evaluation of key findings.

The third core value agreed to by the committee was to avoid any reference to assigning responsibility to any particular organization for failing to meet the needs of the swimming community. The future of swim programs, athletic or recreational, does not rest solely with one organization or particular group of individuals. Pool resources, interest, and usage are dependent upon multiple factors. Therefore, the committee’s adoption of this stance further reinforced the concept of swimming as a broad community interest and need.

The final core value driving the committee’s work was to approach the project with an inquiry stance. This meant that data would be gathered and questions would be asked prior to tendering any recommendations or potential solutions.

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PROCESS

Following receipt of the charge from the superintendent, the chief operating officer and executive director of facilities services met to plan the work of the advisory committee. Invitations were issued based on recommendations from the superintendent, community leaders, and FCPS staff.

Five meetings, each lasting two hours, were conducted through the months of April and May 2013. An agenda was developed for each meeting, and committee members were invited to add or amend the topics. Notes were taken at each meeting and published to the members within two days of convening.

The following agenda items guided committee conversations and research: • Identify FCPS and community needs for a pool • Determine where FCPS and community needs intersect or complement each other • Brainstorm known and potential sources of funding • Delineate potential barriers for a joint-use facility • Characterize potential benefits for a joint-use facility • Explore aquatics facilities models in other counties • Gather pool design/specifications • Review media reports on pools in Frederick County • Perform a Cost Benefit Analysis for pool operations • Examine existing data for pool use (county, city, FCPS, YMCA, higher education, etc.) Data to include usage, operating cost, revenue, maintenance costs, operational responsibility

The committee reviewed, examined, and discussed the following information and data: • Arlington Public Schools (Virginia) versus Frederick County Public Schools (Maryland) demographic data: number of schools, student enrollment, operating budgets, median household income, per capita income, population growth in county • Arlington County, VA and Arlington Public Schools Memorandum of Understanding for aquatics operations • Frederick News-Post articles and editorial • Frederick High School Feasibility Study Report (December 2012) proposed pool space requirements • Montgomery County Department of Recreation: Indoor and Outdoor Swimming Pool Design and Information • FCPS Pool Rental Comparisons by School (FY 2012, FY 2013) • FCPS Pool Operating Revenue and Expense Analysis (FY 2012, FY 2013) • The City of Frederick Parks and Recreation Department Swimming Pool Report 2012 • Frederick County Division of Parks and Recreation Partnership with the Frederick County Public Schools for Aquatics Programs

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• Frederick County USA Swimmers (i.e. swim clubs) participation trend data 2009-2013 • Frederick Summer Swim League (FSSL) trend data • “Save a Pool” materials from USS New Life for Aquatic Centers • FCPS participation and student demographic data for swimming and diving athletics programs • FCPS enrollment data for aquatics courses • YMCA revenue and expenses data for aquatics programs • YMCA swim team and other aquatics programs participation • FCPS Pool Sustainability Committee Report January 2012

FINDINGS

As discussed in the background and process sections of this report, the Pool Advisory Committee examined each area and questions contained in the charge and utilized multiple sources of information to establish each finding. In all cases, findings represent the consensus of the committee, rather than simple majority.

The three areas contained in the charge were used to organize the committee’s findings as follows:

Charge #1: Examine the current funding sources available for a private/public partnership that can construct a high school pool to primarily serve FHS and FCPS athletic and instructional programs.

1.1 Identify the current projected cost of a pool building at FHS.

Finding: • The Frederick High School Feasibility Report estimates $5-6 million for 16,000 sq. ft. pool attached to the school. • Cost assumes pool and high school will be built at same time under one contract. • According to the Frederick High School Feasibility Study, salvaging the existing FHS pool is not structurally or economically practical. There will be major additional costs in maintaining walls and roof of current structure once main school is demolished. There is also need for separate mechanical plant, pump rooms, offices, etc.

1.2 Are there state funds available for a pool building at FHS? If so, what are they and what is the range of budgetary support?

Finding: • State funds are available for general construction, but at expense of standard educational specifications for a new FHS. In other words, the total size of the

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required educational program, combined with a pool facility, would exceed current funds available.

1.3 What local public funds are available for a pool facility at the FHS site?

Finding: • None available/known currently.

1.4 What private funds may be available for a pool facility at the FHS site? What is the range of support?

Finding: • None available/known currently.

1.5 Are there grant opportunities available for a pool facility at the FHS site? If so, what are they and what is the range of budgetary support?

Finding: • None available/known currently. • USA Swimming “Build A Pool”- FAST applied and was approved for a small grant in 2010 to study feasibility of aquatics programs in Frederick County.

Charge #2: Provide a framework for use of the pool facility.

2.1 Which stakeholders (users) within FCPS and community would access the pool facility?

Finding: • Students • Swim Clubs • YMCA • Frederick Summer Swim League • County Parks & Recreation • City Parks & Recreation • Boy Scouts • Special Olympics • Hospital – private rehabilitation • Other interested community members • Commercial (for-profit) users

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2.2 Identify and prioritize the functions the pool facility would serve if built on the FHS site (e.g. instructional, athletic, recreational, etc.)

Finding: • Athletics • Instruction (current curriculum does not require aquatics instruction; student enrollment for aquatics classes not at full capacity) • Community (outside user groups as identified in 2.1; current FCPS regulation outlines requirements for use)

2.3 What data exist demonstrating current use of all county pools (school system and community)? Does the data justify the need for a FHS pool facility?

Finding: • FCPS pools at Frederick, Middletown, and Walkersville are used to capacity during the swimming and diving seasons (n=403 athletes, representing a 13% decrease since FY2009, likely due to change in participation rules for athletes in club teams) • Specific to the FHS pool, 183 (45%) FCPS student athletes of the 403 athletes listed above would be displaced with closure of FHS pool. • Early 2013 data on community use of Walkersville pool for County Parks & Recreation indicates full programming • FCPS pools are being utilized by community groups for approximately 66% of the available time • Participation in community swim club teams has increased by 25% since 2009 (n=486) • YMCA participation in aquatics programs is nearly 40,000 (note: duplicated count) • Frederick County had a pool feasibility report conducted in 2009 which suggested there is high interest in and usage of county pools. • Data justifies need for a pool to meet FCPS and community needs

2.4 Outline the logistical considerations for the use of the pool facility, including child safety and overall security.

Finding • Separate locker rooms preferred for school population and general community • Security camera/buzzer system (even if attached to main school facility) • Meet all Code of Maryland Regulations (COMAR), Americans with Disabilities Act (ADA), and FCPS regulations • Reception area for check-in • Parking
Availability of space is biggest drawback to using FHS; current parking during school day is limited, as well as parking when multiple school/community events are simultaneously occurring; parking spills onto community streets

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Supervision of parking lot is an area of concern
Increase in traffic through community could be a concern

2.5 Who would manage the logistics? Is this the same individual(s)/organization(s) who has final authority about the use of the pool facility?

Finding: • Models similar to agreement with city and county parks and recreational programs could be used
Centralized calendar could be utilized
FCPS scheduling needs would be first priority with outside user scheduling done after FCPS dates on calendar. • Staffing may be dependent upon whether the pool is connected to FHS building • Recommended for school to have management during school hours, especially during high winter usage, along with a manager for outside user groups/off-school hours. • FCPS cannot be out of management loop if on our property (FCPS policies must be followed)

Charge #3: Determine the viability of a pool facility/program sustainability. What additional or ongoing costs will be incurred?

3.1 What will the costs be for personnel?

Finding: • Currently two pool operators and lifeguards operate three FCPS pools, but there are costs FCPS absorbs as a system. • Savings in pool operating/direct expenses could be shifted to pay for other personnel employed by group(s) outside of FCPS. • Dependent on programs running and revenue.

3.2 What will the costs be for energy use?

Finding: • Detached pool facility will be more expensive than an attached pool facility. • There is no separate meter to know the actual pool energy use at FHS • Montgomery County uses a formula of $11/square foot (electricity/energy cost only).

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3.3 What is the possibility that revenues can be generated? What would be the projected net income? Who would be responsible for managing the finances? For what will the revenues be used?

Finding: • Revenues are generated, but FCPS operates at a loss now. FCPS does not currently charge for full cost of overhead. • Swim programs will bring in more revenue than an hourly charge. • If FCPS owns the facility on FHS site, then FCPS would be responsible for the facility and related finances (revenues and expenditures) of that facility (how we currently run our pools). • If FCPS operates the pool, revenues will be used for systemic upkeep of the pool as school systems are not permitted to create profits. • If an outside group operates the pool, revenues would go to outside manager. Allocations of revenues would have to be outlined within the management contract. • The general conclusion is that it is difficult for any group, public or private, to operate an aquatics facility and generate a profit from usage alone. Typically, membership fees supplement revenue.

3.4 Who will be responsible for preventive maintenance and facility repair?

Finding: • Property site owner

CONCLUSIONS / RECOMMENDATIONS

Upon reaching consensus on the findings, members of the Pool Advisory Committee considered the implications of each finding associated with the charge questions and looked for patterns and recurring themes that could assist them with drawing conclusions and making recommendations.

The Pool Advisory Committee concluded that there is a clear, present, and future demand for a facility that can meet FCPS and community needs. It is imperative that the greater Frederick County community not lose a pool that serves the school system, along with competition and recreational programs. For all community needs to be met, an aquatics facility would need to be larger to accommodate all age groups and interests. Given the space limitations on the FHS site and the lack of funding, the committee concluded that a large enough aquatics facility to adequately serve the school system and growing community needs was not feasible. However, if a more comprehensive facility cannot be built off the FHS site, the committee recommends exploring funding options for a FHS pool, understanding that costs would be considerably higher if the pool were to be constructed after the FHS renovation project is complete. Quite

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simply, the committee believed the “biggest bang for the buck” would occur via an aquatics facility built off FCPS property, rather than a high school pool.

The following recommendations are intended to guide the decision-making process for the BOE. It is understood that a broader community effort may be needed to address locating a pool off of FCPS property, in which instance, individuals outside FCPS would be requested to guide the process.

The desire in the community is evident, but the ability for FCPS, alone or through a partnership, to provide an adequate pool on site at FHS is not apparent. The committee recommends a community effort to develop an aquatics facility as the best alternative. • BOE members and staff would be asked to show a willingness to collaborate with various community agencies to address funding and operational aspects characteristic of an aquatics center partnership that would serve FCPS needs and the entire community. • The pool would not be on FCPS property or operated by FCPS staff • The pool would have to be a facility that meets multiple community needs, including recreation and health/wellness • The pool would need to support existing FCPS athletic team needs • The pool would need to support existing swim clubs

Consider how FCPS could contribute to an aquatics facility that serves FCPS needs and the entire community. • Determine how actual current operating funds for the FHS pool could be reallocated to support a community pool • Explore FCPS pool operations in general to include management by a community entity at Walkersville High School and Middletown High School sites

Any secondary alternative to the committee’s recommendation as stated above, which would locate a pool on FHS property, would have to do the following: • Identify a viable funding source by September 1, 2013 to allow for a pool’s incorporation in FHS design plans • Consider contracting a pool architect to provide a secondary cost estimate of an attached versus detached pool. o Some committee members questioned if the FHS Feasibility Study quote of $5 million was accurate? It is based on cost per square foot (a typical estimate is $240/square foot, which equates to $240 x 16,000 sq. ft. = $3.84 million) • Recognize that a pool located on FHS property would not adequately serve community needs due to space constraints and other logistics • Outline the pros and cons of how generating revenue during the school day could impact students’ use of pool and campus operations

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Appendix A

To: Frederick High School (FHS) Pool Committee

From: Theresa R. Alban, Ph.D.

Date: March 24, 2013

Subject: FHS Pool Committee Charge

At the direction of the Board of Education (BOE) for Frederick County Public Schools (FCPS), an advisory committee is being formed for the purpose of investigating the options for funding and supporting a pool at the new Frederick High School site. You have been recommended to become part of this vital committee.

The charge to this committee is to examine and identify options for funding and supporting a public/private partnership for a pool at Frederick High School. Throughout the process, you should solicit feedback from a variety of school and community stakeholders. Results of the findings, along with recommendations, shall be prepared in a written report and presented to the BOE at a public meeting by June 12, 2013. The final report should reflect the input of the full range of key school system personnel and invited community stakeholders.

The following charge questions are intended to guide the committee in its work:

• Examine the current funding sources available for a private/public partnership that can construct a community pool. o Identify the current projected cost of the project. o Are there state funds available? If so, what are they and what is the range of budgetary support? o What local funds are available from local public sources such as the BOE or Frederick County Board of Commissioners? o What private funds may be available? What is the range of support? o Are there grant opportunities available? If so, what are they and what is the range of budgetary support?

• Provide a framework for use of the pool facility. o Which stakeholders (FCPS and community) would access the facility? o Identify and prioritize the functions the facility would serve. (e.g. instructional, athletic, recreational, etc.) o What data exist demonstrating current use of all county pools (school system and community)? Does the data justify the need for a FHS facility? o Outline the logistical considerations for the use of the facility, including child safety and overall security. o Who would manage the logistics? Is this the same individual(s)/organization(s) who has final authority about the use of the facility?

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• Determine the viability of facility/program sustainability. What additional or ongoing costs will be incurred? o What will the costs be for personnel? o What will the costs be for energy use? o What is the possibility that revenues can be generated? What would be the projected net income? Who would be responsible for managing the finances? For what will the revenues be used? o Who will be responsible for preventive maintenance and facility repair?

Ann Bonitatibus, Chief Operating Officer, will coordinate and facilitate the work of the committee. She will designate meeting dates, assign co-chairs, assist with resources, and provide guidance on the final report. Below is the list of meeting dates:

Meeting Date Time Location 1 Wednesday, April 2:00-4:00 FCPS Central Office, 191 South East Street, 24, 2013 p.m. Frederick, MD – Conference Room 4A 2 Wednesday, May 9:00-11:00 FCPS Central Office, 191 South East Street, 1, 2013 a.m. Frederick, MD – Conference Room 4A 3 Wednesday, May 11:00 a.m.- FCPS Central Office, 191 South East Street, 8, 2013* 1:00 p.m. Frederick, MD – Conference Room 3B 4 Wednesday, May 12:00 – 2:00 FCPS Central Office, 191 South East Street, 15, 2013* p.m. Frederick, MD – Conference Room 3B 5 Wednesday, May 11:00 a.m. – FCPS Central Office, 191 South East Street, 22, 2013* 1:00 p.m. Frederick, MD – Conference Room 3B 6 Wednesday, June 6:00 p.m. Board of Education Meeting; Presentation on 26, 2013 findings/recommendations, FCPS Central Office – Board Room

*Feel free to bring your lunch to these meetings.

I thank you, in advance, for your commitment of time, energy and expertise to this committee. I cannot overemphasize the importance of your work.

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