Report Regarding Opening of the City's Outdoor Pool(s)Copyrighted
June 15, 2020
City of Dubuque Action Items # 2.
ITEM TITLE: Report Regarding Opening of the Outdoor Pool(s)
SUMMARY: City Manager transmitting a report from Leisure Services
related to opening the City's two public pools.
Leisure Services Manager Marie Ware will provide a verbal
summary of the report.
SUGGESTED DISPOSITION: Suggested Disposition: Receive and File; Council
Direction
ATTACHMENTS:
Description Type
Report Regarding Opening of Outdoor Pools(s)-MVM City Manager Memo
Memo
Staff Report Staff Memo
Masterpiece on the Mississippi
TO: The Honorable Mayor and City Council Members
FROM: Michael C. Van Milligen, City Manager
SUBJECT: Report Regarding Opening of Outdoor Pool(s)
DATE: June 11, 2020
Dubuque
All-A.aia City
111111
2007.2012.2013
2017*2019
Leisure Services Manager Marie Ware has submitted a memorandum detailing the
issues related to opening the two City public pools, Flora and Sutton.
While the challenges are many, Marie believes if the Mayor and City Council decide to
open the pools, the Leisure Services Department could hire and train enough lifeguards
to have them open by July 13. The goal would be to be able to retain enough
lifeguards, as they return to school at some point, to keep one or both of the pools open
through Sunday, August 16.
While opening the pools creates concerns about additional exposures to COVID-19 and
it will increase City costs, the benefit is that the pools provide an affordable outdoor
entertainment option.
Marie will present a summary of her informational memorandum. City staff looks
forward to Mayor and City Council direction.
Mic ael C. Van Milligen
MCVM:jh
Attachment
cc: Crenna Brumwell, City Attorney
Teri Goodmann, Assistant City Manager
Cori Burbach, Assistant City Manager
Marie L. Ware, Leisure Services Manager
Mary Rose Corrigan, Public Health Specialist
Masterpiece on the Mississippi
TO:
FROM:
SUBJECT:
DATE:
Michael C. Van Milligen, City Manager
Marie L. Ware, Leisure Services Manager
Report Regarding Opening of Outdoor Pool(s)
June 11, 2020
INTRODUCTION
Dubuque
121131
AII•America City
NAPO.<MC I l C4_U1:
2007*2012*2013
2017*2019
The purpose of this memorandum is to provide a report regarding the opening of the
outdoor pool(s) for the 2020 season.
BACKGROUND
Staff has been in communication with both Iowa Recreation Departments and aquatic
professionals from around the country regarding best practices and season
considerations during this COVID-19 crisis. We have also researched and continue to
monitor recommendations from the Centers for Disease Control (CDC), Iowa
Department of Public Health (IDPH) and other national and local aquatic authorities
including American Red Cross. On Wednesday, June 10th the Governor revised her
proclamation related to swimming pools. The current proclamation provides that
swimming pools can reopen fully with reasonable measures to ensure social distancing
of employees and patrons, increased hygiene practices and other public health
measures to reduce COVID-19 transmission consistent with IDPH guidance.
DISCUSSION
Staff has been considering and researching the equitable and recreational value of this
summer amenity to the community as a whole while at the same time balancing the
inherent safety risks that pool operations normally have with the added risks of the
COVID-19 virus along with new protocols that would have to be developed. The only
option to open a pool includes reducing as many added risk factors as possible while
maintaining safety and the core values of an outdoor public pool.
What is the value?
• Pools are low-cost/affordable public places and spaces for all members of the
community regardless of economic and demographic backgrounds.
• Pools are an enclosed "safe space" for youth to engage in social and physical
activity throughout the summer.
• Pools indirectly and directly provide life skill training through the introduction to
water safety and independence. For staff, these skills developed include
leadership, public engagement, authority, compassion, reasoning, and decision
making.
What are the risk factors to consider?
Staff Lifeguard Training and Safety: "On land" and orientation training can be
conducted in groups of 10 (9 trainees and 1 trainer). Each session is 4 hours long.
Lecture portions of the training can be and have been done virtually. Social distancing
guidelines/best practice make traditional "in -water" lifeguard training impossible. That is
not to say that training can't happen. There can be alternative ways for staff to train.
Typical lifeguard trainings include in -water rescues, victim removal, spinal injuries/back
boarding, and multi -victim scenarios. All of these require person to person contact and
cannot be performed while wearing a mask. Not only are these skills practiced during
training, but they are also completed on a daily basis during the season in-service
trainings, before and after shifts, and during mock emergencies to ensure staff
readiness. Much like in sports, constant practice and muscle memory play a vital role
when saving a drowning victim in such a spontaneous event. Even guards that have
been working with us for multiple years have to perform these tasks on a daily basis.
Each of these skills will need to practiced without performing the actual skill on a live
person. Any saves being performed in the pools if opened would mean the lifeguard will
not be able to social distance from the individual they are saving. Numerous saves are
performed each year during the season.
Sanitation: There are several areas throughout a pool facility where contact is
unavoidable. These areas consist of handrails (on stairs and ladders), play features,
restrooms, lockers, lounge chairs, picnic tables, methods of payment, etc. Each area
would need to be cleaned and sanitized either after every use, frequently, or during
specific breaks in programming throughout the day. Depending on how many areas
there are and usage will determine the levels of frequency and staff needed to
accomplish tasks.
Social Distancing: Lines to enter the pool on a typical hot day can extend for
hundreds of feet. Even with a queue system and clear spatial markers, it will be entirely
up to the patron(s) to follow the current distancing guidelines. Admission staff can
monitor the queue lines, but it will take cooperation of all of our citizens.
The most difficult safety guideline to enforce will be social distancing within the pool
water itself. Lifeguards will rarely if ever know the group dynamics of people in the pool.
Today's modern family/household is very different. There are blended families, multiple
families living under one roof, multiple generations, etc. Even though the total number
of people allowed in the facility can be controlled and represents a number that creates
the opportunity for social distancing both in and out of the water, it is not feasible for a
lifeguard to continuously scan the pool surface to also take time keeping people apart
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for social distancing. Their attention needs to be on safe swimming and scanning for
persons in distress.
Overall: As previously mentioned, the safest way to open a facility like the pool is to
reduce the number of risk areas possible while still maintaining the core function of the
facility. This will not only reduce the risk of coming in contact with a contaminated
surface but will help to make the sanitation process more effective and manageable. As
part of the following pool opening strategy, staff is proposing to remove a list of risk
factors. These factors include the removal and/or closing of the playgrounds (both
(water and dry), the water slides, high dive, lounge chairs, lockers, drinking fountain(s)
and picnic tables. By not having the waterslides open, this will eliminate the need to
sanitize the steps, handrails, launch bar, exit ladders, and slide areas. This will also
reduce the need for pool users to stand in lines social distancing waiting for their turn.
Not only can reducing the option for contact help mitigate spread of the virus, but it will
also require less time for staff to sanitize between shifts.
What would remain open would be the main pool, low dive and concessions. Should
research gathered or guideline recommendations change, some amenities may open
back up. However, with any reopening of an amenity like water slides or water
playground, there will be a corresponding additional staff cost.
To help manage protocols for pool admissions (queue system, taking temps, accepting
payment, etc.) as well as the social distancing and sanitation within the pool facility, staff
is recommending that a maximum number of people be allowed access into the facility
per program time.
To come up with a safe capacity for pool use, staff calculated the linear square footage
of the water surface in the main pools. Based on this area it was determined that 140
people could be in the water and at least 6 feet away from anyone else. As is
traditional for many pool users, staff also believes that at least 25% of the pool patrons
utilize the deck and lawn areas. We also know that many families utilize the pools
which would allow for patrons from the same household to be closer to each other when
in the water. Based on these factors staff believes that 150 admissions per time frame
would provide space to properly social distance at Flora Pool. Sutton Pool has a
smaller body of water as well as less perimeter space which would reduce the number
to 100 patrons per time frame.
Staff is working on what various open swim "program" times may look like to ensure an
equitable opportunity to visit the pool by anyone and everyone in the community. Some
may be entirely first come first served (FCFS), some might require pre -registration and
others may be group specific. These groups would be local partners working with the
underserved populations including but not limited to, specific ethnicity groups, low-
income providers and members of the special needs population.
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Operation Layout
• Opening Timeline: Can open 3 to 4 weeks from approval. The pool(s) currently
have no water and have not started the opening/filling process.
o Example: If Council decides at the June 15th meeting to open the pool(s)
the target date for opening would be July 13t"
• Closing Timeline: Closing would be between August 14-August 23 depending
upon staff availability with modified hours. Dubuque Community Schools starts
on August 13 with orientation for certain grades and all students starting class on
August 14. Two of the Iowa state universities moved up the starting class date to
August 17 and others have not yet announced.
• Open Amenities
o Main pool (zero depth to lap lanes)
o Low dive
o Concessions
• Closed/Unavailable Amenities
o Slides
o Playground(s)
o High dive
o Lounge chairs
o Concession seating
o Lockers
o Drinking fountains
• Programs
o Open Swim (can be FCFS, partner related program, etc.)
o Adult Swim/Water Walking (pre -registration required)
o Lessons (parent/tot and only offered to Aquatots through Beginner 2)
■ Class sizes reduced to 4 participants per instructor
■ Participants must be registered along with a parent/caregiver (also
in water)
■ Instructors will be teaching from the deck
■ All participants will enter and leave the water via zero -depth area
(ladders will not be utilized unless in emergency)
■ All staff will be wearing masks
o Pool rentals would not be recommended for the 2020 season as they do
not provide an equitable service. There are currently 42 rentals already
booked for the 2020 season. If canceled there would be over $9,000 in
collected rental revenue that would be refunded from FY20 revenues.
• Schedule:
o Monday through Friday
■ 7am-8:30am — Adult Swim
■ 9am-10:30am — Adult Swim
■ 11 am-1 pm — Open Swim
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■ 2pm-4pm — Open Swim
■ 5pm-7pm — Lessons @ Flora / Open Swim @ Sutton
o Saturday & Sunday
■ 7am-8:30am — Adult Swim
■ 9am-10:30am — Adult Swim
■ 11 am-1:30pm — Open Swim
■ 2:30pm-5pm — Open Swim
■ 5pm-8:30pm — Open Swim
• Staffing
o Minimum 13 staff per shift (includes managers, lifeguards, cashiers,
concessions, restroom attendants, temperature takers, etc.)
o All staff will wear masks (when possible) and follow current CDC
sanitation and protection guidelines.
• Daily Admissions
o Flora - 150 patrons per program time
o Sutton — 100 patrons per program time
o $1 entry fee
• Pool Passes will not be sold this season.
• Entrance
o Queue System
■ Use parking lot
■ Rear entry to Concessions Building used for Temperature Station
• Any patrons with temp at or above 100.4 will not be
permitted to enter
■ Drive thru lane closed and used for potential lines
• Will need space for anywhere from 300 to 900 linear feet for
proper social distancing in line
■ Daily admissions will enter through locker rooms
■ All patrons will be encouraged to shower prior to entering the main
pool area.
■ Patrons will exit through separate gate
• Sanitation
o Restroom attendants will clean restrooms throughout day
o All staff will sanitize contact surfaces between programs
o Dive well guard will wipe down low dive handrails between every use
Pool Chemical Treatment Regarding COVID
Chemical/chlorine treatment to pool water greatly reduces the ability for biological
elements to spread. These chemicals combined with additional Ultra -Violet (UV)
remediation (which is what both Flora and Sutton already have) is the best and most
effective. Unfortunately, as of the date of this memo, no agency has confirmed that
these remediation processes have the same effect on the COVID-19 virus. The CDC's
Guidance for Administrators in Parks and Recreational Facilities, "Proper operation,
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maintenance, and disinfection (with chlorine or bromine) of swimming pools should kill
the virus that causes COVID-19." Staff did consult with City Attorney Brumwell as well
as ICAP Legal Services regarding the City's recreational immunity. Per ICAP, nothing is
for sure. However, in their opinion as long as we follow Public Health Chapter 135i
which requires proper certification and inspection along with Iowa Code 670.4L, the City
is doing everything currently asked by the appropriate authorities to operate a pool.
Reducing the risks of COVID-19 spread is currently best served through new protocols
and processes that encourage social distancing and sanitation.
Equity Impacts
There will be equitable service delivery impacts whether the pool is open or not. If the
pools were to remain closed, the community would be without a low-cost recreational
amenity that services all demographics. However, the result of this option would be the
same for everyone within the community.
If the pools are to open with the revised protocols and services, the impacts would be
more disproportionate. The key factors that will provide a difficult atmosphere to ensure
opportunity for all are:
• Limiting admission to a maximum number of people per session.
• Potentially only opening 1 location.
• Temperature checks.
A true open swim program would be based on a first come first served format. It is not
practical nor feasible during this scenario for staff to be able to monitor the number of
times one person is admitted over time compared to another. This can result in several
patrons being turned away who may have transportation or other hardships.
Taking individuals temperatures also presents some privacy challenges. Per City
Attorney Brumwell there are no privacy restrictions on staff's ability to take temperatures
of the public. However, a policy will need to be put in place if a patron refuses to allow
staff to take their temperature. Any refusal to follow this protocol or any other protocol
by a patron or staff will result in the refusal of access to the facility.
Functional Considerations
The ability to open 1 or both pools is highly dependent on staff availability. The current
levels of certified and available staff are shrinking as some have gained other
employment. As of mid -May, there were over 60 applicants available. As of today, the
applicant list is at 50. Staff is currently reaching out to each applicant for availability and
confirmation that they still are available and want to work at the pools. In order to open
1 pool, we would need a minimum of 25 committed staff. Both pools could open with 40
committed staff. No hiring as been taken place as an offer to work cannot be given
unless one knows the pool(s) will be opening.
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If there are only enough committed staff for 1 pool, the question then becomes which
pool?
Option 1 — Flora Pool
• Pros
o Flora is the largest site which allows for the greatest areas for social
distancing both inside and outside of the facility.
o Being the larger pool also provides the greatest opportunity for
participation as the maximum admissions allowed per program is set at
150.
o With JULE fares currently being suspended, families would have free
transportation opportunities to access the site.
• Cons
o Location not ideal for families with transportation challenges.
o Greater operating costs due to water volume and staff needs
Option 2 — Sutton Pool
• Pros
o Less expensive to operate
o Located closer to concentration of lower -income residents
o With JULE fares currently being suspended, families would have free
transportation opportunities to access the site.
• Cons
o Smaller facility results in less people being able to participate per program
time. The maximum admission allowed per program time is 100.
o Less external area to set-up safe queue system for admission.
What if staff is alerted that a recent visitor had tested positive for COVID-19?
Per the current CDC recommendations, if a patron who visited the pool notifies the City
that they have tested positive for COVID-19 the following steps would take place.
1. Staff will immediately notify local health officials and staff.
2. A public announcement would also be sent to notify the community while
maintaining confidentiality of the affected individual. No names would ever be
shared.
3. The pool would be shut down for 24 hours prior to cleaning.
4. After the 24 hours is over, staff can then re-enter the facility and begin cleaning
all high touch areas.
5. The pool will then be able to be reopened to the public.
Why does the City Council make this decision?
According to City Attorney Crenna Brumwell the City Council makes the decision in an
attempt to avail itself of the most immunity possible. Staff continues to monitor
legislative efforts to provide employers immunity specific to COVID 19.
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BUDGET IMPACT
The pool operations are the largest tax subsidized amenity/service within the Recreation
Division budget. The FY20 operating budget for the pools accounted for $359,215 in
revenue and $541,548 in expenses for a tax subsidy/loss of $182,333. By the end of
April, the operating budget stood at a $228,139 tax subsidy/loss. This total does not
include the $29,155 Administrative expense that is charged at the end of the fiscal year.
The reason for the current budget shortfall is due to the delay in revenue generation
through the usual April release of the Leisure Services Summer Brochure. In FY19,
over $32,000 was collected in April for swim lessons alone. In the FY19 months of May
and June, an additional $127,325 in revenue was collected. These numbers were even
greater for FY's 17 and 18 collecting over $180,000 in April through June each year.
With a shortened season combined with the protocols in place, there will be a significant
revenue loss whether one or both pools are opened. There is also a significant
decrease in operating expenses for the last quarter if FY20 and the first quarter of
FY21. Unfortunately, neither choice will help close the gap for the FY20 shortfall.
Opening both pools (again with the uncertainty of revenue generation) could have a
similar effect to the FY21 budget with a projected increase of close to $20,000 to the
budgeted subsidy. Choosing to open 1 pool based on the potential participation at Flora
of 150 per session as well as lesson space, is projected to have a positive impact on the
FY21 budget with a reduction of the subsidy. Opening just Sutton would also have a
positive impact to the FY21 budget but it would not be as significant. The following is a
summary of these projections:
Open Both Pools
FY21 Projected End
$266,721.00
$494,807.00
-$228,086.00
FY21 Budget
$333,326.00
$541,428.00
-$208,102.00
RECOMMENDATION
Open Flora Pool
FY21 Projected End
$254,721.00
$347,456.00
-$92,735.00
FY21 Budget
$333,326.00
$541,428.00
-$208,102.00
Keep Pools Closed
FY21 Projected End
$235,722.00
$199,104.00
$36,618.00
FY21 Budget
$333,326.00
$541,428.00
-$208,102.00
This memo is to provide a report regarding the opening of the outdoor pool(s) for the
2020 season.
Prepared by: Dan Kroger, Recreation Division Manager
cc: Jennifer Larson, Director of Finance and Budget
Janna Beau, Recreation Supervisor
Mary Rose Corrigan, Public Health Specialist
Crenna Brumwell, City Attorney
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