Olympic pool redevelopment - Appendix 1 business case - Gisborne District Council
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Appendix 1
olympic pool redevelopment
b u s i n e ss ca se
v0.9 - 24 February 2017
1
how to read this document
This Single Stage Business Case (SSBC) proposes that $14-$17 million
is invested in the period 2017 - 2020 for redevelopment of Gisborne’s
Olympic Pool to ensure it is fit for purpose and able to meet the needs for
the people of Tairāwhiti over the next 30 years.
This document follows the Better Business Case five-case format:
strategic case: page 3
> part one is the strategic case, which starts on page 3. It provides the
context for why swimming pools are important for communities, and the
functions and roles of the Olympic Pool complex.
economic case: page 30
> part two is the economic case, which starts on page 30. It assesses the
options for how the community might invest in the Olympic Pool complex,
identifies a preferred option, and quantifies the likely costs and benefits.
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> part three is the financial case, which starts on page 44. It describes the
funding requirements and funding sources for the preferred option.
commercial and management cases: page 47
> part four is the commercial and management case, which starts on page
47. It describes how the required services for the preferred option would
be procured, and how the resulting project would be run.
recommendations and next steps: page 56
> recommendations and next steps are made, starting on page 56.
2
part one: the strategic case
The Olympic Swimming Pool is Gisborne’s leading and largest recreational and
sporting aquatic complex, and services the wider Tairāwhiti region.
It was built in 1974, funded largely through community efforts, and it is owned and
run by the Gisborne District Council for the benefit of the region.
Like many other New Zealand public pools of the era, it was originally designed as
an outdoor facility that was used during the summer season and shut down over
winter. The primary function of the pool was to provide a training and competition
facility for aquatic sports, with a secondary use as a recreational facility.
Three pools were initially constructed, and as demand for recreation has grown, new
facilities such as a hydro-slide, barbecue areas and a hydrotherapy pool have been
added. To extend the use of the pool outside the summer season, a tent-like cover
was constructed in the 1995. The plant and equipment necessary to support the However, the Olympic Pool facility is beginning to show its age, and there are a
pools has been gradually upgraded over the decades. number of issues facing the complex:
1. There is a growing list of major maintenance issues that will need to be
addressed. These include a needed refurbishment of the hydro-slide,
resurfacing of some pools, replacement of tiled edges and the likely end of the
economic life for the main pool roofing system in the coming decade.
2. The changing demand for aquatic recreational facilities – and the changing
expectation of pool patrons – means that the configuration of the complex is
no longer ideal. Some key facilities such as changing rooms are substandard
and have poor quality access to the pool, and the demand for some aspects
of the pool complex – such as winter swimming and hydrotherapy – exceed
available supply.
3. Demand also exists for services that the Olympic Pool can’t provide in its
current form, such as learn to swim classes. Learning to swim is an important
skill, and there is poor provision at the region’s leading aquatic facility.
strategic case > the olympic pool 3
the council has been considering redevelopment for some time
The redevelopment of the pool has been incorporated into the council’s 10-year
Long Term Plans (LTP) since 2006. Over time the scope for the redevelopment
has changed, as has proposed budget.
The 2006-16 LTP recognised there are a number of limitations with the current
pool including the age of the asset, its condition and the impact on repair and
maintenance costs, the inability to meet community expectations due to closure of
pools in winter, and the shortfall of facilities. Council allowed $15m for year 9 of
the plan (2014/15) for the redevelopment of the Olympic Pool. The new complex
would satisfy the new trends for aquatic recreation as a year-round activity and
cater for swimming, leisure, health, learning and play. The cost would be 100% grant
funded.
Three years later, the 2009–19 LTP increased the scope of the project to include a
recreation centre, with the proposed cost climbing to $23.6M. A stadium was also
mooted at an extra cost of $37m.
By the 2012–22 LTP the stadium had been dropped as it was deemed to be too
expensive. There was still support for the replacement or redevelopment of the
pool and a total budget of $30.19m was included for years 2018/2019 /2020; the
intended source of the funding was about 33% in loans and 66% from grants.
In the 2015–25 LTP the budget (and subsequently the scope) of the project was
reduced. Council acknowledged that the pool is in need of a make-over with
parts of the facility having 5-10 years of economic life before they need replacing. During the decade-long debate over the future configuration of the Olympic
Upgrades and repairs were considered together at an estimated cost of $10.5m to Pool, some major maintenance items have been delayed or deferred on the
be finalised in 2018/20. The project is to be 100% grant funded. assumption that a major redevelopment would obviate the need for the
expenditure, and to avoid re-work.
However, the necessity to address these items is beginning to grow.
Accordingly, this business case has been written to look at the case for a
refurbishment earlier than set in the LTP.
strategic case > redevelopment 4
the Tairawhiti context
The main users of the pool are the residents of Gisborne city and the wider
Tairāwhiti region.
Around 31,683 people live in Gisborne city and a further 13,224 in the wider region,
according to the 2013 census. Compared to the rest of New Zealand, Gisborne
city’s residents are likely to be more socio-economically deprived, younger (under
the age of 20) and be living as part of a family with children.
The age distribution of Gisborne’s population is also different from the national
picture, with children and young people being over-represented in the local
population.
The graph above shows Gisborne families are more likely to have children than
families nationally - 66% of Gisborne families have children compared to 59%
The left side of the graph below shows that 32% of people in the Gisborne region
nationally. There are almost twice as many single parent families. 4,863 households
(in purple) are aged less than 20 compared to 27% for the rest of New Zealand
have more than 3 residents. Families with children are one of the major user groups
(clear back boxes). The right of the graph shows the same pattern continues to
for the pool.
2043 - 26% compared to 22%. This younger group are the majority of pool users.
Gisborne City residents have a relatively high level of socio-economic deprivation
compared to the rest of New Zealand (see the graph below). 69% of residents
are graded seven or above on the deprivation scale, compared to 40% nationally.
As the level of deprivation increases the greater the gap, to the point that there
are significantly more people at the highest level of deprivation in Gisborne than
the rest of the country. In spite of potential challenges in their ability to afford the
entry fees to the Olympic Pool, this group does use the facilities.
strategic case > context 5
the current state of olympic pool
The pool complex comprises a range of recreational and sporting facilities:
• A 50m x 7-lane main pool with roof
• A 33m outdoor recreation pool
• A dive pool with diving boards
• A 98m hydro-slide
• An outdoor toddlers pool with slide
• An indoor hydrotherapy pool
• A retail shop and outdoor kiosk
• Outdoor recreation areas, including family barbecue sites and shade sails
• Changing rooms and administrative facilities
These developments largely reflect the changing usage patterns of the pool.
Today, around 6% of pool patrons swim competitively as part of a club, while the
remaining 94% are primarily interested in recreation – ranging from a day out with
the family to regular pool attendance for general fitness.
The areas around the pool have been progressively landscaped so they are pleasant
places for families to enjoy the surroundings, and there are five barbecue areas
available for rent. Shade sails, green landscaping and generous sitting areas mean heating system mean that the complex now uses wood chips, which has both lower
that the pool complex is an enjoyable place for all-day outings. On a busy summer costs and significantly lower carbon emissions than a traditional natural gas system.
day, around 1500 people will use the Olympic Pool.
The pool is situated opposite the beach, at the end of the newly-built Oneroa
The filtration system for the pool has recently been upgraded, which means that Beachfront Cycle and walkway.
water quality meets the appropriate New Zealand standards. Recent changes to the
Photo credit: Robin Capper via Flickr, CC BY-NC 2.0
strategic case > current state 6
the main pool
The main pool is 50 meters long with seven lanes. It was built as an outdoor In summary, the primary issues with the main pool are:
facility, designed to be used primarily for the summer season.
• Access from the changing rooms to the main pool needs to be improved
Over the years it became apparent that there was a significant demand for year- • The floors and walls of the pool will need resealing and re-coating to address
round use of the pool. In order to make it more fit for purpose, the main pool was the gradual break-down in the surface finishes that is occurring over time
heated and covered in a canopy structure in 1995. However, while it does provide • The pool surrounds need work to bring them up to an appropriate standard.
an effective covering for the pool, the canopy is not a building so provides minimal There are two issues:
thermal protection – it does not continue to the ground, allowing draughts to move • The space for people who sit by the pool (e.g. to supervise young children,
freely under the structure and on many days, the air temperature under the canopy watching people swimming, or for swimmers who just want to get out of
is similar to the outdoor temperature. the pool for a break) is physically uncomfortable due to the rough concrete
aggregate finish
However, the canopy does allow the pool to open all year round, 14 hours a day • The concrete surrounds need some repair work to remediate the wear and
during the week in the summer, and 10 hours a day in winter, during the weekend damage that has occurred in the 40 years since they were first installed
and on public holidays. • While the canopy is working within its specification at the moment, in the next
10 years it is likely to reach the end of its economic life and will need to be
In addition to the temperature issues under the canopy, access to the pool from the replaced
changing rooms is via an outdoor space, so swimmers need to transition through • The canopy does not have good thermo-regulation so the temperature outside
potentially cold and inclement weather in order to reach the heated pool. People the pool is likely to be the similar to the outside, albeit with less wind chill and
on the side of the pool such as teachers, parents, spectators and lifeguards are also rain. This makes it unpleasant on a cold day for both spectators and swimmers
exposed to the outside temperature, although they are sheltered from wind or rain. • The heating system is inefficient because it heats both the pool and the air
• Spectator seating is inadequate
This is an issue because of Gisborne’s climate. While the region has some of the
highest sunshine hours in the country, it does have a cool winter, with the average
low around 5 degrees Celsius for three months a year.
In addition to the challenges with the canopy, the main pool is not optimally
configured. It has seven lanes and a 50 metre length, which means that swimming
capacity has been a problem in the past. To attempt to address this, a divider
was added so the main pool could be used as 14 x 25 meter lanes as needed. The
divider is in place most of the time, which underlines the fact that demand exceeds
capacity at peak times.
strategic case > the main pool 7
the outdoor recreation pool
The primary aquatic recreational area is a 33 metre outdoor pool. The main purpose
of this pool is recreational – it’s a place where people can play have fun with friends
and family. This pool has a shallow beach area where younger children can splash
around and a deeper area where older children and adults can play in the water in
the sunshine.
Over time a number of improvements have been made to this pool, including shade
sails in some parts of the pool, which enables people to play in the pool for longer
periods.
The primary challenge with this pool is parents
leaving very young children to play unsupervised,
resulting in lifeguards effectively acting as the sole
adult supervision for some children. This situation
occurs frequently despite clear rules for pool users
to take responsibility for the well-being and safety
of the children in their care. During summer the
problem is so endemic that a person is employed
on the weekends to simply reunite younger children
with their caregivers.
One of the contributing factors for this lack of
supervision is the functional design of the areas
around the beach – where young children are most
likely to be – are not pleasant places to stay. The
area is open and exposed, and there is very limited
shade from the sun or places to sit within the beach
area.
From a maintenance and condition perspective, the floors and walls of this pool
will need to be stripped and resealed in the years ahead, some tiles will need to be
replaced and some remedial work is likely to be required for expansion joints and
overflow channels.
strategic case > the outdoor pool 8
the hydro-slide and the diving pool
the hydro-slide the diving pool
The most iconic and prominent part of the pool is the 98m hydro-slide, which was Next to the hydro-slide is the diving pool with three diving boards. It is part of the
added to the complex in 1983. It is one of the most popular parts of the Olympic original construction at Olympic Pool and is a very popular attraction, with most of
Pool, with many people using it multiple times during a day out. its use being recreational.
Going down the hydro-slide is an experience treasured by many Gisborne locals – The pool is surrounded by concrete seating where friends and family can watch
we were told the story of a father taking his son through for the first time as his the more energetic participants jump into the pool. The viewing area has no shade
father had done with him, and the story of a woman who took her first slide at age and because of the thermal mass of the concrete can get very hot on a sunny day,
89, after delaying the experience for 30 years. People have even made YouTube which makes it unpleasant for spectators.
videos of the fun they have on the hydro-slide.
The area around the pool is also somewhat stark and utilitarian, so would benefit
The hydro-slide is structurally in good condition but looks tired and worn. Some of from some landscaping, which might be able to be undertaken as part of the hydro
the joints between the sections leak and need resealing, and the clear panels need slide reconstruction.
refinishing. The whole structure requires repainting and the area around the pool
could do with some rejuvenation to bring it up to standard. Generally, the pool is in reasonable condition with only minor cosmetic work
needed, such as repairs to concrete
Due to the nature of the hydro-slide construction, dealing with the joint leaks surrounds.
and sealing – as well as the painting – will require the hydro-slide to be closed,
disassembled, remediated and then reconstructed.
strategic case > hydroslide and diving pool 9
the toddlers pool and the hydrotherapy facilities
the toddlers pool the hydrotherapy facilities and hot pools
In 1994 the toddlers pool and a small slide was added to the pool complex. Staff In 1996 the spa and therapy hot pool was added to the facility. This is used for
and local people have progressively beautified the pool area with the addition recreational purposes as well as for therapy, and is the only hydrotherapy pool in
of a statue of Moko the dolphin, an elephant fountain and a mural of an African Gisborne. It is used by a range of people, including the disabled, people recovering
savannah. from injuries and as a learn to swim facility, as well as by the general public.
It is in a fenced-off space and is deigned to be used exclusively by young children This is the most unattractive and unappealing of the pools. While it is indoors, it is
and their families. The recent addition of a barbecue area within the pool fence has in a room that is too small for the functions it serves, and the pool itself can only
proven to be very popular. accommodate eight people due to limitations in water turnover and cleanliness due
to the water volume. The plant and equipment that supports the pool is state of
This pool needs some redesign to establish a wet splash deck, and the pool shell the art, but the small size of the pool and its configuration mean that it struggles to
needs relining and re-coating. be fit for purpose.
Considerable work has gone into making the facility more suitable for its users over
the years. For instance, a hoist has been added to help get people in and out of the
pool, using a commercial winch retrofitted to a beam that runs the length of the
room. However, there are limits to the ingenuity of these solutions, and a complete
reconfiguration of the pool and its changing rooms is required in order to make it fit
for hydrotherapy purposes.
strategic case > toddlers pool and hydrotherapy pool 10other pool facilities
The rest of the pool complex consists of the functional areas that support the Outside, there are family barbecue cabanas, shade sails and landscaped grounds.
pool’s operation and outdoor areas that enhance the users experience. Individual shade sails were recently added so groups can have their own space out
Most of the support areas are in the main building at the front of the site, which of the sun. There is also a small kiosk that can sell refreshments. It has been leased
contains the female and male changing rooms, front of house reception areas, a to commercial operators in the past, but given the limited size they have not been
shop, the old clubrooms for the Comet swimming club, and offices and staff areas. able to make the operation a financial success. In order to meet customer demand,
the kiosk is now operated by the pool staff but continues to run at a loss.
The main building was originally smaller and the changing rooms were open to the
elements. In 1995 the structure was extended and roofed, but there are a number of The family barbecue areas have been added incrementally since 1992. Users can
challenges with the current building: rent these for the day and have a barbecue safely. The facilities are exceptionally
popular and are booked out every weekend and public holidays during summer.
• The changing rooms are not of a high standard (old, communal and tired) and
– as noted above – are disconnected from the main pool, requiring patrons to The filtration plant and circulation systems were updated in 2015 to bring them
walk outside in inclement weather. into line with the NZ standards for water quality. At the same time the heating
• The current reception and shop area is small, and the shop would ideally be system for the main pool plant was replaced and updated to a biomass boiler, which
bigger to allow the sale of swimwear and related equipment, rather than has produced significant operational savings in heating costs. These upgrades
just the drinks and snacks available at the moment. This would increase the will hold the facility in good stead for the next 10-15 years and no major capital
turnover and profitability of the shop, but would require at least one fitting improvements are currently planned for the systems.
room.
• The staff and first aid areas are somewhat tired although the required changes
are largely cosmetic. The staff areas are too small for the peak summer season
but are adequate for the rest of the year.
strategic case > other facilities 11asset management approach
The Gisborne District Council has an obligation to manage its assets in a The following figure indicates how the renewal decision for an asset can be
responsible fashion, in line with good practice in local government. The requirement optimised. The green arrow indicates the cost of repairs and maintenance that
is to effectively manage the existing asset base, whilst making evidence-based increases over time, especially as the asset nears the end of its economic life; the
investment decisions about when, or whether, to replace, repair and build new blue arrow is the condition of the asset that deteriorates over time. The cross-over
infrastructure to meet the needs of the Tairāwhiti community. point in the graph indicates the replacement ‘sweet spot’, where the maintenance
cost of the asset has risen to the point where it would be more cost effective to
The following diagram shows how decisions are made about GDC’s assets: replace the asset rather than continue to maintain and repair it.
Some of the objectives result in a routine maintenance and renewal cycle, while
others are external drivers that influence the nature and timing of replacement Maintenance and replacement can also be influenced by other factors, such as how
decisions. critical the asset is (the consequence of failure) and the function of the asset.
As a general rule, planned maintenance is more cost-effective than unplanned
maintenance, because the asset can be optimised to ensure it has the lowest
whole-of-life cost. Research has shown that optimisation analysis can result in
between 15% and 25% in long-term cost savings compared to reactive maintenance.
strategic case > asset management 12current asset condition
While the graph represents an idealised approach to asset management, the reality is that many government entities don’t optimise their assets. In 2014 the Office of the
Auditor General (OAG) undertook a review of asset management in the public sector, and found that:
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component before it failed.
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using such approaches could mean that local authorities miss opportunities for appropriate interventions that could be more
effective in the long run.
In the case of the Olympic Pool, there are number of different components that need to be viewed independently from an asset management perspective:
Component Current state Approach needed
Main pool Configuration is suboptimal and remedial maintenance is required Targeted re-configuration and refurbishment to extend asset life
Main pool roof Operating to specification but likely to reach the end of its economic life in Replacement and possible re-configuration before asset life is exhausted
the next 10 years
Outdoor recreation pool Configuration is suboptimal and remedial maintenance is required Targeted re-configuration and refurbishment to extend asset life
Hydro-slide Reaching the end of its economic life, with growing maintenance and safety Complete disassembly, refurbishment and reconstruction to renew the asset
issues
Diving pool Configuration is suboptimal and remedial maintenance is required Targeted re-configuration and refurbishment to extend asset life
Toddlers pool Minor configuration issues Scheduled maintenance
Hydrotherapy/spa pool Configuration is poor for hydrotherapy and facility is not fit for purpose Replacement and re-configuration
Hydrotherapy plant Recently upgraded and replaced to meet water quality standards; fit for Scheduled maintenance
purpose
Changing rooms Reaching the end of its economic life, with growing maintenance and safety Complete refurbishment to renew the asset
issues
Reception and retail Configuration is suboptimal Targeted re-configuration and refurbishment to extend asset life
Staff areas Configuration is suboptimal Targeted re-configuration and refurbishment to extend asset life
External spaces Some recent upgrades to partially meet user needs Scheduled maintenance
Pool plant and equipment Recently upgraded and replaced to meet water quality standards; fit for Scheduled maintenance
purpose
strategic case > asset condition 13the pool and the community
Leisure and recreation are crucial components to having a balanced and healthy
lifestyle. Leisure time is a time when people can do what they want to do, away
from work and other commitments. As the NZ Recreation Association notes:
Community recreation can be a means to an end or might be the end in itself. It meets the
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Sport in community environments and all kinds of active recreation can result from However, some reasons are more or less important to some groups (particularly
people’s desire to be part of a community. Social reasons and a desire to be part of men and women). Maori were less likely to view fitness and health as the primary
a local community are often primary reasons for going along. reason, but more likely to prioritise cultural reasons (which includes supporting
friends and family to take part). People in areas of high deprivation and in rural areas
Recreation and leisure play an important role in social well-being by providing are also less likely to view fitness and health as the primary reason they exercise –
people with a sense of identity and personal autonomy. Involvement in leisure-time enjoyment and social reasons are the prime motivators.
activities adds meaning to individual and community life and contributes to people’s For many people, participation in recreation and leisure improves their physical
overall quality of life. Recreation can encourage personal growth and self-expression and mental health. Recreation often involves a physical activity or sport, and water
and provide increased learning opportunities, satisfying needs not met in people’s based activities are amongst the most popular leisure activities in New Zealand.
non-leisure time.
Almost all participants (97.7%) took part in their chosen sports/activities casually,
Participation in leisure and recreation activities can also have social benefits. It either on their own or with others.
creates opportunities to socialise with others and contributes to social cohesion
by allowing people to connect and network with others. It can also contribute to
family bonding when families do things together.
In 2013/2014 the Sport NZ Active New Zealand Survey found people participate in
sport and recreation for three reasons; the primary driver was health and well-being,
with enjoyment and social reasons a close second and third.
These three primary reasons are the same for men and women, and across
participants of all ages, ethnicities, socio-economic backgrounds and locations.
strategic case > the community 14new zealanders love water-based activities
The NZ Survey found New Zealanders love water-based activities and participate They found that 91% of people have used a built facility, such as a swimming pool,
in heavily in them. Swimming is the second most popular leisure activity with an in the last year. Older people, particularly 75 and over, were more likely choose a
estimated 1 million people swimming in 2013/2014. It is the fourth most popular built facility over a natural setting.
leisure activity (27% participation) for men, and the second most popular activity
with women. The groups more likely swim in natural settings rather than pools were:
• Rural participants who have limited access to pools
• Maori were less likely to have used indoor pools/aquatic centres.
• Those with high and medium deprivation.
Most water based activity took place at the beach or by the sea – with 36% going
to the beach, 28% on the beach and 28% in or on the sea. At built facilities 81% of
all participants used an indoor pool or aquatic centre and 10% an outdoor pool.
When compared with all participants, Maori were less likely to have used indoor
pools/aquatic centres.
Swimming is popular with all age groups. They found that for all demographic
groups swimming is consistently in the top ten. Swimming is most popular with
younger age groups, with participation gradually declining with age although
relative to other activities it retains its popularity.
For both Maori and NZ European, swimming was the second most participated
in leisure activity. In the Gisborne region, these are the top two ethnic groups in
terms of numbers.
Socio economic background did not predict the popularity of swimming, with
swimming the second most popular activity for people from all socio-economic
backgrounds
strategic case > exercise trends 15competitive swimming and health
olympic pool is an important regional competitive sporting facility LWÅVDOVRDQLPSRUWDQWKHDOWKDQGÓWQHVVUHVRXUFH
Olympic Pool has regular users who predominantly attend the pools alone or in Research shows increased physical activity can lead to fewer health problems and
small groups for structured fitness, or aquatic sport activities. In addition, there is a higher productivity at work, especially when combined with a balanced diet and a
smaller group of competitive swimmers who are very heavy users of the pool, and healthy lifestyle. The benefits for mental health are equally important.
who are normally part of a swimming club. Nationally these groups are collectively
estimated to be 20-30% of pool users. Several studies have demonstrated links between regular physical activity and a
reduction in the symptoms of mild or moderate depression, stress and anxiety.
The competitive/training/fitness group is a specialist market containing younger, According to research in the Journal of Cardiopulmonary Rehab and Prevention,
fitter and more active people who make time to train and compete. The primary most people enjoy water-based exercise more than land-based exercise.
focus for these pool users is the Comet Swimming Club, which has a long-standing
relationship with Olympic Pool. The second group of fitness users are the general public, who use the pool to help
reach their individual fitness goals. These people either swim or use some other
The Club was the driving force behind the public campaign to fund and build the form of water exercise. There are a number of water aerobics classes which are also
pool in the 1970s, and have based themselves at the pool for most of that time. well attended.
There is currently a lease in place that allows Comet to exclusively use a number of
lanes on an exclusive basis for defined periods each day. Participation in aqua-fitness is increasing in most centres in New Zealand, although
participation rates in Tairāwhiti are static-to-falling. It is recognised as beneficial for
maintaining fitness levels for recreational, amateur and professional sports people.
Aqua-fitness caters to a wide range of participants wanting to improve fitness and
strength, and to people requiring rehabilitation. It uses water for resistance while
providing a low impact environment and can be adapted to different levels of fitness
and ability.
strategic case > competitive swimming 16pool users and their experiences
The GDC Long Term Plan 2015-25 notes the work that is underway to ensure pool In the 2014 GDC survey of residents, some 55% of respondents had used the
users have an enjoyable experience: pool. Of those that had, 70% were very or fairly satisfied, compared to 54% for
all respondents. Younger people, between 18 and 29 years, were more likely to be
What have we been doing? What we do in years 1-10? satisfied compared to those 30-49 (those more likely to be parents).
• Delivered recreational opportunities for Years 1-3
residents and visitors and enjoyable • Continue with a programme of Of those that were dissatisfied the reasons included the pool needing upgrading
activities for people of all ages. facility and operational improvements.
• Maintained operational standards and Continue maintenance programme as and maintaining, with more facilities added. One resident stated “It is getting too
achieved POOLSAFE accreditation needed. old and its taking them far too long to make a decision on what to do with it.”
(industry best practise standard). • Focus on risk management and
• Installed additional shade structures the achievement of a high level of
and renovated the pool kiosk which compliance with operational standards The Council’s satisfaction surveys consistently show that the Olympic Pool complex
operates as a summer pool shop. and health & safety requirements.
• Made significant improvements to the • Progress feasibility and design for is regarded as a community asset that provides value to a wide range of community
pool plant, filtration and sanitation redevelopment. users. It is not just a swimming pool – it is viewed as a fun place to have a day out
systems to improve pool water quality • Consider proposal to redevelop
in all our pools. including establishing any external together with family or a group of friends, is a hub for social interaction, provides a
• Undertook maintenance of 33m pool funding support. venue for improving fitness and facilities for assisting with health and rehabilitation.
and dive pool. • Commence redevelopment if approved
• Commenced process of activity
risk analysis to confirm operating Years 1-10 The objective stated in the LTP is to provide a range of sustainable, quality aquatic
procedures and health and safety • Complete pool redevelopment project,
and recreational opportunities for Gisborne district residents and visitors. The
procedures. if approved.
• Commenced scoping, feasibility and performance measures for Olympic Pool are therefore as follows:
design concepts for potential pool
redevelopment.
Performance measure Results 2013/14 Target Years 1-3 Target Years 4-10
Council aquatic facilities are safe Amended Achieve Achieve
and operate in accordance with measure
nationally accepted guidelines
Number of pool admissions per 140,246 140,000 yrs 165,000 from
annum. 1 -2. year 6
Percentage of external revenue 41% 40% 30% 40%
from users versus expenditure. in year 3-5
construction
period
Percentage of residents satisfied 54% 50% 50% years 4 -5
with the Olympic Pool as found in 70% years 6 -10
our Annual Resident Satisfaction
Survey.
Percentage of users who are Amended 90% 90%
satisfied with the pool service measure
strategic case > pool usage 17there are real health advantages to water-base exercise
There are significant advantages of water based exercise over land based exercise: For many older adults, joint pain makes running, cycling, and other land-based
exercises difficult. Water-based exercise can benefit older adults by improving the
• Water places an upward force on a person; the person is more “buoyant”. quality of life and decreasing disability. This supports Tairāwhiti’s aging residents,
When a person is in the water up to neck, they effectively lose 90% of their who made up 18% of the population in 2013 and are estimated to increase to 27%
body weight, allowing them to do exercises that are difficult on land, as the of the total by 2028.
water is cushioning their body.
• The low-impact nature of exercising in water means a person can exercise Water-based exercise can help obese people for whom land based exercise would
longer without additional wear and tear on muscles and joints. This lower be hard on the joints. In the area covered by the Tairāwhiti DHB the levels of
impact on joints is ideal for those who have pain when doing most land-based obesity are higher than the national average, especially in the older group:
exercises.
• Water adds 12-14 percent more resistance than land, so every move the person
makes in water improves strength and increases metabolism (the rate calories
are burnt, even during resting). Resistance does not allow for sudden body
movements. Water also provides multi-directional resistance which means
muscle pairs work in balance during the same movement.
• Water disperses heat more efficiently, so there is less chance of overheating.
Water regulates temperature and enables heart rate to stay low whilst working
at intensity which helps heart muscle becomes stronger through aerobic
exercise.
Access to water exercise has benefits for everyone, but there are certain segments
of the population that would not have access to exercise any other way. The pool
Adults aged 15 years and over classified as obese in Gisborne and nationally
fills an important role in the Tairāwhiti region. Aquatic exercise is promoted by Tairāwhiti DHB, 2011-13 (Ministry of Health statistics)
medical practitioners as a safe way to lose weight, so some people will drive up to
three hours to access the facilities given the lack of alternatives in the region.
strategic case > health benefits 18there are real health advantages to water-base exercise
Swimming pool exercises such as water aerobics can help with cardiovascular Research also demonstrates that water-based exercise improves mental health, and
health, flexibility, and endurance. In the Gisborne District there are a number of that swimming can improve mood in both men and women.
people who have already had significant cardiovascular illnesses or who have with
cardiovascular disorders who might benefit from water based exercise: Water-based exercise can also improve the health of mothers and their unborn
children and has a positive effect on the mothers’ mental health. It can provide relief
from back pain and discomfort for pregnant women. It also improves or maintains
the bone health of post-menopausal women.
Water-based exercise can help people with chronic diseases that affect the joints.
For people with arthritis, it improves use of affected joints without worsening
symptoms and eases pain. People with arthritis have more health improvements
after participating in hydrotherapy than with other activities. In the Gisborne region
there are a significant number of people with arthritis. Of the 35,310 people in the
Gisborne district in 2013 this equates to more than 5,000 people or some 15% of
the population, growing to an estimated 17%, (over 6,000 people) by 2028.
Adults aged 15 years and over with high blood pressure, heart disease
and who have had a stroke Tairāwhiti DHB, 2011-13
(Ministry of Health statistics)
strategic case > exercise benefits 19ZDWHUVDIHW\DQGFRQÓGHQFH
Our social and physical surroundings often play a key part in whether drowning or injuries happen. These include our natural environments as well as built environments
such as swimming pools. Data from Surf Life Saving NZ shows that Gisborne suffers disproportionately from water safety issues, based on its population.
The Gisborne region has significant issues with water safety. The following graph These figures represent the most serious incidents, so they are likely to be just the
shows the rates of drownings and hospitalisations in the Gisborne region over the tip of the iceberg. To assess the trends for less serious incidents, a review of Surf
last five years, drawn from Water Safety New Zealand’s DrownBase™ database: Life Saving New Zealand’s (SLSNZ) statistics was undertaken for four beaches in
the Gisborne region – Midway SLSC, Tolaga Bay SLSC, Waikanae SLSC and Wainui
SLSC. Six surf lifesaving seasons were reviewed from 2009/2010 to 2014/2015.
In the last five years the average number of people rescued by life guards on
Gisborne beaches is 30 per season and 5.8. people being searched for. While a
number of these incidents may have a primary cause of a challenging environment
and/or risky behaviour, the primary contributing factor will be a lack of appropriate
water skills.
Drownings and hospitalisations from 2009 to 2014 (source Drownbase)
They show comparatively high levels of serious water incidents nationally. In
2014 Gisborne had the fourth highest drowning rate in New Zealand and the third
highest rate of hospitalisations. In 2013 Gisborne had the most hospitalisations in a
region but the least number of fatalities.
Being male, Maori and under 35 years old, particularly from 0-4 years old, means
you are more risk at risk of being involved in water safety incidents in the Gisborne
area.
strategic case > water safety 20what affects water safety
Improving water safety is dependent on the skills and knowledge a person has, their attitude to water and the environment in which they are in or on the water.
The main factors that affect water safety are lack of swimming ability, lack of The American Red Cross lists the basic water skills as:
barriers to prevent unsupervised water access, lack of close supervision while
swimming, location, failure to wear life jackets, alcohol use, and seizure disorders • being able to float or tread water for one minute without a flotation device
(source: ACC) • being able to step or jump into water over your head and return to the surface
• treading water or floating in a full circle and then finding a way out of the
Public swimming pools provide a safe place for a person to develop and practice water
those skills in a tutored or untutored way. A public pool gives users an opportunity • exiting a pool without using a ladder
to develop and practice some of the simple skills and behaviours they will need in • swimming 25 yards (the length of a standard pool) without stopping.
less managed environments such as a beach. These include becoming accustomed
to and comfortable in the water to avoid panic, and to develop the ability to float Research from 2010 showed that 80% of New Zealand children could not swim
and tread water. Pools are places to learn to swim and develop survival skills, and well enough to save themselves if they found themselves in trouble in the water.
ensure they have a positive attitude to water safety from a young age. Water Safety New Zealand estimates that in New Zealand half of all 10-year-old
children can’t swim 25 metres, and that 25% of them are unable to keep afloat.
Water Safety New Zealand see public pools providing this environment. Research
shows that past participation in formal swimming lessons was associated with an
88% reduction in the risk of drowning in 1 to 4-year-old children.
The base requirements to have a greater chance of being safe in the water are
modest. Water Safety New Zealand concluded the ability to float, avoid panic,
conserve energy and swim a short distance to safety appear to be the most
important factors for both rivers and beaches.
strategic case > water safety 21the importance of learning to swim
Learning to swim is no longer a requirement of the school curriculum and most
students in the Gisborne region do not have access to a school pool. As a result,
a significant number of children may not be receiving the quality of learn to swim
education they need.
The 2007 school curriculum states:
Many of the remaining school pools in Gisborne are small and
Schools will design their aquatics education programme in the of varying quality, and the majority are open air. Whether those
learning area of the Health and Physical Education based on schools that currently have pools will continue to do so in the
WKHQHHGVRIWKHLUVWXGHQWV7KHUHIRUHQRSURJUDPPHZLOOEH future is uncertain – nationally around 156 school pools have
the same. Individual school programmes will vary as students’ closed in the past six years and a further 30 nationwide are at
developmental needs and school environments differ. risk of being shut down permanently (source: Water Safety NZ).
There is a need for a school’s aquatic programme to include the In the Gisborne region alone, 8 school pools have closed since
development of: 2006.
• Water competence.
• 0RYLQJWKURXJKZDWHUVNLOOVIRUVWLOODQGRSHQZDWHU This is because the Ministry of Education does not automatically
environments. replace pools at the end of their economic life, nor do they meet
• Water safety and survival skills. the cost of running pools. In addition, the Ministry does not
• Knowledge and sound decision making especially around open provide pools in new schools. These issues have caused difficulty
water. for some schools, who now largely rely on the local community
• Aquatic sports. for funding.
/HDUQLQJQHHGVWRWDNHSODFHLQWKHFODVVURRPDWWKHSRRODQGLQ
other aquatic environments.
Ministry of Education. New Zealand Curriculum (2007).
As is the case around New Zealand, the number of local school pools has declined
in recent decades, and only 54% of students in the Gisborne area have access to
a school pool. A large proportion of students in the Gisborne area, some 3,923
children, do not have access to a school pool – and of those that do, most are
primary students, some 2,900 out of a total of 4,621.
Percentage of school-age children in New
Zealand with access to a school pool
strategic case > learning to swim 22making changes at olympic pool
reasons for making changes there are some clear goals that are being sought
There are a number of drivers for the proposed changes at Olympic Pool: The outcomes that are being sought for the proposed investment are:
• The refurbishment of key elements of the pool infrastructure – such as the • An improved user experience at Olympic Pool
hydro-slide, pool surfaces and tiled surrounds – is either pending or will • Improved community participation in aquatic recreation, fitness and sports
become a priority as they reach the end of their economic life. • An uplift in the number of children and adults learning to swim and developing
• The canopy of the main pool is currently performing to specification, but will water confidence
reach the end of its economic life within the next 10 years, requiring a decision
about replacement or alterations to the roof structure. The benefits that will result from these improvements are:
• Some of the facilities – such as the changing rooms and the hydrotherapy pool
– are not correctly configured to provide the services expected by their users, • Increased recreational, fitness and sporting usage of the Olympic Pool complex,
as reflected in the satisfaction surveys over a number of years. leading to better social connectivity and cohesion in the Tairāwhiti region, and
• There is under-provision of aquatic recreational facilities in Tairāwhiti compared better health outcomes for users
to the rest of New Zealand, and Olympic Pool is unable to accommodate • Greater swimming and water confidence skills in the Tairāwhiti region, leading
demand from users in some areas during peak periods. to fewer drowning injuries and deaths
• There are gaps in the learn to swim facilities in Gisborne due to the gradual
closure of school pools, which is resulting in falling rates of swimming The scope of this business case therefore includes assessing the options for:
competence, leading to the potential for greater drowning deaths and injuries.
The current Olympic Pool facilities are not configured correctly to allow • The location of the regional aquatic centre
children to be taught to swim at the scale required. • The configuration of the aquatic centre, in order to meet the needs and
• Olympic Pool lacks some of the facilities expected of a modern aquatic facility, expectations of its user communities
such as zero-depth splash play areas, which are typically popular and heavily • How the services at the aquatic centre can best be delivered?
used by pool patrons. • The alternatives available for the project to change or upgrade the aquatic
centre
• How the upgrades or changes to the aquatic centre can be funded
The scope does not include the day-to-day management and maintenance of
Olympic Pool.
strategic case > goals 23investment outcomes
Improved user experience Improved community participation Improved learn to swim and water confidence
outcomes
While there has been a concerted programme of There are three limitations in the community Ensuring the people of Tairāwhiti have the ability
maintenance and upgrading over the years, many achieving greater use of the Olympic Pool: and confidence to enjoy the water is a significant
of the swimming and recreational facilities are in challenge. Olympic Pool is currently not well
need of significant improvement to bring them up to 1. The recreational swimming season is limited in configured to teach children to swim and to gain
the standard expected of a regional aquatic centre. duration by the seasons, as the main pool only water confidence, and there is a shortfall of suitable
Issues are widespread across the complex, ranging has partial weather protection and all other facilities as school pools in the region gradually close.
from leaks and cosmetic issues with the hydroslide facilities are outdoors
to outdated changing room facilities and the age and 2. Users are deterred by the relative The improvement sought is therefore the provision
condition of the pool surfaces and surrounds. unattractiveness of the facilities in the winter of a suitable learn to swim facility at Olympic Pool
months, due to the partial weather protection that can provide the infrastructure necessary for
The improvement sought is therefore the ability for of the main pool and the need to transition more Tairāwhiti residents to gain swimming skills
users to enjoy an aquatic facility that meets the outdoors between the changing rooms and the and water confidence, to aid in the reduction of
standards expected by the Tairāwhiti community. pool itself drowning injuries and deaths in the region.
3. There are constraints on the number of people
who can simultaneously use the facilities on busy
summer days, which is currently limited to around
1500 visitors
There are also functional limitations – ranging from
outdated changing room facilities to the age and
condition of the pool surfaces and surrounds – that
are acting as disincentives for users.
The improvement sought is therefore the ability to
allow more people to enjoy recreational, fitness and
sporting activities at Olympic Pool by extending the
swimming season, increasing the number of people
who can enjoy the complex during peak periods, and
reducing or removing the disincentives for using the
facilities.
strategic case > investment outcomes 24VRFLDOEHQHÓWV
There are a number of benefits that accrue to the wider community from the institutions, based on trust and respect (Spoonly, Peace, Butcher, & O’Neill, 2005).
investment outcomes. These are related to the costs of poor health and early A commonly accepted definition of social cohesion is the bonds that bring people
deaths, which carry very high costs for the community, the economy and affected together within society or the social “glue” that maintains stability in society
whanau, along with the benefits that come from greater community cohesion. (Boundless, 2014).
A number of studies have looked at the links between sport and active recreation Key elements of a socially cohesive society are: belonging, participation, inclusion,
and the wider social, health and economic outcomes. They show that in addition to recognition and legitimacy. “New Zealand becomes an increasingly cohesive society
the direct benefits generated by the growth of the sport itself, sporting activities with a climate of collaboration because all groups have a sense of belonging,
have the capacity to cover a wide range of external effects including health participation, inclusion, recognition and legitimacy” (Spoonly, Peace, Butcher, &
benefits, crime reduction, educational attainment, social capacity and cohesion, and O’Neill).
improvements in living standards. Consequently, there has been a move away from
encouraging people to undertake sport for sport’s sake to participating in sport to Given social cohesion is interactive, the linkages with sport are closely aligned.
improve social and economic wellbeing. Sport New Zealand recognises the role that sport plays in contributing to social
cohesion. In its Strategic Plan 2012-2015 states: “...the power of sport helps build
There is well documented evidence of the strong relationship between participation social cohesion that binds individuals, families, communities, regions and the nation
in sport and high levels of social capital (Putnam, 2000) (Coalter F., 2002) together” (Sport NZ, 2012a).
(Delaney and Keaney, 2005). Putnam has identified two main mechanisms which
allow for the creation of social capital through participation in sport: Sport can help build shared identities and has a critical role to play in building social
cohesion. This can occur in a variety of ways:
• The bonds and connections made between people who participate in an
activity together, for example, members of a sports team • Through social activity and membership of sports clubs.
• The wider bonds created between supporters of a local sports activity or team. • When sports groups create networks which extend beyond the participants
themselves. For example, social cohesion can be developed among groups of
Both of these mechanisms relate to a sense of belonging and creating identity. parents or supporters of a local team or volunteers who help run an activity
• When bonds of different groups of people are created - for example between
Increased time spent in sports also leads to increased interaction with others supporters of a national, regional or local sports team.
(Bovaird, T., Nichols, G. and Taylor, P, 1997), and increased interaction with others
leads to an increased stake in social relations. In turn, an increased stake in social
relations leads to reductions in anti-social behaviour and contributes to the building
of social capital in a community.
Social capital is arguably a prerequisite to social cohesion because social cohesion
requires high levels of cooperative social interaction amongst citizens, groups and
strategic case > social benefits 25VRFLDOEHQHÓWV
There is a significant role for local government to play in providing opportunities for benefits that accrue from playing a team activity are equally felt in family-
residents to increase their physical activity levels. This can be in the form of urban orientated active recreation.
design, transport planning, provision of safe places to exercise and socialise.
The Sport NZ Active NZ survey also noted that for the large majority of
Delaney and Keaney (2005) researched the relationship between sport and social participants, “health and fitness” (90.7%) and enjoyment (87.9%) were their main
capital in Britain, where the relationship between sport and the community has reasons for taking part in their chosen sports/activities. Other common reasons
become central to policies of social inclusion and community regeneration. The included social reasons (52.9%), low cost (44.5%), convenience (43.5%) and sport
British government has identified community regeneration as one of a number of performance (31.1%).
key strategies intended to take a community-based approach to tackling problems
such as deprivation and inequality. Reasons varied in importance for some groups, and most notably between men and
women:
Delaney and Keaney’s research revealed some key findings:
• Men were more likely to say they took part in activities for enjoyment, social
• Countries with high levels of sports participation also tend to have high levels reasons and sport performance
of social capital and institutional trust • Women were more likely to say they took part in activities for fitness and
• Individuals that are involved in sports organisations are more likely to vote, health, low cost and convenience.
contact a politician, have improved well-being, frequently socialise with friends
and maintain social networks Most adults (both participants and non-participants, 65.6%) were interested
• Sport attracts more volunteers than any other activity (except for religion) and in either trying a new sport/activity or doing more of an existing one. Among
that sport volunteers undertake a wide range of tasks. These tasks not only participants, interest was higher in trying a new sport or recreation activity (47.4%)
benefit the sports sector but also provide valuable transferable skills than can than in doing more of an existing one (43.8%).
contribute to community regeneration
• Countries with high levels of membership of sports groups also tend to have Recreation activities attracted more interest overall than sports. Activities
high levels of membership of social and cultural groups, suggesting that participants were most interested in trying were swimming, cycling, tennis, Pilates/
participation is cumulative. In other words, people who are already involved in yoga, golf, dance and snow sports:
one type of activity are more likely to get involved in other activities
• Membership of a sports club has the same impact on individual wellbeing as an • Men were most interested in cycling, golf, swimming and snow sports
increase in income of $NZ6,650 per year • Women were most interested in swimming, Pilates/yoga, tennis, cycling, netball
• Sport can be used to create or maintain social connectivity across boundaries and dance.
defined by class, religious and ethnic backgrounds.
It is clear from the survey that there is a demand for sporting and active recreation
It’s important to note that in this context, “sport” means many active recreational – and by implication, for facilities that enable these activities to occur.
activities that don’t necessarily involve teams. For instance, the social and health
strategic case > social benefits 26You can also read
