Hampshire County Council

Buildings Land and Procurement Panel Item 6

15 January 2008

Asset Management Strategy For School Swimming Pools

Report by the Acting Director of Property, Business and Regulatory Services

1.0

Introduction

1.1

On the 10 December 2007 the Executive Lead Member for Children's Services approved the attached joint report from the Director of Children's Services and Director of Property, Business and Regulatory Services, bringing to a conclusion the outcome of consultation with schools regarding the strategic use of school swimming pools. The joint report builds on an earlier policy report approved by the Executive Member in December 2006 and sets out a series of recommendations for a strategy, for the provision of Key Stage 2 swimming in Hampshire schools, involving the investment of NDS Capital funding in 14 primary and secondary school pools at strategic locations in Hampshire.

1.2

The purpose of this report, therefore, is to:

· Update the Panel with the latest developments for the swimming pools strategy in Hampshire schools

· Seek endorsement to the development of a capital investment strategy in school swimming pools the cost of which is to be split equally between Children's Services and Policy and Resources.

1.3

This report also provides information about the energy costs associated with school pools, as requested by the Panel at one of their earlier meetings.

2.0

Recommendations

1. That the Panel notes the decision for the County Council to adopt a strategy for the provision of Key Stage 2 swimming as set out in the report approved by the Executive Lead Member for Children's Services on 10 December 2007.

2. That the Panel advises the Executive Member for Policy and Resources that approval be given to meet 50% of the investment costs in 14 school swimming pools at strategic locations in Hampshire from the Landlord's NDS condition funding (up to £375,000 per annum for up to five years).

3. The Panel notes the energy and water consumption data associated with school swimming pools.

3.0

Key Proposals

3.1

In asset management terms the key proposals outlined in the report to the Executive Lead Members for Children's Services, were:

· to develop a capital investment strategy for the purposes of repairing and upgrading 14 school swimming pools at strategic locations in Hampshire

· to provisionally set the level of capital investment at £750,000 per annum for up to 5 years

· to split the level of capital investment equally between Children's Services and Policy and Resources

· that all schools with pools continue to receive day to day revenue repairs and servicing of swimming pool plant as part of the schools SLA with Property Services

· that schools outside of the proposed capital investment programme choose to use their own devolved capital funding to invest in modernising their swimming pool facility.

4.0

Energy Consumption Associated With Existing School Swimming Pools

4.1

The Panel previously requested information about the costs associated with the water and energy consumption of existing school swimming pools. In most instances the supply of water and energy to school swimming pools is not separately metered and, therefore, precise energy information is not available from current data systems. However, an estimation of the total water and energy consumption is shown in the table below.

Table: Estimated total energy, water and CO₂ data associated with school swimming pools

Volume of water consumed m³ per year

Cost of water

£

Total energy Kwh

Energy Cost

£

CO₂ emissions

Total

19,000

38,000

6,742,000

226,000

1,500

4.2

The total water consumption used by school pools each year is the equivalent to that consumed by about 12 primary schools and the energy consumption is equal to around 3% of total energy used by all schools. Since the announcement of the swimming pool strategy 9 schools have asked for their pools to be decommissioned and taken out of use, which will start to have positive impacts of reducing this source of energy consumption.

LINK(S) TO CORPORATE STRATEGY

Yes

No

Hampshire safer and more secure for all

_

Maximising well-being

_

Enhancing our quality of place

_

This proposal does not link to the Corporate Strategy but, nevertheless, requires a decision because:

Hampshire County Council

Executive Lead Member for Children's Services (Education)

Item

10 December 2007

Proposed strategy for the provision of Key Stage 2 swimming in Hampshire schools

Report of the Director of Children's Services

and Director of Property, Business and Regulatory Services

1

Introduction

1.1

1.2

1.3

1.4

This report provides an update on the proposal to move to a strategic approach to the provision of Key Stage 2 swimming facilities in Hampshire schools. In the last report to the Executive Member, in December 2006, the principle of adopting a more strategic approach to Key Stage 2 swimming was agreed. In order to develop this strategy a consultation process with schools has been undertaken. This is now complete and provides the basis of the recommendations in this report.

The principle of the strategy is that a capital investment programme is developed for a core number of pools on school sites. These pools will be developed to a modern standard to deliver a proportion of the Key Stage 2 national curriculum swimming requirement. These pools will be available alongside the existing community leisure pools that are currently used to deliver the majority of Key Stage 2 swimming. This investment strategy will be aimed at providing best value for schools, both in terms of finance and facilities provided.

Those schools with pools not included in the capital investment strategy will have the option to continue to retain their pools or take them out of use. Should they retain them they will however, only have access to devolved "Fair Funding" revenue for maintenance. This funding will primarily cover the costs of seasonal commissioning and de-commissioning in spring and autumn together with minor servicing of the pool plant and fabric. On average £3,368 per annum is available for the revenue maintenance of each pool.

Any capital replacement however, such as the renewal of pool liners, replacement boilers and plant, fencing and paving, would not be supported from central funds. This would be financed from the school's own funds where governing bodies consider this to be a local priority.

2

Recommendations

2.1

2.2

2.3

2.4

2.5

That the County Council adopts a strategy for the provision of Key Stage 2 swimming involving a reduction in the number of primary and secondary school pools receiving central capital financial support.

That a capital investment strategy is developed for the improvement and repair of those pools which will continue to receive financial support over a planned period of five years, with investment to be split equally between Children's Services and Policy and Resources.

That the level of investment is set provisionally at a total of £750,000 per annum.

That those pools listed in Appendix A receive capital investment under the strategy.

That further work is now undertaken to develop the strategy and to communicate in more detail with schools affected significantly by the proposals.

3

Summary

3.1

3.2

3.3

3.4

3.5

3.6

3.7

This report sets out a proposal for the delivery of Key Stage 2 national curriculum swimming in the following facilities:

· A core number of improved, modern and safe facilities on Hampshire schools sites

· A number of community leisure pools. These pools deliver the majority of Key Stage 2 swimming currently.

The proposals do not affect the pools at special schools, which will continue to be funded and maintained as they are currently.

Of those schools replying to a recent consultation, the majority are in favour of the proposed strategic approach Further details are given in paragraph 6.3.

The majority of the pools currently being maintained within Hampshire schools are not well used for Key Stage 2 swimming activity. In addition the majority of pools are in a relatively poor condition and require significant investment in terms of repairs and maintenance and modernisation.

The health and safety requirements for managing and running pools continue to intensify and will need careful management into the future.

The proposal to move to a strategic approach would mean that 41 schools which currently have pools on their sites would not receive capital funding to improve their pools in the future. This approach is likely to be of concern to a number of those schools.

Schools with pools not included in the investment strategy may decide not to continue to support their own pools. This would lead to schools decommissioning them as the pool plant and fabric become obsolete and in need of replacement. This would clearly have an impact on all swimming provided at that site including private swimming clubs, general community and other non-school usage.

4

Background

4.1

4.2

4.3

4.4

4.5

4.6

4.7

4.8

5

5.1

5.2

At the start of the consultation process, there were 62 pools on school sites which were supported centrally in terms of the costs for repair and maintenance to fabric and plant

Many of these pools were built by the enthusiastic efforts of parent groups in the early 1970's. The construction of these pools was very much budget driven and in terms of specification the pools now fall short of modern day standards. In particular, many of the pools still rely on manual dosing of pool chemicals, and have inadequate hygiene facilities such as showers, toilets and footbaths. It should also be noted that overall the pools have a low utilisation in respect of delivering Key Stage 2 swimming.

In addition there is a large liability for repairs and maintenance within the existing pool stock. Specifically a large proportion of pools need re-lining and the mechanical plant and equipment is in a poor condition. The liability is estimated to be in the region of £27m for the 62 pools.

Members will be aware there is a significant liability within schools generally for repairs and maintenance (currently £320m) which will mean the funding to tackle such a high liability for swimming pools would be extremely difficult to make available.

The only requirement for swimming within the National Curriculum is that Key Stage 2 children have access to 12 hours of swimming over the four years between the ages of 7 and 11. This requirement is therefore aimed at Hampshire County Council's 305 primary and junior schools. These schools educate some 56,000 children. The strategy has been developed to provide for this requirement. It should be noted however that the existing swimming pools do not just support Key Stage 2 swimming. With the suggested strategy there may be an effect on the provision of swimming for other purposes such as community use and swimming generally in schools.

The Health and Safety commission updated their "Managing Health and Safety in Swimming Pools" guidance in 2002 drawing attention to:

· The practicalities in managing pool health and safety

· Supervisor and life guarding arrangements

· New technologies including pool water treatment systems.

As a result, schools find themselves in many instances having to manage outdated pool facilities against a background of rising health and safety guidance and standards.

The funding presently available centrally for the repairs and maintenance of primary and secondary school pools is £215,000 per annum. This funding is delegated to schools with pools under the Fair Funding arrangements and has been passed back to Property Services under the Service Level Agreement This amount is sufficient to cover day to day servicing and commissioning of the existing pools but will not support the development of a major investment programme. This is a concern, as in many instances the pool stock falls short of modern standards in terms of facilities, health, safety and repair.

The majority of Key Stage 2 national curriculum swimming will continue to be provided in community leisure pools as it is now. Currently 220 of the 305 Key Stage 2 schools have chosen to deliver their requirement in this way. The proposed strategy will see the County Council provide capital investment in a smaller number of core facilities to operate alongside community leisure pools in providing for Key Stage 2 swimming as a whole.

Schools' funding

Since the 1970s, when the majority of school pools were built, the funding arrangements for schools have altered considerably. Schools are now delegated significant amounts of funding for improvements and maintenance to buildings and grounds. Typically, as noted on the Department for Children, Families and Schools Teachernet website, a one form entry primary school will receive £34,250 of devolved capital funding in 2007/08. A typical (1,000 place) secondary school will receive £113,000.

The availability of this funding means that schools now have the ability to undertake capital investment in their pools from their own resources should they not be included in the capital investment strategy.

6

Consultation process and information gathering

6.1

6.2

6.3

6.4

In accordance with the decision of the Executive Lead Member for Children's Services in December 2006, a consultation process was undertaken with all Hampshire's infant, junior, primary and secondary schools during the spring and summer of 2007. The consultation sought views and information from Hampshire schools on the proposed strategy. Information was also sought on their preferences and patterns in terms of pool usage, any community use of the pool, together with their health and safety arrangements.

The level of responses received meant that there were gaps in the information on how Key Stage 2 swimming was provided. A follow-up exercise was therefore undertaken so that complete and up-to-date information is now available on how all Key Stage 2 schools provide their national curriculum swimming requirements. This piece of work was undertaken with all schools that had not replied to the consultation with pools and in the Key Stage 2 sector.

In total the consultation document was sent to 508 schools. Of those, 62 had pools on their sites and 446 did not. The key messages and findings from the consultation process are as follows:

Key finding

Number of Schools

% of Schools

Schools with pools replying to the consultation

35 of 62

(56%)

Schools without pools replying to the consultation

142 of 446

(32%)

Total number replying (with and without pools)

177 of 508

(35%)

Those with pools in favour of the strategy

16 of 35

(46%)

Those without pools in favour of the strategy

121 of 142

(85%)

Overall number of schools in favour of the strategy

137 of 177

(77%)

Other key messages and findings from the consultation process and information gathering process can be seen below:

· Based on their responses to the consultation, schools with pools have indicated they feel they have suitable arrangements in place to manage their health and safety responsibilities

· Of the 305 Key Stage 2 schools, 220 meet their curriculum requirement in community leisure pools.

· The majority of school pools are not well utilised for Key Stage 2 National Curriculum swimming.

· With the current strategy proposal the vast majority of Key Stage 2 schools would not be affected and could continue to provide swimming as they do now (266 of the 305 Key Stage 2 schools).

7

Proposed Strategy

7.1

7.2

7.3

7.4

7.5

7.6

7.7

The consultation process has shown that the vast majority of Key Stage 2 schools select community leisure pools. A small number of schools choose other Hampshire schools' pools to meet their curriculum requirement. With low Key Stage 2 curriculum utilisation coupled with large liabilities for repairs, maintenance and refurbishment, many of the pools in Hampshire schools do not appear to represent best value investment opportunities.

The proposed strategy therefore is to focus capital resources and provide Key Stage 2 swimming in a combination of community leisure pools and a smaller number of improved pools in Hampshire schools.

Indoor pools have a significant advantage over outdoor pools. Indoor pools have the potential to deliver 3 ½ times more sessions than outdoor pools. They can also offer improved facilities in terms of environmental comfort and security. Another key part of the proposal therefore would be to provide Key Stage 2 swimming on school sites primarily in indoor pools.

A small number of outdoor pools are included within the strategy where the schools that provide Key Stage 2 swimming are isolated and there is not alternative provision in the local area.

Attached at Appendix A is a schedule indicating which pools are proposed to be supported under the strategy. Appendix B lists those pools not recommended for inclusion in the strategy.

A separate Addendum has been prepared and lodged in the Members' Room, giving more detail about each pool, including comments received from the school during the consultation, details of community and other pool use and the condition of the pools.

Overall the strategy proposes the following:

Number of existing Hampshire County Council pools

62

Demolished or requested to be demolished by host school since consultation

7

Number of pools now to be considered

55

Number of pools to be included in the investment strategy

14

Number of pools not to be included in the investment strategy

41

7.8

7.9

Pools have been chosen for inclusion in the investment strategy by reference to:

· Preferences expressed by each school for alternative venues, should their own pool become unavailable

· Preference being given to indoor pools

· The extent of Key Stage 2 utilisation

· Geographical location of each school in relation to any alternative venue

· Condition of the pool fabric and plant

Of those 41 pools which it is proposed will not be included in the investment strategy, the following should be noted:

· 38 (93%) have no Key Stage 2 guest schools using the pool

· 3 (7 %) have only one Key stage 2 guest school using the pool

These pools will, in many instances, have community or non-Key Stage 2 usage of the pools. This is shown in the detailed information for each pool that can be seen in the Addendum to the report, which has been deposited in the Members' Room.

8

Additional capacity in leisure pools

8.1

Investigations have been made concerning the additional capacity available in community leisure pools to provide further Key Stage 2 national curriculum swimming sessions. This may be required if schools whose pools are not included in the strategy decide not to continue to invest in their pools, from their own funds. Leisure centre managers have indicated that capacity will be available subject to good advance notice by schools of their requirements.

9

Community and other non school pool usage

9.1

The consultation process included the collection of information about private swimming club, community or other non-school utilisation of school pools. Of the 35 schools with pools replying to the consultation the following key information has been obtained.

· Community usage of pools to be included in the strategy would not be affected;

· 24 of the 41 (60%) pools not included in the strategy replied to the consultation; 11 of those 24 (46%) have some private, community or other non school usage of the pool;

- 10 of these schools have external pools and will therefore only be used for 4 - 5 months of the year.

- the private, community or other non-school usage of these pools varies from 2 - 18 hrs of pool usage per week per school.

10

Upgrading of Pools

10.1

The investment proposed within this report will provide a significant improvement in the 14 pools that are proposed to be supported under the strategy. Further detailed feasibility work is required to determine the final programme of works and this will be used to develop pools to a modern standard that is fit for the purpose of providing Key Stage 2 and general school swimming. The works will range from repairs and refurbishment to the provision of new pools in some instances.

11

Funding and investment strategy

11.1

11.2

11.3

11.4

11.5

By focussing investment in a smaller number of Hampshire County Council pools, which will be used to deliver part of the Key Stage 2 national curriculum requirement, opportunities arise to deliver a higher quality service.

The existing swimming pool repair and maintenance budget of £215,000 per annum will not enable necessary works to be undertaken to upgrade the supported pools to a modern day standard in terms of health, safety and facilities. This funding will continue to be used to carry out basic servicing to all pools of a non capital nature. Should schools that are not included in the strategy decide to de-commission their pools some of this funding could be added to the major investment noted below.

A budget of £750,000 per year for five years would achieve a very significant improvement in the condition and facilities of the supported pools. It is therefore proposed that an investment programme in pools is undertaken, which is jointly funded by Children's Services and Policy and Resources. This would require capital investment from each source of £375,000 per annum. This investment would be used to improve, modernise and refurbish core pools to provide a modern response to the provision of Key Stage 2 national curriculum swimming.

There was some support during the consultation process for schools combining their devolved capital funding to add to the investment programme. This would need to be investigated further should these proposals be approved.

There may also be some opportunities for additional funding from schools' income from pool use. Again this would need to be explored as the strategy is developed.

12

Next Steps

12.1

Should the proposals in this report be approved, a number of key actions would need to be undertaken.

· Consultation with all schools affected significantly by the proposals to help them decide how they wish to provide Key Stage 2 swimming and assist them in any alterations required in their arrangements.

· Undertaking more detailed design and feasibility works on the improvement programme for pools.

· Giving further consideration to and discussion about any additional funding opportunities from revenue from the use of pools and devolved capital.

· Preparation of a programme for implementation that would enable schools to have sufficient time to make any necessary alternative arrangements for the delivery of Key Stage 2 national curriculum and other swimming.

13

13.1

13.2

13.3

13.4

13.5

County Council Policy Requirements

Legal implications - The proposed capital investment strategy would be funded through un-hypothecated capital resources which can be allocated as the County Council sees fit.

Financial implications - These are set out in the report.

Personnel implications - None directly arising from this report.

Community cohesion, inclusiveness and partnership working - The proposals in this report support these aims.

Crime prevention issues - None directly arising from this report.

School Name

Indoor or outdoor pool

Number of KS2 guest schools using pool

Number of other guest schools using pool.

Reason for recommendation

Barncroft Junior, Havant

in

4

0

Well used by Key stage 2 schools. Indoor pool.

Brune Park Secondary, Gosport

in

3

0

Used by key stage 2 schools.

Indoor pool

Fernhill Primary, Farnborough

in

1

0

Indoor pool

Used by key stage 2 schools

Fordingbridge Junior

out

0

0

Isolated location

Four Marks Primary

out

1

0

Isolated Location

Plant in good condition

Hamble
Community College

in

1

0

 Indoor pool

Fabric and plant in good condition

Kings' Secondary, Winchester

in

4

0

Well used by Key stage 2 schools. Indoor pool.

Fabric and plant in good condition

Locks Heath Junior

In

4

1

Well used by Key stage 2 schools. Indoor pool.

Mill Rythe Junior , Hayling Island

in

2

1

Used by key stage 2 schools.

Indoor pool

Overton CE Primary

out

0

0

Isolated location

Fabric in good condition

Ridgemede Junior, Bishops Waltham

In

4

2

Well used by Key stage 2 schools. Indoor pool.

Staunton Community Sports College, Havant

in

3

0

Used by key stage 2 schools.

Indoor pool

Wildern Secondary, Hedge End

In

7

0

Well used by Key stage 2 schools. Indoor pool.

Yateley Secondary

in

2

0

Indoor pool

Fabric in good condition

Pools not included in the Capital Investment Strategy

School Name

Indoor or outdoor pool

Number of KS2 guest schools using

Number of other guest schools using

Reasons for recommendation

Alverstoke Church of England (aided) Junior School, Gosport

out

0

1

No key stage 2 guest schools using pool

Condition of fabric and plant

Balksbury Junior, Andover

out

0

1

 No key stage 2 guest schools using pool

Condition of fabric and plant

Bartley Junior

out

0

0

 No key stage 2 guest pools using pool

Other pools in close proximity

Botley CE Primary

out

0

0

No key stage 2 guest schools using pool

Condition of fabric

Burghclere Primary

out

0

0

No key stage 2 guest schools using pool

Condition of fabric and plant

Burnham Copse Primary, Tadley

out

0

0

No key stage 2 guest schools using pool

Condition of fabric and plant

Bursledon Junior

out

0

0

Demolished at request of school

Clanfield Junior

out

0

0

No key stage 2 guest schools using pool

Condition of plant

Cranbourne
School, Basingstoke

in

1

0

Condition of fabric

Other pools in close proximity

Cupernham Junior, Romsey

out

0

0

No key stage 2 guest schools using pool

Condition of plant

School Name

Indoor or outdoor pool

Number of KS2 guest schools using

Number of other guest schools using

Reasons for recommendation

Denmead Junior

out

0

1

No key stage 2 guest schools using pool

Condition of plant

East Meon Primary

out

0

0

No key stage 2 guest schools using pool

Condition of fabric and plant

Elson Junior, Gosport

out

0

0

No key stage 2 guest schools using pool

Condition of plant

Grange Junior, Gosport

out

0

1

No key stage 2 guest schools using pool

Condition of fabric and plant

Grayshott CE Controlled Primary

out

0

0

No key stage 2 guest schools using pool

Condition of plant

Hamble Primary

out

0

0

No key stage 2 guest schools using pool

Indoor pool at adjacent secondary school

Hiltingbury Junior, Chandlers Ford

out

0

1

No key stage 2 guest schools using pool

Condition of plant

Holme CE
Primary, Bordon

out

0

0

 No key stage 2 guest schools using pool

Condition of fabric and plant

Hounsdown Secondary,

Totton

in

0

1

No key stage schools using pool

Other pools to service schools in the area

Kimpton, Thruxton and Fyfield Church of England Primary School

out

0

0

No key stage 2 guest schools using pool

Condition of fabric and plant

Kingsclere Primary

out

0

0

No key stage 2 guest schools using pool

Condition of fabric

Langrish Primary

out

0

0

No key stage 2 guest schools using pool

School Name

Indoor or outdoor pool

Number of KS2 guest schools using

Number of other guest schools using

Reasons for recommendation

Leesland Junior, Gosport

in

1

0

Condition of fabric

Other pools in close proximity

Lymington
Junior

out

0

0

To be demolished at request of school

Manor Junior, Farnborough

out

0

1

No key stage 2 guest schools using pool

Condition of plant

Milford on Sea Primary

out

0

0

No key stage 2 guest schools using pool

Condition of plant

Nightingale Primary, Eastleigh

out

0

0

No key stage 2 guest schools using pool

Condition of fabric and plant

Oakley Church of England Junior School

out

0

0

No key stage 2 guest schools using pool

Condition of fabric and plant

Old Basing Infant

out

0

0

No key stage 2 guest schools using pool

Condition of fabric and plant

Padnell Junior, Cowplain

out

0

1

No key stage 2 guest schools using pool

Condition of plant

Portway Junior, Andover

out

0

0

No key stage 2 guest schools using pool

Condition of fabric and plant

Poulner Junior

out

0

1

No key stage 2 guest pools using pool

Other pools in close proximity

Ropley Primary

out

0

0

No key stage 2 guest schools using pool

Condition of plant

St Mary's Junior, Old Basing

out

0

0

To be demolished at request of school

St Matthews C of E Primary, Blackmoor

out

0

0

No key stage 2 guest schools using pool

Sun Hill Junior, Alresford

out

0

0

Demolished at request of school

School Name

Indoor or outdoor pool

Number of KS2 guest schools using

Number of other guest schools using

Reasons for recommendation

Swanmore Technical College

out

0

0

To be demolished at request of school

Test Valley Secondary, Stockbridge

out

1

0

Condition of plant

Other pools in close proximity

Testbourne Secondary, Whitchurch

out

0

0

No key stage 2 guest schools using pool

Condition of fabric and plant

The Butts Primary, Alton

out

0

0

To be demolished at request of school

The Clere Secondary, Burghclere

0ut

0

 0

No key stage 2 schools using pool

Condition of plant

The Hurst Community College, Baughurst

out

1

0

Demolished at request of school

Trosnant Junior, Havant

out

0

0

No key stage 2 guest schools using pool

Westfields Junior, Yateley

in

0

2

 Condition of plant

Better facility at adjacent secondary school

Westgate Secondary, Winchester

out

0

 0

No key stage 2 guest schools using pool

Condition of fabric and plant

Wickham CE Primary

out

0

0

No key stage 2 guest schools using pool

Condition of fabric

Wildground Junior, Dibden Purlieu

in

0

1

No key stage 2 guest schools using pool

Condition of fabric