After treading water for two decades, the fate of the Crystal Pool remains unclear

More than 20 years after the debate about it began, the future of the pool remains cloudier than its water.

Its fate is the subject of a public referendum to be held on Feb. 8 when voters will answer two questions: a simple “yes” or “no” on whether to allow the city to borrow up to $168.9 million to build a new facility and; where the build should occur if the project is approved.Victoria's Crystal Pool and Fitness Centre has been a community hub since it opened in 1971. Beyond swimming, the aging natatorium offers a range of recreational activities for all ages. But after 55 years of service, the declining building is finally set to be replaced in a multi-million-dollar project aimed at meeting the city’s growing demand for modern, accessible, and environmentally sustainable recreational infrastructure.

In addition to its age and maintenance needs, the Crystal Pool presents significant accessibility and environmental concerns. The facility is not easily accessible for individuals with disabilities, and the city says its infrastructure accounts for roughly 40% of the greenhouse gas emissions from all of Victoria’s municipal buildings.

A facility past its prime

For decades, it has become increasingly clear that the building is reaching the end of its useful life. In a debate on the future of the pool last June, Victoria Mayor Marianne Alto suggested she had regrets that the previous council had not acted in 2017 when the project could have been built for one-third of today’s price.

The question of the pool’s declining condition had been raised long before 2017. A condition assessment of the pool submitted to the council in 2015 indicated that its status had been identified as a “high priority” for the presiding council in 2011.

The timeline of the Crystal Pool saga

A 2015 condition assessment of the pool concluded that the facility would require between $10 million and $13 million in lifecycle investment over 10 years to keep it operational. Beyond those capital costs, the report indicated that approximately $2.5 million per year would be required for regular maintenance and operation.

Those numbers have since skyrocketed.

In 2016, Victoria City Council approved a feasibility study to explore the best options to replace or renovate the facility. In 2017, the council approved a project budget of $69.4 million to replace the existing Crystal Pool with a new, state-of-the-art facility. Between 2017 and 2018, the city hosted a series of public engagement sessions, collecting input on the facility’s potential design and programming.

Victoria and Vancouver-based, HCMA Architecture and Design was awarded a $3.3-million contract for the design and engineering of the new Crystal Pool and Wellness Centre project.

In 2019, discussions with RG Properties, the company that owns the Save-On-Foods  Memorial Arena and its attached parking lot—which was seen as a possible new home for the pool—came to an end. Central Park Middle School’s fields also were suggested as a potential location for a new pool. However, the North Park Neighbourhood Association, home to the present pool, pushed the council to consider placing the facility in the North Park or Hillside-Quadra area to ensure equitable access, and the Downtown Victoria Residents Association raised concerns about losing green space, so the city returned to the drawing board.

At a Jan. 2020 meeting, the council decided against spending $750K on a survey to decide if the Crystal Pool was worth renovating, and during the pandemic, consideration of the project was put off entirely.

Today, the projected cost of the new Crystal Pool stands at  $168.9 million.

“The main cost drivers are inflation, which has gone up significantly since the pandemic, and building costs related to the increasing requirements of the BC Building Code,” Coun. Jeremy Caradonna tells Capital Daily

“These standards come at a cost. Moreover, inflation in wages, materials, and services has driven up costs over the past six years.”

Grant money possibly on the way

The city has applied for and is still waiting to hear about a $25-million federal grant. It also has $47 million available in reserve funds, which would reduce the amount it would need to borrow to $168.9 million. The city says it has taken proactive measures to account for cost overruns, adding a 30% contingency to the initial estimate to cover unexpected expenses. The city has learned from experience.

“I have a high degree of confidence, and I believe staff would agree that the project will come in on budget and on time, “ Caradonna says.

“Based upon the experiences of the Johnson Street Bridge project, the city created new capital planning policies to make much more conservative budgeting decisions and to increase the percentage of budgets for capital projects that relate to contingency and cost escalation,” Caradonna says.

HCMA Architecture + Design, the firm chosen by the city to build a new pool, says feedback from the years-long public engagement initiatives informed the shaping of its final design, which includes expanded fitness spaces, improved accessibility features, and energy-efficient technologies aimed at reducing operational costs over the long term.

The firm has designed other large aquatic facilities, including Vancouver’s Hillcrest and the West Vancouver Aquatic centres, as well as Surrey’s Grandview Heights Aquatic Centre. Most recently, its təməsew̓txʷ Aquatic and Community Centre made the shortlist in 2024 for the Prix Versaille, a world architecture and design award, in the sports category.

City of Victoria architectural rendering of gym area of a new Crystal Pool.

Features of the proposed new facility include:

• 50m cold-water pool suitable for swim clubs, classes, and meets
• 25m warm-water pool suitable for families, fun swim, and recreation
• Family-oriented aquatic play areas, including splash features, slides, and kiddy pools
• Hot tub, sauna, steam room
• Community centre and meeting rooms
• Studio for dance, yoga, or fitness
• A half gymnasium
• Universal washroom and change room options
• Expanded parking, including accessible and EV charging options
• Short- and long-term bike parking

Due to its age and the complexity of safely removing the aging structure, demolition is expected to cost at least $30 million.

In his presentation last June, Derrick Newman, the city’s director of parks, recreation, and facilities told the council that once approved, the project would require 18 months of design work and would open in late 2029 or 2030.

If yes, then north or south?

The two primary location options—Central Park North (its current spot) and Central Park South (next door where the tennis and basketball courts sit)—each comes with its own set of pros and cons, including potential impacts on local property taxes.

Resulting property tax hikes are expected to average $232 per residence for the North site and $240 per residence for the South site, with tax increases lasting 20 years. The additional costs represent a point of contention for some residents. User fees would most likely increase,  although to what amount remains unclear. Single-entry costs currently stand at $6.31 for an adult and $3.28 for a child.

As they consider participating in the referendum, Caradonna asks residents to bear in mind that the pool will eventually close, no matter what.

“If the referendum fails, Council will have a difficult decision, either to close the facility in the near term or to pour $9 million into the facility to keep it on life support for a few more years, and then close the facility,” Caradonna says.

“We are at a crossroads on whether the community will have a public pool and wellness centre at all. It is up to voters to decide on the path ahead, but those are the stakes.”

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Note: A previous version of this story contained incorrect information in the paragraph pertaining to grant money possibly on the way . It has since been corrected.