I think a reasonable start would have been requiring it of all NEW pools, or requiring changes when reasonably possible, such as the next time the pool is drained, etc.
Also, I think someone could've come up with a domed fixture that could be installed over existing drains, rather than requiring a complete change to the drain system, which would make changes cheaper and more reasonable.
And again, there are many much more deadly and avoidable things they could've focused on.
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