Concussion, pool management and lifeguard responsibilities

For the past sixteen months, I have lived in a town where there is only one swimming pool option-- the local YMCA. I have the typical complaints about this (warm water, crowded lanes), but recently my chief complaint has become the unsafe environment. Just over a week ago, I ended up with a concussion after someone swam into me head-to-head. While this occurred, the lifeguard was chatting with another employee. The accident occurred when a known "problem swimmer" informed my lane-mate that he needed to start circle swimming. An inexperienced swimmer, he began to do so immediately, but without my knowing. After the collision, I called out the lifeguard on not doing anything, and was asked what I expected her to do (in the event she had actually been paying attention). I said, "blow your whistle!" To which she responded, "no one listens when I do that." I later spoke with the lifeguard manager, who said the same thing. Additionally the manager claims that guards have tried to talk to the problem swimmer in the past, but she will not listen to them. I have seen this woman intentionally swim into people rather than inform them she is getting in their lane. When asked what the repercussions to her would be, should she continue to ignore the lifeguards, I was told "well we can't kick anyone out of the Y." I have had numerous other incidents in the past. For example, the lifeguard once allowed someone to tread water in the middle of a lane with four circle swimmers. Another time I slammed into a man's rear end coming out of a flip turn. (I have no idea why/how he was there.) And on a daily basis, there is zero oversight to how people join lanes, meaning you never know when someone (who is inevitably nowhere near your pace) will appear in your lane. As I lay on my couch recuperating, I contemplate if anything will ever change. It is frustrating to know that if the lifeguard had done something, I would not currently have recurring headaches, sensitivity to light, and difficulties with my equilibrium. Hopefully, my symptoms will improve in the near future but I cannot help but think my concussion was avoidable. My questions are: what are realistic expectations of a lifeguard? To whom are they accountable? Who is responsible for teaching swim etiquette? Who is responsible for keeping swimmers safe? Who is responsible for organizing compatible circle swimming lanes? Do people really not respond to blowing a whistle? If this were an isolated event, I would probably be more forgiving. But the fact is that the lifeguards are frequently socializing, drinking coffee, or staring off. I thought their responsibility was the safety of the swimmers? I look forward to swimming again once I am symptom-free, but I do have some lingering reservations. I would also like to use this incident as a wake-up call to the YMCA management, but am not sure how to do so. (Or am I being too quixotic?) I filled out accident and incident report forms after the event, but there has been no follow-up. I would love to find a new pool, but there aren't any options so I am stuck. Any thoughts or suggestions?