Swimming Pools, Sports and Leisure Centres

Background

Historical and legislative background from 1980s to 2008

Provision of facilities

The 1980s witnessed an increase in the provision of swimming pools and leisure centres and also a greater emphasis on ‘fun’ rather than fitness. The advent of leisure pools effectively illustrated this changing emphasis with the transition from the traditional pools of the early 1970s to the ‘complete leisure experience’ claimed by leisure pool providers. In 1983, a survey established that there were 912 municipal swimming pools and the then Sports Council projected that this should increase to 1,069 by the end of 1992 provided adequate financial resources and spending permissions were available to local authorities.

The 1980s also witnessed the demise of laundries and slipper baths, previously provided by local authorities, or their adaptation to provide such facilities as saunas and solaria.

In recent years, there have been changes in emphasis in the provision of leisure opportunities as follows:

· the provision of specialist sports facilities (for example, indoor bowls centres and tennis centres)

· the increase in capital funding to specialist sports colleges

· the increase of dual use facilities based on school sites

· schools sports coordinators and active sports partnerships which have increased the possibilities for juniors to link in with clubs outside of school;

· sport hub sites which are being promoted by some regional Sport England offices

· the increase in private fitness gyms– this has taken this profitable activity away from some local authority centres

· the move towards trusts, not for profit companies and voluntary groups running facilities from pools to large centres

Competition and Best Value

The Local Government Act 1988 defined a number of activities, which would be subjected to compulsory competitive tendering within a predetermined timescale. The management of sports and leisure facilities was required to be exposed to competition under the Local Government Act 1988 (Competition in Sport and Leisure Facilities) Order 1989 by 31 December 1992. A different timescale applied to Wales.

The Local Government Act 1999 repealed the requirement to seek competitive tenders for all services, with effect from 2 January 2000.

This legislation required all authorities to carry out a ‘Best Value review’ of each function over a five-year period to determine the most efficient and effective way of delivering the service, with effect from 1 April 2000. This resulted in either in-house or private sector delivery, or some form of partnership arrangement, possibly including the use of the private finance initiative (PFI). Local authorities still have a duty to ensure they are providing best value in their services.

EU procurement legislation

Maria will find out the current rules for part B services

The EU Procurement Directive covering public services contracts (implemented in the UK by the Public Services Contracts Regulations 1993) classes recreational and sporting services and catering services as part B services, which means that they are not subject to the full requirements that apply to part A services. However, there are requirements relating to technical specifications and post-award information which must be followed for any contracts for services above the set threshold There is no requirement in the EC rules for contracts for part B services to be subject to competition.

The three separate European Directives covering works, supplies and services have been replaced by the Public Sector Consolidated Procurement Directive, which came into force on 30 April 2004 and had to be implemented in the UK by January 2006. This simplified and consolidated the previous Directives, although many of the provisions are unchanged.

See the Procurement title for more detailed information on these issues.

mention new powers and duties for local authorities e.g. well-being etc. Tricia will supply Robert with a paragraph on the Local Authority and Public Involvement in Health Act.

The Nature of Local Provision

Tricia to forward comment to Robert on managing an asset to get maximum public value in the short, medium and long term. Also include more on broader insurance issues (e.g. legionnaire’s disease) and using the whole of an authority’s expertise in relation to risks and managing a facility.

The range of opportunities provided at individual centres will be constrained by the size and layout of the existing buildings and adjacent land availability. By way of illustration the types of buildings and activities which could be provided include:

· traditional swimming pools – for galas, teaching swimming skills, disciplined casual swimming, fun/splash sessions and possibly diving, water polo, synchronised swimming and sub-aqua;

· purpose-built centre combining sports centres and pools (either leisure pools or swimming pools) – for a wide range of activities under one roof;

· purpose-built sports halls – for activities such as badminton, soccer, cricket practice, gymnastics, basketball, volleyball and tennis;

· converted buildings – for some of the above activities depending on space availability;

· purpose-built fitness centres – for body conditioning.

Each authority will need to ensure that:

· adequate levels of supervision, maintenance, safety, hygiene and housekeeping are provided for users of facilities;

· usage and enjoyment of facilities is optimised;

· temperatures and humidity are maintained at the correct levels to ensure client comfort and optimum life of the fabric of the buildings;

· there is satisfactory financial performance; and

· staff are well trained in all health and safety and operational requirements.

A local authority, when reviewing the level of provision of indoor sport and recreation opportunities, will take into account a variety of factors. These will include:

· the level of provision by the public, voluntary and private sectors in the local authority’s area and in the neighbouring local authorities;

· a detailed assessment of unmet demand and predictions of future trends, including the findings of the Sport England Facility Planning Model (FPM);

· the likely level of demand stimulation from the provision of the proposed opportunities;

· the financial implications of provision.

The latter will include the level of capital funding available for the scheme, the precise facilities to be provided, and the ultimate running costs and income when operational. The design stage is also of utmost importance in respect of security, health and safety considerations, energy conservation and control of ongoing revenue costs. Careful consideration of all these factors should substantially contribute to the smooth and efficient operation of the facility.

A significant change in the mid 2000s has been the development of local authority built wet and dry facilities that are claiming to break even or even make a revenue surplus. This is because of large fitness gyms and commercially based membership schemes. Some swimming pools run by trusts have also claimed an operating surplus, an example being Crewkerne Aquasplash.

Through its role as a planning authority a local authority can encourage the provision of certain leisure facilities or services without the need for direct financial commitment (Section 106 agreements). The local authority’s role of ‘enabler’ may, for example, be achieved by securing the provision of facilities by developers as part of a larger scheme to provide a shopping centre. The community would, therefore, enjoy the resultant social benefits.

Under Best Value authorities are encouraged to examine even more critically alternative methods of delivering the service, building on current practices of externalisation and contracting out, which have been introduced to reduce revenue costs.

During the period from 1992 to the present a number of private companies won contracts to manage local authority leisure facilities. These organisations have been increasingly merging to form fewer, larger organisations. As described above this trend may continue, although there is no specific requirement to tender under Best Value legislation. However, contracts may be negotiated, and will be determined on criteria based on service delivery standards rather than cost alone, as previously, particularly utilising the 4Cs of the Best Value framework.

Local voluntary sports clubs, schools, churches, social clubs and community associations also provide a vast array of indoor recreational opportunities and facilities which tend to be on a smaller scale or limited in the number of activities catered for.

Dual use

‘Dual use’ is the term used to describe the community use of school sports facilities.

This policy ensures that there is good peak and off peak usage, however there can be conflicts between the two main users, which need to be handled sympathetically. Some dual use facilities are now allowing lunchtime and other times for public use during the school day. Benefits have been seen in areas where education is in the same department as leisure such as in some of the new unitary councils. An example of a county council running dual use facilities is Somerset where 19 facilities all come under the Adult Education and Learning Department.

It is important that a formal written agreement between the school and the authority or sporting organisation is reached in advance on the costing/charging arrangements, the times that school recreation facilities are made available to the general public and the respective repairs and maintenance responsibilities. It is also essential that review and arbitration arrangements are built into the agreement, in the event of disputes at a later date.

Key Issues and Practicalities

1. Dual Use

The following operational difficulties could be experienced depending on the facilities available within individual schools:

· the facilities are not always purpose-built and, therefore, the absence of suitable reception/office accommodation, toilets and storage facilities could be a problem;

· the heating and ventilation of many school sports halls is not to the standard expected by users in community time;

· cleaning and maintenance standards may not be acceptable to community users. However, the service could be provided by either party and recharged on an agreed basis;

· facility availability is frequently inconsistent which in turn creates both user and management dissatisfaction. Interruptions to pre-determined programmes do not enhance public relations or promote continued interest amongst the users;

· school venues often lack a social environment and associated facilities for the public;

· with community use in mind problems can be experienced in respect of access due to inadequate lighting, signing, signposting, parking, disabled facilities and site security.

Despite the above drawbacks, school premises offer a significant contribution to recreation provision even though they may be supplementary to the facilities provided within larger purpose-built sports and leisure centres, and could act as centres of excellence for sports in the future.

2. Use policies

The use policies of each local authority in relation to indoor sport and leisure centres will be largely determined by the following factors. These will in turn shape operational policies covering, for example, opening hours, prices and the programme content:

· the facilities provided and managed by the authority and those of other organisations within and beyond the authority’s area;

· the local authority’s social objectives;

· if funded by Lottery contributions the requirements of Sport England.

Most authorities will also encourage equal opportunities for participation by those who traditionally have participated less, such as disabled people, women, minority ethnic groups, unemployed people or those on low incomes by, for example, offering free or concessionary rate use of facilities at certain times, and peak and off peak pricing. This is often delivered through a leisure card scheme.

The levels of use of facilities may also be increased by the extent to which the local authority offers coaching and structured sessions.

Certain ‘dry’ sports facilities, such as squash courts, could also be provided by others and an authority should be aware of this in determining its use and charging policies. In formulating its policies each authority will also need to consider the desired extent of use by or for the following:

· casual users;

· schools;

· clubs and other voluntary groups;

· non-recreation use (e.g. social functions or exhibitions);

· competitions and tournaments;

· users with disabilities;

· particular requirements for ethnic or other groups.

3. Staffing

Employee costs often form the largest item of gross annual expenditure on swimming pools and sports centres, with as much as 60% being common.

The staff employed at swimming pools and sports and leisure centres may be categorised as follows:

· management;

· pool attendants/leisure attendants (supervising the users);

· cash collection staff/receptionists;

· catering/bars/shops staff;

· security staff;

· engineering staff/plant attendants;

· sports coaches and other development staff;

· specialist staff (e.g. for body conditioning);

· administrative staff;

· professional staff e.g. physiotherapists, beauticians, etc.

Pool or leisure attendants will normally consist of a combination of full-time, part-time and casual staff and will work on a shift system. Pool attendants will regularly be required to pass a lifesaving examination, as well as receiving further training in, for example, first aid, plant management and customer care. There are recommended ratios of pool users to supervisory staff.

Cash collection staff see generic document

Catering/bar staff see generic document

Security staff are increasingly being employed by local authorities although this function may be contracted out.

Engineering or plant maintenance staff numbers will be influenced by the numbers of facilities in the local authority's area and the respective client and contractor responsibilities. Such a centralised team could also be supplemented by a specialist at each location. There has been a move away from in house specialists to the employment of specialist plant and equipment companies who offer a callout service. The handyman remains but a specialist door company for instance would be used for servicing doors in the building.

Sports coaching may be undertaken by staff as part of their normal duties, or in overtime, or coaches may be engaged for the specific activities promoted.

The introduction of compulsory competitive tendering had a significant impact upon the traditional roles and the terms and conditions of service of staff. Staff are engaged on a wider range of duties and there is much greater mobility between different buildings or facilities and between tasks performed.

Management issues

For authorities that continue to directly manage swimming pools and sports and leisure centres it is likely that there will be a hierarchical level above the centre managers to ensure that common policies are adopted. Some of the finance-related functions, such as payroll calculation and submission, may also be decentralised from central departments to the leisure or recreation department, or be provided by a central department and recharged to the centres.