Luton Borough Council strategic vision for sport and physical activity
April 2013
Contents
Item
Page
1. Introduction and purpose
1
2. Why develop a vision for sport?
2
3. What is the scope of the vision?
2
4. The participation challenge
3
5. What are the priority outcomes Luton Borough Council is
seeking to achieve?
5
6. What will Luton Borough Council need to do to meet these
outcomes?
6
7. Who will we work with and how?
7
8. How do we measure success?
8
9. Next steps
9
1. Introduction and purpose
This aim of this document is to provide a vision and policy statement outlining the Council’s
ambitions, aims and objectives in relation to sport. This document is owned by the Council
with the endorsement of a range of community stakeholders, and is intended to guide
strategic decision-making related to sport.
Forming part of this document is an ‘outcomes framework’ for sport. This is designed to
assess and highlight how sport makes a critical contribution to Luton Borough Council’s
priority outcomes, and enables residents to live better lives. This framework, alongside
refreshed, service-specific ambitions, will help align and integrate work to support the
achievement of community outcomes.
In the Luton Borough Council Prospectus 2013-2016, the Council has committed to the
delivery of a three point plan:
 To increase income from business growth (Business and Growth)
 To better equip residents of all ages to get jobs through investment in education and
training (Education and Lifelong Learning)
 To work efficiently with other organisations to ensure the most vulnerable in Luton are
safe and supported (Safe, Supported and Healthy)
The outcomes framework for sport demonstrates how service outcomes for sport contribute to
these three priorities.
In relation to the third priority (Safe, Supported and Healthy): from April 2013, the Health and
Wellbeing Board will take overall responsibility for cross-sector coordination and
commissioning to improve the health and social care of people in Luton. The strategic vision
1
for sport will contribute to the achievement of the three priority outcomes of the Health and
Wellbeing Strategy, which are:
 Every child and young person has a healthy start in life
 Reduced health inequalities within Luton
 Healthier and more independent adults and older people
As above, the outcomes framework for sport demonstrates how service outcomes for sport
contribute to these priorities.
Underpinning this document, a delivery and implementation plan will be developed in
consultation with key stakeholders, which will identify the specific actions that need to be
undertaken to meet the required outcomes.
2. Why develop a vision for sport and physical activity?
It is widely acknowledged that sport can contribute to a range of outcomes beyond
participation itself, for example education and lifelong learning (through training, skills
development and employment) and ensuring the most vulnerable in society are safe and
supported (by reducing social isolation and displacing anti-social behaviour).
Increasing participation in sport and physical activity can also make a significant contribution,
across the life-course, to a wide range of physical and mental health outcomes, and reduce
health inequalities. Sport and physical activity has high preventative potential to reduce the
burden of a broad range of chronic diseases in people at all stages of life and there is also
evidence that demonstrates the impact of exercise as a treatment, reducing the need for
expensive drugs, and potentially adding years to life.
Physical education forms the basis for children’s enjoyment and understanding of movement.
It develops gross and fine motor skills. It promotes children’s understanding and application of
healthy life styles. It supports social interactions through co-operation and competition. It
helps children’s appreciation of effort, perseverance, practice and refinement. It supports their
academic performance through increased concentration and focus.
Participation and involvement in the delivery of sport and physical activity can also be fun,
lead to increased social interaction and the development of new relationships. This contributes
to improved cohesion in communities.
Developing a vision for sport in Luton therefore ensures that the Council’s investment into
sport effectively contributes to the authority’s overall outcomes. Beyond this, a vision for sport
in Luton will provide:
 Clarity of priorities in times of austerity
 A means of securing resources through a clear, needs-based approach
 Ability to maximise use of resources through informed decision-making
 A meaningful post-2012 legacy
 A framework to realise Luton’s sporting ambitions
3. What is the scope of the vision?
The term ‘sport’ is open to a wide interpretation. Given the various stakeholders and agenda
to which sport can make a contribution, it is agreed that the vision for sport in Luton
encompasses a wide definition, to include formal and informal sport, active recreation and
elements of physical activity. These activities are delivered or facilitated by a wide range of
partners both indirectly (e.g. by the Borough Council through its enabling role) or directly (e.g.
through programmes and interventions delivered by Active Luton and Team Beds & Luton, in
leisure centres and club settings).
2
The scope of the vision includes all service providers and stakeholders outlined below as a
minimum. One of the purposes of the document will be to bring services and stakeholders
together around a shared vision for sport, to work towards meeting Luton Borough Council’s
priority outcomes.
Definitions and what we mean by ‘sport’:
 Sport (sport walking, regular cycling, swimming, exercise and fitness training,
structured competitive activity, individual pursuits, informal sport)
 Active recreation and physical activity (recreational walking and cycling, active play
(children’s play areas), dance)
Not within the scope of this definition:
 Everyday activity (heavy housework, gardening and DIY)
 Active transport (e.g. cycling, walking to work)
What are the services/service providers that will be included?
 Luton Borough Council: parks and open spaces, children and education, housing and
community living, public health, planning and asset management
 Active Luton: sports development, leisure facilities
 Team Beds & Luton: variety of outreach programmes targeting particular groups
 Clubs, coaches and voluntary sector
 Luton Sports Network
 National governing bodies of sport
 Education: schools, Further Education and Higher Education
4. The participation challenge
In terms of achieving an increase in participation in sport, Luton faces a number of challenges
which can be addressed through the development of a vision for sport. Most recent
participation data released December 2012 shows that almost 60% of the population of Luton
are inactive (table 1). Compared to its CIPFA ‘nearest neighbours’ levels of regular
participation amongst the adult population in Luton are lower (table 2).1
Table 1: Adult participation in sport and active recreation (NI8) - frequencies
APS 5/6 (October 2010 - October 2012)
Number of days participation in the last 28 days
Luton
None
1 to 11 days
12 to 19 days
20 to 28 days
59.4%
25.5%
7.2%
7.9%
Table 2: Adult participation in sport and active recreation (NI8) – comparators
National
Area name
1
APS 1
(Oct ‘05-Oct ‘06)
APS1
APS2
APS3
APS4
APS5
21.25%
21.62%
21.95%
22.06%
21.80%
APS 2/3
(Oct ‘07-Oct ‘09)
APS 4/5
(Oct 09-Oct ‘11)
APS6
(Oct11Oct12)
22.89%
APS 5/6
(Oct ‘10-Oct ‘12)
Active People survey 6
3
Luton
18.5%
15.1%
14.9%
15.1%
Hillingdon
20.8%
20.4%
16.2%
18.0%
Slough
19.4%
16.1%
17.6%
17.1%
Wolverhampton
16.1%
16.2%
20.7%
21.9%
Birmingham
17.2%
17.6%
19.5%
18.8%
Evidence shows that there are socio-demographic differences in inactivity levels in Luton.
These include higher levels of inactivity among females than males, higher levels within less
affluent socio-economic groups and higher levels of inactivity among some Black and Minority
Ethnic (BME) groups.2 In summary:
 64% of females are inactive (have not taken part in any form of sport or active
recreation) compared to 48.9% of males
 65.3% of people from socio-economic groups NS-SEC 5-8 are inactive compared to
44.1% from NS-SEC 1-2.
 55% of people who are ‘white’ are inactive, lower than the proportion of people who
are ‘non-white’ (58.4%)
As shown in tables 3 and 4 below, there are similar differences in terms of regular
participation, with higher levels among males than females, lower levels within the least
affluent socio-economic group and lower levels of regular activity among some BME groups.
Table 3: Adult participation in sport and active recreation (NI8) demographics
Gender
National
Limiting illness
or disability
Age Band
Ethnic Group
Male
Female
16 to
34
35 to
54
55 +
Yes
No
White
All other
Ethnic
Groups
26.0%
19.9%
30.3%
25.3%
14.1%
11.4%
25.1%
23.4%
19.7%
Gender
Limiting illness
or disability
Age Band
Ethnic Group
Male
Female
16 to
34
35 to
54
55 +
Yes
No
White
All other
Ethnic
Groups
Luton
18.2%
11.9%
18.7%
15.8%
9.3%
9.5%
16.1%
16.7%
12.9%
Hillingdon
20.0%
16.1%
20.9%
20.2%
11.6%
6.3%
19.9%
17.3%
19.4%
Slough
19.7%
14.4%
22.8%
15.2%
11.3%
4.1%
18.9%
16.0%
18.4%
Wolverhampton
26.8%
17.1%
27.5%
25.5%
13.1%
2.8%
25.6%
21.9%
21.7%
Birmingham
24.2%
13.6%
24.2%
20.9%
8.8%
10.2%
20.3%
19.5%
17.3%
NB: Participation data is less robust when Ethnic Groups are further differentiated, so this data is not
presented.
2
Sport England Active People Survey 3/4
4
Table 4: Adult participation in sport and active recreation (NI8) socio-economic status
APS 5/6 (October 2010 - October 2012)
NSSEC4
NSSEC5,6,7,8
NSSEC1,1.1,1.2,2
NSSEC3
Small employers Lower supervisory/technical/
Managerial and
Intermediate
/ own account
routine/semi-routine/never
professional
workers
worked/long-term unemployed
Luton
20.0%
13.8%
23.7%
10.1%
In terms of participation, gender disparity is greater among BME communities. It is
acknowledged that being a member of these communities is associated with higher incidences
of disadvantage stemming from factors such as low income and poor health, which act as
material constraints on participation. However ethnicity is not the sole defining criterion but the
way ethnicity inter-relates with gender, class, income, disability, age, religion and other factors
that shapes opportunities to take part in sport and physical activity.3
Sport and physical activity can be a powerful enabler for those with physical disabilities,
offering them opportunities to be more mobile and to build their confidence which, as well as
improving health and quality of life, can reduce the need for carers and support. Mental
wellbeing is also enhanced through increased physical activity and sports participation.
 In Luton, 76.5% of people with a limiting disability or illness are inactive compared to
52.7% of those without.
 Only 9.1% of people with a limiting disability or illness take part regularly, compared to
16.1% of those without.
Detailed market segmentation data is available for sport which means that investment can be
carefully targeted. In 2012, extensive market segmentation analysis has been undertaken by
Sport England in partnership with Active Luton which supports this. This latent demand
analysis highlights real potential for change through providing better (and more relevant)
options and encouraging people towards them. A significant proportion of adults want to start
playing sport or do more, but for barriers (often related to social or economic inequalities)
preventing them. There are some groups for whom the benefits of increasing levels of physical
activity would be particularly significant. Through targeted intervention, preventative
programmes for specific groups can be designed to reduce participation inequalities.
The above analysis suggests that Luton Borough Council should focus on increasing
participation levels generally, with specific interventions aimed at:
 Older people (aged 55+)
 Younger people (aged 16-34)
 Disabled people
 Women and girls
There is a need to increase participation among those ‘at risk’ of poor health through targeted
programmes, given the significant proportion of the adult population who are inactive. This is
particularly relevant to those from socio-economic groups who are more likely to experience
health inequalities (i.e. NS SEC5-8).
Given the difference in rates of participation between people who are ‘white’ compared to ‘all
other ethnic groups’, there is a need to further understand the factors that influence
participation in sport for some BME groups and what the current barriers are, and deliver
targeted interventions for these groups.
3
Joint Sports Councils of the UK, UK Sport and Sporting Equals 2009 ‘A Systematic Review of the Literature on Black and Minority Ethnic Communities in
Sport and Physical Recreation’
5
5. What are the priority outcomes Luton Borough Council is seeking to achieve?
As outlined above, sport can contribute to a wide range of community outcomes. Luton
Borough Council has identified overarching strategic priorities within its Prospectus three point
plan in order to meet community needs over the next three years. These strategic outcomes
are those high-level, long-term outcomes that sport, along with other services, contributes to
across the local population. The strategic outcomes form the basis for the strategic vision for
sport and physical activity.
A number of service outcomes have then been identified through consultation with key
partners, which contribute to these overarching priorities. Service outcomes for sport are those
outcomes within the direct control of partners at a local level. These reflect the priorities in
sport strategies, action plans; service plans etc. The consultation to identify these outcomes
took place through a focused workshop session with stakeholders including Luton Borough
Council (officers from planning, parks and open spaces, education, housing, community living
and adult social care, and Councillor with the portfolio for sport), NHS, Active Luton and Team
Beds & Luton. The service outcomes identified are:
 Increased participation among those ‘at risk’ of poor health through targeted
programmes
 An increase in the numbers of active: older people; young people; disabled people;
women and girls, and residents from BME communities taking part in sport at least
once per week
 An increase in the numbers of active citizens involved in designing and delivering sport
(including volunteering and coaching)
 Planning policy that reflects the needs of sport
 Sport and sports clubs embedded in the voluntary sector infrastructure and supported
by relevant bodies
 An increase in the number of people developing skills through sport
 An increase in the number of sport-related jobs
 An improvement in pathways for individuals to reach their best
Through the consultation, a number of intermediate outcomes were also identified.
Intermediate outcomes are more specific, non-sporting outcomes resulting directly from
peoples’ experiences of sport, which show how sport contributes in the short to medium term
to overarching strategic outcomes for the local population. The intermediate outcomes
identified are:
 A strong volunteer network for sport
 Reduced levels of obesity
 Built facilities are of appropriate quality and accessible
 Streets, green routes, parks and open spaces are well maintained, improved,
accessible and safe
 Places and spaces for sport are sustainable
 There are appropriate facilities for casual recreation (including walking and cycling
 Improved cohesion in communities
 Older people living more independent lives
 Reduction in the number of people at risk of developing long-term conditions
 Aspirations and personal life skills are improved (cooperation, discipline, self-esteem,
motivation) preparing people for education, employment and sports performance
These outcomes have been organised into an outcomes triangle (see appendix A). The
outcomes triangle gives an overview of how sport contributes to the priority outcomes overall.
It shows the different levels of outcome that sport provision contributes to: service outcomes,
intermediate outcomes and overarching strategic outcomes.
6
6. What will Luton Borough Council need to do to meet these outcomes?
In order to meet the identified priority outcomes a number of broad activities will need to be
delivered. These activities form the starting point of the ‘logic model’ (see appendix B) which
constitutes the second part of the outcomes framework. Having categorised each of the
outcomes in the outcomes triangle, the logic model illustrates the main links between service
activities and the broader outcomes. It shows understanding of the benefits of sport to
individuals, communities and places, and how these in turn contribute to the achievement of
intermediate and overarching strategic outcomes
The logic model is put together by listing those categorised outcomes starting with the service
outcomes. The service outcomes are achieved by the delivery of certain activities that
stakeholders agree should be undertaken and that are outlined under ‘sport activities’ in the
model. Based on available evidence and consultation with stakeholders, the assumption is
that by fulfilling those activities the service outcomes will be achieved, from which there will be
benefits for the individual or wider community. Those benefits in turn lead to the medium-term,
intermediate outcomes, and ultimately to the more long-term strategic outcomes.
A worked example of this is as follows: providing employment and mentoring opportunities in
sport can lead to: an increase in the number of people developing skills through sport, an
increase in the number of sport-related jobs, and an improvement in pathways for individuals
to reach their best. The benefits of this to the individual are that they experience increased
confidence, self-esteem, personal responsibility and resilience. For the wider community, the
benefits are more role models who can lead people to be successful. The intermediate
outcome from this is that aspirations and personal life-skills are improved, preparing people for
education, employment and participation in sport. This contributes to a number of longer term
strategic outcomes for Luton under the Business and Growth, and Education and Lifelong
Learning priorities of the three point plan.
Luton Borough Council will need to agree with its key partners what are the specific and
measurable actions that need to be delivered and which agency is responsible for their
delivery, in order to provide the activities listed. A separate delivery plan will therefore be
developed through further consultation with those partners.
7. Who will we work with and how?
The outcomes within Luton’s vision for sport cannot be delivered in isolation. Luton Borough
Council will need to work with a range of partners. It needs to be clear on what it expects from
those relationships with partner agencies, and what ‘added value’ it expects to achieve
through working in partnership with the wider sector. Key partners will include:
 Active Luton
 team Beds & Luton
 Luton Sports Network
 National governing bodies of sport
 Community Groups
 Voluntary sector umbrella groups (e.g. Voluntary Action Luton)
 Education (including schools, Further Education and Higher Education)
 Luton Friends of Parks and Green Spaces
 NHS including the CCG (Clinical Commissioning Group)
 National Sporting Initiatives
 Local Sports clubs including Luton Town Football Club
 The Business Community
7
Partners agree that there is a need to review how Luton Borough Council and its partners
work together. Specifically, there is a need for improved coordination and communication to
succeed in delivering the activities that will lead to achieving positive outcomes. The priorities
in relation to coordination are:
 Ensure that all departments within Luton Borough Council are aware of their respective
roles and responsibilities in relation to sport, and that they are working together to
achieve the outcomes.
 Achieve greater clarity of the roles and expectations between departments and among
partners, leading to improved coordination.
 Work across departments and organisations to commission in a more coordinated and
joined-up way, which will maximise the impact of service delivery and reduce
duplication of effort.
 Through the emerging Public Health structures and the Health and Wellbeing strategy,
develop the links between “wellness” and sport and active recreation, opening
opportunities for commissioning through partners and voluntary sector organisations.
8. How do we measure success?
In order to measure progress and success against the service, intermediate and strategic
outcomes a small number of indicators will need to be developed, as well as specific service
output measures. Further consultation with key partners will be required to develop these
performance indicators. However a number of possible indicators could be considered as set
out in the examples below:
Overarching strategic outcome indicators




Life expectancy at birth
Self-reported wellbeing (satisfaction score, worthwhile score,
happiness score and self-being score)
Disability free life expectancy at age 65
Premature mortality rate for all cardiovascular diseases
Intermediate outcome indicators




Percentage of residents participating in regular volunteering
Proportion of physically active and inactive people
Excess weight in children aged 4-5 years and 10-11 years of
age
Injuries due to falls in people aged over 65
Service outcome indicators



Percentage of residents taking part in sport at least once per
week
Percentage of residents regularly volunteering in sport
Percentage of residents meeting the recommended
guidelines on physical activity (150 minutes of moderate
intensity activity a week)
Any further breakdown
of indicators required
e.g. by age group,
gender or
neighbourhood
Older people; young
people; disabled
people; women and
girls, and residents
from BME
communities
Any further breakdown
of indicators required
Older people; young
people; disabled
people; women and
girls, and residents
from BME
communities
Any further breakdown
of indicators required
Older people; young
people; disabled
people; women and
girls, and residents
from BME
communities
8


Number of sports clubs registered and receiving support
from voluntary sector infrastructure organisations
Percentage of participants in formal or informal sport
learning opportunities who achieve accreditation or
qualifications
Service output indicators






Number of people participating in or completing healthrelated sport programmes (e.g. exercise referral or obesity
programmes) with certain providers
Number of activities taking place in ‘non-traditional’ settings
(e.g. community centres, schools etc.)
Number of people accessing Active Luton sports facilities
Number of participants in sport programmes who take up
leisure centre membership or local leisure card on
completion with Active Luton
Number of new clubs established that are registered with the
Luton Sports Network
Number of participants in sport volunteering schemes
Any further breakdown
of indicators required
Older people; young
people; disabled
people; women and
girls, and residents
from BME
communities
9. Relevant documents that link to this strategy





Annual Public Health Report from 2010/11 and 2011/12 (Public Health)
Luton Joint Strategic Needs Assessment
Living well for longer: a call to action to reduce avoidable premature mortality
(Department of Health)
Luton Health and Wellbeing Strategy
Luton Borough Council Prospectus
9