TOWARDS A LEVEL PLAYING FIELD:
A GUIDE TO THE PRODUCTION OF PLAYING PITCH
STRATEGIES
CONTENTS
Page
1
1. Introduction
Why produce a playing pitch strategy?
Why follow this guidance?
The structure of the guide
2. The need to improve and protect the provision for pitch sports
5
Pressures on playing fields
Key national legislation, policy initiatives, strategies and plans
National trends in pitch sports
A new social policy agenda
3. A step-by-step guide to the Playing Pitch Model
11
Stage 1
Identifying teams/team equivalents
Stage 2
Calculating home games per team per week
Stage 3
Assessing total home games per week
Stage 4
Establishing temporal demand for games
Stage 5
Defining pitches used/required on each day
Stage 6
Establishing pitches available
Stage 7
Assessing the findings
Stage 8
Identifying policy options and solutions
A worked example
4. More detailed guidance
19
Flowchart
Background to the revised methodology
Defining the scope and purpose of the study
Where to get the information
Analysing demand
Analysing supply
5. Turning your assessment into your strategy
46
Identifying solutions
Quantitative deficiencies
Qualitative deficiencies
Underused/unused provision
Developing minimum local standards of provision for playing pitches
6. Action and review
56
Developing an action plan
Data update
Monitoring and review of this guidance
Glossary of abbreviations
APPENDICES
A: Key national legislation, policy initiatives, strategies and plans
B: Consultants’ brief for a playing pitch strategy
C: Generic structure for the playing pitch strategy (PPS)
D: Consultants’ brief for playing field and pitch improvement schemes
E: Pitch sizes
ELECTRONIC TOOLKIT
1. Sample user/provider questionnaires
2. Undertaking a pitch quality assessment
3. The Playing Pitch Calculator
4. Feedback form
Acknowledgements
PMP Consultancy was commissioned by Sport England to research and
prepare this document to final draft stage. The preparation of this guide was
overseen by the Steering Group, which was chaired by Professor Barrie
Houlihan (Loughborough University), and representatives from the Central
Council of Physical Recreation, Local Government Association, Office of the
Deputy Prime Minister and Sport England. The National Playing Fields
Association was an original member of the Steering Group and participated in
all the meetings but withdrew support for this document on 6 December 2002.
Acknowledgement and thanks go to CABI for their kind permission for the use
of 'Natural Turf for Sport and Amenity: Science and Practice ', W A Adams and
R J Gibbs (1994), published by CABI, (http://www.cabipublishing.org/Bookshop/BookDisplay.asp?SubjectArea=&PID=1282
www.cabi.org) as the principle source for Appendix D: Consultants’ brief for
playing field and pitch improvement schemes.
SECTION 1:
INTRODUCTION
TOWARDS A LEVEL PLAYING FIELD
1: INTRODUCTION
‘To make a real difference to grassroots sport in this country, we
need a clear picture of what our provision is now. Then we can
plan future investment so that it has the greatest positive impact.’
Rt Hon Tessa Jowell, Secretary of State for Culture, Media and Sport, 15 August 2001
1
Introduction
1.1
This guide is aimed primarily at local authority officers who are responsible for
producing a playing pitch strategy for their area. It can also be used by leisure or
planning consultants. It is complemented by a downloadable Electronic Toolkit,
which includes sample questionnaires, a mechanism for assessing turf pitch quality
and a spreadsheet for the numerical calculations.
1.2
This guide and the toolkit replace the guidance published in the 1991 document, The
Playing Pitch Strategy produced by the (then) Sports Council, National Playing Fields
Association (NPFA) and the Central Council of Physical Recreation (CCPR). In
addition, the 1994 Sports Council Facilities Factfile: Assessing Pitch Requirements at
the Local Level has been updated and incorporated into this guide.
1.3
Following widespread consultation with all local authorities and key agencies in
England, this new guide reflects the recent changes in legislation and trends in pitch
sport demand. It also draws on the experience and good practice of the playing pitch
strategies produced over the last decade. It will undoubtedly evolve over the next few
years as new issues and developments come to light. Updates can be downloaded
from the Sport England website:
http://www.sportengland.org/whatwedo/places/playing_pitches.htm
Why produce a playing pitch strategy?
1.4
Producing a local playing pitch strategy for the first time can be time-consuming and
labour-intensive. However, for local authorities, the benefits of producing a local
strategy are considerable:
(a) Corporate and strategic
 It ensures a strategic approach to playing pitch provision. During times of
change for local authorities, a playing pitch strategy will provide direction and set
priorities for pitch sports.
 It provides robust evidence for capital funding. As well as proving the need for
developer contributions towards pitches and facilities, a playing pitch strategy can
provide evidence of need for a range of capital grants. Current funding examples
include the Sport England Lottery Fund, Heritage Lottery Fund (for park
improvements), the Football Foundation and the New Opportunities Fund.
 It helps deliver government policies for social inclusion, environmental
protection, community involvement and healthy living.
 It helps demonstrate the value of leisure services during times of increasing
scrutiny of non-statutory services.
 It helps the Best Value process through:
Page 1
TOWARDS A LEVEL PLAYING FIELD
1: INTRODUCTION
- consultation with pitch-based sports clubs, providers and organised
leagues
- challenging the current system for sports pitch ownership, management
and maintenance
- comparison with other local authorities through various benchmarks (team
generation rates, the NPFA’s Six Acre Standard, local standards and other
performance indicators – see later sections for more details)
- competition, perhaps for pitch maintenance contracts.
It also encourages continuous improvement through monitoring, auditing and
benchmarking.
(b) Planning
 It provides a basis for establishing new pitch requirements arising from new
housing developments.
 It is one of the best tools for the protection of pitches threatened by
development.
 It links closely with work being undertaken on open spaces to provide a holistic
approach to open space improvement and protection.
(c) Operational

It will improve a local authority’s asset management, which should result in more
efficient use of resources and reduced overheads.

It highlights locations where quality of provision can be enhanced.
(d) Sports development
 It helps identify where community use of school sports pitches is most
needed.
 It provides better information to residents and other users of sports pitches.
This includes information about both pitches and sports teams.
 It promotes sports development and can help unlock latent demand by
identifying where the lack of facilities might be suppressing the formation of
teams.
1.5
A playing pitch strategy links closely with a local authority’s other strategies. The
main links between the different strategies are illustrated in Figure 1.1 overleaf. The
diagram also shows how the local playing pitch strategy links with the local plan or
unitary development plan (UDP).
Page 2
TOWARDS A LEVEL PLAYING FIELD
Figure 1.1
1: INTRODUCTION
Links with other strategies and plans
Community plan
Local plan/UDP
Local cultural
strategy
Parks and open
spaces strategy
Leisure facilities
strategy
Local playing
pitch strategy
Sport and
recreation plan
Sports
development
plans (pitch sports)
Why follow this guidance?
CASE STUDY: London Borough of Wandsworth –
a local authority without a playing pitch strategy
1.6
The approach and guidance outlined in this
guide are fully endorsed by Sport England,
and the CCPR as the appropriate
methodology to provide detailed local
assessments of playing pitch requirements
in all local authorities in England.
In 2001, a landowner applied for planning consent to
build around 30 dwellings on a playing field in an inner
London borough. The local authority objected to the
application and, following an appeal by the applicant,
the case went to public inquiry.
1.7
The approach will provide three key benefits
for local authorities, government
departments and sports organisations:

Data can be shared between local
authorities for comparison,
benchmarking and resolution of crossboundary problems. This has direct
benefits for local authorities’ duties under
Best Value.

Experience and expertise can be shared
among local authority officers via the
Sport England website, regional forums
and so on.

By amalgamating data from all local
authorities, there is the potential to
create a national database of playing
pitches, building upon the recently
The landowner argued that the playing field was little
used and any use that did occur could easily be reaccommodated on nearby public playing fields. In
essence, the landowner argued that there was a
surplus of playing pitches, demonstrated by the lack of
manifest demand for use of this particular pitch.
While this is not a strong case on its own, the local
authority’s position was weakened because it did not
have a playing pitch strategy. It was therefore forced
to make its case based on booking records and
estimated capacity of other pitches in the area. Its
figures and calculations stood up poorly to crossexamination, leaving the local authority in a vulnerable
position.
Although the Secretary of State dismissed the appeal
and refused planning permission, this decision was not
based on playing pitch issues. In fact, the Secretary of
State's letter said, ‘[I] agree with the Inspector that the
use of the appeal site as a sports pitch is limited to
football and its loss would not harm the aspirations of
teams wishing to play in the Wandsworth area.’
Page 3
TOWARDS A LEVEL PLAYING FIELD
1: INTRODUCTION
completed Register of English Football Facilities
(REFF) and the Rugby Football Union’s Club
Audit.
1.8
This guide has been produced following a 12-month consultation programme with
local authorities (leisure, planning and education), national governing bodies of sport,
county playing field associations, Sport England regional offices, government
departments, regional sports boards and other key agencies. It reflects the recently
published Assessing Needs and Opportunities: A Companion Guide to PPG17
(Office of the Deputy Prime Minister (ODPM), 2002).
1.9
The consultation has been overseen by a Steering Group chaired by Professor
Barrie Houlihan (Loughborough University), with representatives from:

Sport England

National Playing Fields Association [Withdrew from the Steering Group on 6
December 2002.]

Central Council of Physical Recreation

Local Government Association

Office of the Deputy Prime Minister.
The structure of the guide
1.10
Following this introduction, the guide continues with five clear sections:
2: The need to improve and protect the provision for pitch sports
A summary of pressures, key legislation and policies, national trends in pitch
sports and the new social policy agenda.
3: A step-by-step guide to the Playing Pitch Model
How to process the data. A worked example is included.
4: More detailed guidance
An overview and commentary on undertaking the data collection (teams and
pitch providers), quality assessments, pitch capacity.
5: Turning your assessment into your strategy
Developing local standards and policies
6:
Action and review
Guidance on developing an action plan and future monitoring/review.
Page 4
SECTION 2:
THE NEED TO IMPROVE AND PROTECT
THE PROVISION FOR PITCH SPORTS
TOWARDS A LEVEL PLAYING FIELD
2: THE NEED TO IMPROVE AND PROTECT PROVISION FOR PITCH SPORTS
2
The need to improve and protect the provision for pitch sports
2.1
There is widespread agreement that the provision for pitch sports in England needs to
be improved and protected. The exact number of pitches being lost to development or
neglect is unclear but a Playing Fields Monitoring Group has recently been
established by the Department for Culture, Media and Sport (DCMS) to collate
information with regard to planning applications that affect playing pitch provision.
(See http://www.culture.gov.uk/sport for its latest report.)
2.2
Playing pitches are important as recreational and amenity features and provide open
space in both urban and rural landscapes. Their development for purposes other than
recreation has serious repercussions, not only through the reduction of leisure
facilities and the resulting increase in pressure on those remaining, but also in the
visual impact created by loss of open space. The importance of pitches is
demonstrated by Sport England’s role as a statutory consultee on proposals for
development that affect:

playing fields

land used as playing fields at any time in the last five years, which remains
undeveloped

land that is identified for use as a playing field in a development plan.
As a result:
‘Where the English Sports Council [now Sport England] has objected to a planning
application, either because of the existing or resulting deficiency in local provision of
playing fields for the wider community or where alternative provision proposed would
not be equivalent in terms of quantity, quality or accessibility, but the local planning
authority proposes to grant permission, the Direction requires the local planning
authority to notify the Secretary of State for the Environment, Transport and the
Regions so that he may decide whether to intervene or leave the matter for the local
planning authority to decide.’
Town and Country Planning (Playing Fields) Direction 1998, paragraph 5, page 1
Pressures on playing fields
2.3
2.4
The 1991 Playing Pitch Strategy (Sports Council, CCPR and NPFA) highlighted that
playing pitches were being lost for a variety of reasons, including:

legislative change

pressures on local authority finances

increasing pressure for land resource.
A decade later, there continues to be pressure on pitches (demonstrated in Table 2.1
overleaf, which provides a further breakdown of the DCMS data). As shown, Sport
England was consulted on over 900 applications in 2000-2001, a significant increase
on the previous year.
TOWARDS A LEVEL PLAYING FIELD
2: THE NEED TO IMPROVE AND PROTECT PROVISION FOR PITCH SPORTS
Table 2.1 Statutory consultations with Sport England on planning applications
concerning playing fields
Region
Number of consultations received
1999-2000
2000-2001
East
38
93
East Midlands
33
75
London
31
37
North
39
36
North West
95
132
South East
152
226
South West
57
43
West Midlands
111
162
Yorkshire
101
98
TOWARDS A LEVEL PLAYING FIELD
2: THE NEED TO IMPROVE AND PROTECT PROVISION FOR PITCH SPORTS
Key national legislation, policy initiatives, strategies and plans
2.5
When developing a playing pitch strategy, it is important to be aware of the content
and implications of national legislative and guidance documents. There is currently a
considerable amount of policy, guidance and regulations of relevance to the planning
and management of playing pitches (see box below).
2.6
A brief description of all relevant documents and web-links is included in Appendix A.
All playing pitch strategies should follow the principles and policies set out in these
documents.
Key documents
(in reverse chronological order)
Assessing Needs and Opportunities: A Companion Guide to PPG17, ODPM ( 2002)
Planning Policy Guidance (PPG) 17: Planning for Open Space, Sport and Recreation, ODPM ( 2002)
Green Spaces, Better Places – final report of the Urban Green Spaces Taskforce, DTLR ( 2002)
The Protection of School Playing Fields and Land for City Academies, DfES ( 2001)
The Six Acre Standard, NPFA ( 2001)
A Sporting Future for All, DCMS (2000)
The Government’s Plan for Sport, DCMS (2001)
Planning Bulletin 8: Playing Fields for Sport Revisited, Sport England (2000)
The Town and Country Planning (Development Plans and Consultation) (Departures) Directions 1999,
DETR (1999)
Planning Policies for Sport: A land use planning policy statement on behalf of sport, Sport England (1999)
Planning Across Boundaries: Guidance on local strategies for the development of sport, Sport England (1999)
The Town and Country Planning (Playing Fields) (England) Direction 1998, DETR (1998)
A Sporting Future for the Playing Fields of England: Policy on planning applications for development on playing
fields, English Sports Council (1997)
Statutory Instrument 1996 No 1817: The Town and Country Planning (General Development Procedure)
(Amendment) Order 1996, HMSO (1996)
TOWARDS A LEVEL PLAYING FIELD
2: THE NEED TO IMPROVE AND PROTECT PROVISION FOR PITCH SPORTS
National trends in pitch sports
In addition to the changing national policy context, trends in pitch sports have also
changed considerably over the past decade. Key national statistics, trends, issues
and implications for future demand for playing pitches are outlined in Table 2.2.
Table 2.2 National trends in pitch sports
Overall
Participation
Football
Over 2 million
regular players
(adult and
youth)
Cricket
660,000 regular
players (adult
and youth)
Circa 250,000
regular players
(adult and
youth)
Rugby union
2.7
Key
facts
Key
Trends
Out of school, football has
experienced the biggest
growth in ‘frequent’
participation from 37% in
1994 to 43% in 19991.
Female soccer is now
starting to grow nationally
at a rapid pace2.
More children are
playing due to
popularity of minisoccer (30% increase
over last three years).
More women are
playing football.
A 300-400% growth in
informal five-a-side
football3.
More midweek fixtures,
more non-grass
pitches.
The FA forecasts the
number of youth players to
increase by 10% over next
five years.
More pitches will be
needed.
Kwik cricket – a game
devised for children – is
played by 1.1 million pupils
in 90% of the country’s
primary schools. Of these,
434,000 are girls4.
The number of women’s
clubs increased from 4,200
in 1997 to 7,611 in 20015.
Increased participation
by young people.
The number of adult males
playing rugby has
decreased by 12% over
last five years6.
Decline in the men’s
game is recognised but
many initiatives in place
to increase
opportunities and
promote the sport.
Increase in participation
by women.
Women’s participation has
increased significantly in
recent years, from
approximately 2,000
players in 1988 to 8,000 in
19987.
The number of mini teams
has increased by 4% over
last five years to 5,188.
Increased participation
by women.
More young children
playing rugby.
Implication for pitches
More mini-soccer-sized
pitches needed and
therefore more junior
pitches in future (due to
ripple effect).
Improved quality of
ancillary facilities and in
particular dedicated
changing facilities.
Players defecting to five-aside, therefore additional
floodlit synthetic turf
pitches/MUGAs may be
required.
The vast number of
children playing minisoccer will result in the
need for more junior
pitches over next five
years.
More pitches used for kwik
cricket and new mobile flicx
pitches to be introduced in
schools.
Improved access needed
to quality training pitches
and improved ancillary
facilities required in smaller
clubs.
Need to safeguard rugby
pitches in anticipation of
recovery in participation.
Improved clubhouse
facilities and increased
access to pitches.
More dedicated mini-rugby
pitches and ‘child-friendly’
changing facilities will be
required.
TOWARDS A LEVEL PLAYING FIELD
Overall
Participation
Hockey
100,000 regular
players (adult
and youth)
2.8
Lacrosse
43,000 regular
players (adult
and youth)
Softball
9,500 regular
players (adult
and youth)
American football
Rugby league
45,000 regular
players (adult
and youth)
3,500 regular
players (adult
and youth)
2: THE NEED TO IMPROVE AND PROTECT PROVISION FOR PITCH SPORTS
Key
facts
Key
Trends
Implication for pitches
Hockey is one of the top
five most popular games in
school, although
participation declined from
20% in 1994 to 17% in
1999 and the number of
children citing it as
enjoyable dropped from
13% to 10% over the same
period1.
Slight decline in youth
participation. Emphasis
is therefore placed on
promoting hockey
towards young people
to secure the future of
the game. However,
many clubs still do not
have access to
synthetic turf pitches
(STPs).
Continuing requirement for
STPs and improved
clubhouse facilities to meet
league requirements and to
encourage club/team
formation.
Grass pitches still an
important component of the
game.
At present there are 320
clubs for 12-18 year olds in
England. This number is
thought to be down on
1991. Precise data on
trends and senior rugby is
currently being collected
and will be available in
20038.
Women’s participation has
increased in recent years,
although not to the same
extent as rugby union8.
Decline in men’s game.
Again, initiatives are set
in place to increase
opportunities and
promote the sport.
Need to safeguard rugby
pitches in anticipation of
recovery in participation.
Increase in participation
by women.
Improved clubhouse
facilities and increased
access to pitches.
Participation figures grew
by 8,500 from 1996 to
20009.
General growth
although young people
are targeted to secure
the future of the sport.
Localised demand for
pitches.
No growth recently after
two decades of increasing
numbers (20 teams in 1984
to 500 teams in 200110).
Currently no growth but
initiatives in place to
increase participation
by young people and
adults.
Increased access to
pitches may be required.
The number of players is
expected to increase by
23% between 2001 and
2005.
It is now promoted in
universities but overall in
the adult game there has
been a decline in
popularity, falling from the
high of 10 years ago11.
Low growth generally
but emphasis is placed
on youth development
for long-term growth.
Localised demand for
pitches.
While the above provides a useful indication of the changing nature of pitch sports, it
must be acknowledged that trends vary across the country. As a result, consultation
with national governing body representatives at a county or regional level – eg
county FAs, RFU constituent bodies – is encouraged.
Data sources:
1. Young People and Sport, Sport England (1999)
2. Women and Football – A Strategy Document, Football Association (1996)
3. Data provided by FA (unpublished)
4. A Cricketing Future for All - the National Strategy for Cricket, England and Wales Cricket Board (2001)
5. Data provided by the England and Wales Cricket Board (unpublished)
6. MORI Nationwide Consultation for the RFU, MORI (1998)
7. Running Rugby - Rugby Football Union (1999)
8. Data provided by BARLA (unpublished)
9. English Lacrosse Association Four-Year Plan 2000-2004, English Lacrosse Association (2000)
10. Data provided by Baseball-Softball UK (unpublished)
11. Data provided by the British American Football Association (unpublished)
TOWARDS A LEVEL PLAYING FIELD
2: THE NEED TO IMPROVE AND PROTECT PROVISION FOR PITCH SPORTS
A new social policy agenda
2.9
Since its election in May 1997 the Government has introduced a new social policy
agenda that has significant implications for those concerned with the promotion and
development of sporting opportunities in England. The themes running through the
Government’s social policy are consistent with those that have underpinned sports
development philosophy for many years. These include:
(a) social inclusion
(b) community involvement
(c) community safety
(d) lifelong learning
(e) healthy living
(f) local access and sustainable
development.
(a) Social inclusion
2.10
Pitch sports can be used as a tool for
improving social inclusion.

They appeal to individuals’ interests
and develop their potential and selfconfidence.

They relate to community identity
and encourage collective effort.

They help build positive links with
the wider community.
(b) Community involvement
2.11
Through creating a community identity,
sports teams can enhance the social
fabric of an area. Success in local
leagues and competitions can also
create local/regional pride.
CASE STUDY:
Ivybridge Estate, Hounslow
Hounslow Borough Community Recreation Outreach Team,
together with Housing Management and the Youth Service,
devised a programme of activities to benefit all young people on
the Ivybridge Estate. After consulting the youngsters on the
estate, it was clear that football coaching sessions would be
popular with both boys and girls.
An unexpected bonus of the sessions was the high level of skills
and ability shown by the youngsters. This has resulted in many
of the boys being referred to Brentford FC School of Excellence.
Two girls have also gone on to join women’s football teams and
other young people have become involved in coaching and
refereeing. Another benefit was that young people felt included in
life on the estate. They have since participated in the Tenants’
Association and have been involved in planning a new
community centre for the estate.
Source: Policy Action Team 10: Arts and Sport, Social Exclusion Unit (2000)
CASE STUDY:
Reczones Project, Bolton
This diversionary project, based on reclamation of derelict
land for general sporting activities, was designed to address
anti-social behaviour and prevent crime. Although a
performance evaluation is yet to be undertaken, the project
has been deemed to be a success in terms of the above
aims and also in terms of enhancing the physical
environment of the area.
Source: Realising the Potential of Cultural Services:
The Case for Sport, Local Government Association (2001)
(c) Community safety
2.12
Research evidence to support the effectiveness of sport in reducing criminality
among young people is limited by a lack of high-quality systematic evaluation.
However, strong experimental evidence exists to show that sport has a part to play in
preventing crime. Indirectly sport can have an impact by providing challenge and
adventure, and giving meaning and a sense of purpose to young people’s lives
where previously there was a vacuum.
TOWARDS A LEVEL PLAYING FIELD
2: THE NEED TO IMPROVE AND PROTECT PROVISION FOR PITCH SPORTS
(d) Lifelong learning
2.13
Many important social attributes can be learnt through pitch sports. Young people
can develop a range of skills and attributes ranging from risk-taking through to social
and behavioural skills.
(e) Healthy living
2.14
The health benefits of participation in sport are well documented. Through
participation in activities such as mini-soccer and tag rugby, many children begin to
enjoy an active lifestyle that can stay with them through life.
(f) Local access and sustainable development
2.15
Centralising several playing fields on a single municipal site has major effects on
accessibility, particularly for young people and those without a car. Local community
pitches are still needed to meet local need.
SECTION 3:
A STEP-BY-STEP GUIDE TO
THE PLAYING PITCH MODEL
TOWARDS A LEVEL PLAYING FIELD
3: A STEP-BY-STEP GUIDE TO THE PLAYING PITCH MODEL
3
A step-by-step guide to the Playing Pitch Model
3.1
This section is a step-by-step guide to the Playing Pitch Model (PPM), which is an
eight-stage process for producing a playing pitch strategy. It gives users a clear
indication of the process and the information required. Further guidance is available
in Section 4, to which this method statement is cross-referred.
3.2
The eight stages of the PPM are:
Figure 3.1
The Playing Pitch Model
Stage 1
Identifying teams/team equivalents
(see Section 4, D1)
Stage 2
Calculating home games per team per week
Stage 3
Stage 4
Stage 5
Assessing total home games per week
Establishing temporal demand for games
Defining pitches used/required on each day
Stage 6
Establishing pitches available
(see Section 4, E1)
Stage 7
Stage 8
Assessing the findings
Identifying policy options and solutions
(see also Section 5)
Page 11
TOWARDS A LEVEL PLAYING FIELD
3: A STEP-BY-STEP GUIDE TO THE PLAYING PITCH MODEL
NB It is important to note that the PPM should be applied to each sport (see Section
4, B4) and to the relevant geographical area (see Section 4, B5).
3.3
The PPM is used in this guide as a numerical model. There are three main ways in
which the model is used:

to reflect the existing situation, using data on existing teams and pitches

to test the adequacy of current provision by manipulating the variables in the
model

to predict future requirements for pitches, by incorporating planned pitches and
projected changes in population.
Page 12
TOWARDS A LEVEL PLAYING FIELD
Stage 1
3: A STEP-BY-STEP GUIDE TO THE PLAYING PITCH MODEL
Identifying teams/team equivalents
[For more information see Section 4 D1: Defining a team; D2: Team generation rates; D3: Latent demand; D4:
Displaced demand; D5: Future demand.]
3.4
The basic task here is to count all pitch sport teams in the study area (see D1 for an
explanation of ‘team equivalents’).
3.5
Information required for modelling the existing situation:
 number of teams/team equivalents currently playing in the study area. This should
include all teams/team equivalents regardless of whether some/all of their players
reside outside the study area boundaries. They should be recorded according to:
3.6
-
number of adult/senior teams
-
number of male/female teams
-
number of junior teams
-
number of mini-teams.
Information required for assessing the adequacy of current provision:
 number of teams/team equivalents with players resident in the study area but
which play their home games elsewhere
 further consideration of number of teams/team equivalents playing in the study
area but with some or all players living outside
 assessment of latent demand/‘virtual’ teams using team generation rates or TGRs
(see Section 4 D2).
3.7
Information required for predicting the future situation:
 forecast changes in population (including those arising from new housing areas)
 prediction of future number of teams/team equivalents, based on existing and
predicted TGRs
 numerical targets in sports development plans.
Stage 2
Calculating home games per team per week
[For more information see Section 4 D6: Pattern of play.]
3.8
This stage calculates the total number of home games played by each team per
week in the study area.
3.9
This variable is calculated in two stages:
(a) Total number of home games played in a season by all teams/team equivalents 
Number of weeks in a season
= Average number of home games per week
(b) Average number of home games per week  Total number of teams/team equivalents
= Average number of home games per team per week
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3.10
In the absence of this information, assumptions can be made, such as a value of 0.5
for winter sports (alternate home and away fixtures) and 0.6–0.8 for cricket. (Cricket
teams are inclined to play more than one home game every two weeks because of
midweek leagues.) However, using these standard factors can mask problems in
terms of cancellations and postponements. They should only be used if local data is
not available.
3.11
Information required for modelling the existing situation:
3.12
3.13

number of home games played in a season by each team/team equivalent. (If a
pitch is used for mini-soccer/rugby, by schools or for training sessions, it will be
necessary to make estimates of the number of ‘match/game equivalent’ periods
on a similar basis to that used for team equivalents)

number of weeks of the playing season

number of teams.
Information required for assessing the adequacy of existing provision (in addition to
the above):

pitches used for home matches if different from a team’s main ‘home pitch’

breakdown of home games played (league, cup, friendly) – to help in appraising
policy options

factors which may be constraining the number of home matches (eg poor pitch
capacity, booking policies)

whether the number of home games played each week is an accurate reflection
of what teams actually want.
Information required for predicting the future situation:

predicted changes in the number and type of matches played, for example:
-
the potential for more midweek play on floodlit grass pitches (although this
may impact on pitch quality)
-
future competitive structures for the sports
-
shifts in participation trends.
Stage 3
Assessing total home games per week (Stage 1 x Stage 2)
3.14
This is not an independent variable. By multiplying Stage 1 by Stage 2, the total
home games played each week in the study area can be assessed.
3.15
It may already be known from Stage 2 if a club survey identifying matches has been
carried out. The figure indicates how many games have to be accommodated in the
study area in an average week.
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TOWARDS A LEVEL PLAYING FIELD
Stage 4
3: A STEP-BY-STEP GUIDE TO THE PLAYING PITCH MODEL
Establishing temporal demand for games
[For more information see Section 4 D6: Pattern of play.]
3.16
This stage determines the proportion of home games played on each day of the
week.
3.17
The temporal demand for games is the proportion of matches that are played each
day. This must be assessed on a local basis since different areas of the country may
show marked variations. Temporal demand is required to show:
3.18

time of peak demand

use of pitch throughout the week to assist in calculations of capacity.
Information required for modelling the existing situation:

3.19
3.20
percentage of matches played each day on each type of pitch (eg adult, junior or
mini pitches).
Information required for assessing the adequacy of existing provision:

factors which may be influencing the current pattern of play, eg league structure,
kick-off times

whether the observed existing pattern of play accurately reflects the real wishes
of participants.
Information required for predicting the future situation:

predicted changes in the pattern of play/temporal demand, similar to those for
latent demand, for example:
-
the potential for more midweek play
-
future league/cup competitions for the sports
-
shifts in participation trends.
Stage 5
3.21
Defining pitches used/required on each day (Stage 3 x Stage 4)
This is not an independent variable. It is a product of Stages 3 and 4. The resulting
figures indicate the number of pitches currently used on/at each day/time during the
week.
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TOWARDS A LEVEL PLAYING FIELD
Stage 6
3: A STEP-BY-STEP GUIDE TO THE PLAYING PITCH MODEL
Establishing pitches available
[For more information see Section 4 E1: Defining a pitch; E2: Role of STPs and MUGAs; E3: Availability and
accessibility; E4: Pitch quality; E5: Pitch capacity; E7: Hierarchy of provision.]
3.22
The basic task here is to count all pitches that are secured for use by the community
in the study area. It is an audit of pitches.
3.23
This requires a full inventory of pitches in the study area, their availability and their
use. It is very important that this records as accurately as possible precise sizes and
pitch conditions. This is the stage at which weightings can be added to reflect the
capacity of existing pitches (see E5).
3.24
Information required for modelling the existing situation:

3.25
3.26
numbers and types of grass and artificial pitches currently in use.
Information required for assessing the adequacy of existing provision:

potential for transferring pitches from one type of use to another, either on a
temporary or permanent basis, eg football to rugby, adult pitches to mini-soccer
pitches

availability and accessibility of existing pitches

pitch quality and capacity. In the absence of local pitch capacity data, an average
figure of two games per week should be assumed.
Information required for predicting the future situation, in addition to the above:

land available for development as new pitches

changes in governing body rules to allow use of artificial surfaces, eg for football
matches

potential for improvements to existing pitches’ quality and capacity (including
ancillary provision)

possibility of changes to programming of matches/pitch use

development of a hierarchy of provision.
Stage 7
3.27
Assessing the findings (Stage 6 – Stage 5)
This compares the number of pitches required on each day (Stage 5) with the
number of pitches available (Stage 6). This will reveal whether there are spare or
underused pitches, excess demand or if supply matches demand.
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Stage 8
3: A STEP-BY-STEP GUIDE TO THE PLAYING PITCH MODEL
Identifying policy options and solutions
3.28
The eighth and final stage of the process deals with policy options and solutions.
3.29
The identification of issues when modelling the existing situation will serve to identify
possible policy options that could be implemented when analysing the adequacy of
current provision and future requirements.
3.30
For this stage it is necessary to have wide consultations with other bodies and
individuals such as planning, leisure and recreation (sport, play and parks),
education and youth service, clubs, national governing body representatives and
local SDOs.
3.31
Some issues to consider:
 current and potential capacity
 key sites for multi-use or sport-specific outdoor use
 geographical spread across the district
 funding
 needs of target groups
 provision, upgrading and maintenance of facilities
 drainage
 role of artificial surfaces
 quality of pitches and ancillary facilities
 recommendations for standards of provision
 community use of education sites
 future of privately owned sites.
3.32
Policy options are discussed in further detail in Section 5.
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Worked example
3.33
To demonstrate the calculation stages a worked example is shown below. All data
are fictitious. The Playing Pitch Calculator in the Electronic Toolkit will perform these
calculations.
An assessment of football provision in ABC District Council area
Sub-area ‘Rural North’: the current situation
Stage 1: Identifying teams/team equivalents
Adult teams
Junior teams
Mini teams
Total teams
To assess the adequacy of current provision,
add teams travelling outside study area/‘virtual’
teams, etc.
74
40
10
124
To predict the future, future TGRs should be
calculated, and targets from sports
development plans applied.
Stage 2: Home games per team per week
The exact figure can be calculated if data is
collected on the number of home matches
played by all teams in the study area.
= 0.5
(based on principle of one week home,
one week away)
Stage 3: Total home games per week
Adult
Junior
Mini
Total
(74 x 0.5)
(40 x 0.5)
(10 x 0.5)
This is calculated by multiplying Stage 1 by
Stage 2.
37
20
5
62
Stage 4: Temporal demand for games
Adult
Junior
Mini
Sat am
Sat pm
Sun am
Sun pm
40%
0%
0%
10%
0%
0%
40%
60%
100%
10%
40%
0%
To assess the adequacy of current
provision, factors that influence the
current pattern of play need to be
considered, eg league structure/
kick-off times.
To predict the future, predicted
changes in the pattern of play need
to be considered, eg the potential
for more midweek games, future
competitions, shifts in participation
trends, etc.
Stage 5: Pitches required to meet demand on peak days
Adult
Junior
Mini
Sat am
Sat pm
Sun am
Sun pm
14.8
0
0
3.7
0
0
14.8
12.0
5.0
3.7
8.0
0
Carry the peak day data through to
Stage 7.
Stage 6: Community pitches available to meet demand
Adult
Junior
Mini
This is calculated by multiplying
Stage 3 by Stage 4.
LA
owned
LEA
owned
Privately
owned
Total
11
4
5
20
2
4
3
9
3
0
0
3
16
8
8
32
To assess the adequacy of current
provision, it is at this stage that
weightings can be added to reflect
the capacity/availability of existing
pitches.
To predict the future, issues such
as land available for the
development of new pitches,
changes in NGB rules, potential
improvements to quality/capacity
should be considered.
Take total pitches through to
Stage 7.
Stage 7: Under-use or shortfall of pitches
Total pitches Peak demand Shortfall/Under-use
Adult
16
14.8
+1.2
This is calculated by subtracting
Junior
8
12.0
-4.0
Stage 5 (peak day demand) from
Stage 6 (total pitches available).
Mini
8
5.0
+3.0
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SECTION 4:
MORE DETAILED GUIDANCE
TOWARDS A LEVEL PLAYING FIELD
4: MORE DETAILED GUIDANCE
4
More detailed guidance
4.1
The basic stages in producing a playing pitch strategy are illustrated in Figure 4.1
below. The stages are examined in more detail in the rest of this section.
Figure 4.1 Flowchart to illustrate the key stages of producing a playing pitch
strategy
(see B1)
Establish Steering Group
(see B3, B4, B5, B6)
Define – objectives, study area/sub-areas, sports to be included,
timescale
Appoint project team
Produce audit of teams and pitches – surveys, consultation, desk
research
(see C1, C2)
(see Section 3)
The Playing Pitch Model (8 stages)
(see Section 5)
Formulate policy and strategy for the future
(see Section 6)
Produce action plan
(see Section 6)
Monitor and review
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Introduction
This section comprises five sub-sections:
A:
Background to the revised methodology
A1: 1991 playing pitch methodology
A2: Revised methodology
B:
Defining the scope and purpose of the study
B1: Managing the project
B2: Integration with other open space/sports strategies
B3: Setting out the objectives for the study
B4: Sports to include
B5: Study area/sub-areas
B6: Time required and time of year
C:
Where to get the information
C1: Demand information
C2: Supply information
D:
Analysing demand
D1: Defining a team
D2: Team generation rates
D3: Latent demand
D4: Displaced demand
D5: Future demand
D6: Pattern of play
E:
Analysing supply
E1: Defining a pitch
E2: Role of synthetic turf pitches, MUGAs and specialist five-a-side centres
E3: Availability and accessibility
E4: Pitch quality
E5: Pitch capacity
E6: Impact of training and informal play
E7: Hierarchy of provision
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A: Background to the revised methodology
A1: 1991 playing pitch methodology
4.2
Conventional and widely recognised standards have used land area per head of
population as an indicator of adequacy of provision. The 1991 playing pitch
methodology was ground-breaking as it moved away from the standards approach
and examined the number and characteristics of teams demanding facilities and
pitches available to meet that demand.
4.3
Taking each sport separately, the 1991 methodology established a demand equation
which started with the number of teams to be accommodated in an area, considered
the frequency of play and the days of the week on which demand occurs, and from
these derived a statement of the number of pitches required. The methodology
compared the number of teams requiring facilities with the pitches available to meet
that demand and enabled a tangible measure of the adequacy of existing supply to
be identified. Problems and issues were identified and, from these, policy options
and solutions could be explored.
4.4
The methodology could best be described as an analytical framework; as such it was
perfectly possible, indeed desirable, for it to be modified in the light of local
circumstances in order to reflect reality as closely as possible. Precise details and
inputs could vary according to whether the method was being used to:
4.5

model an existing situation – a statement of what was actually happening, to
reveal problems and issues

analyse the adequacy of current provision – data could be varied to take account
of known problems in the system

predict a future situation – predictions could be made on a short or long-term
basis to examine the impact of known changes or to test hypotheses.
However, there have been changes and developments since the methodology was
produced, particularly relating to:
 trends in participation within the pitch sports
 sports development initiatives (including the introduction of new small-sided
games)
 the general understanding, appreciation and perception of land in playing field use
and its relation to other land uses.
4.6
It is helpful to expand on this last point. ‘Open space’ means different things to
different people. For example, a sportsperson may think of a swathe of open
parkland with changing rooms and floodlights. A child’s perception might be ‘the park
and swings’, and a place to run around and make a lot of noise. For the house buyer
the term can often mean ‘long-term peace and freedom from further development’.
All these perceptions are in marked contrast to each other and can sometimes
conflict. It is therefore important that local planning and management of open space
reflects such disparate needs and characteristics. In essence, the planning and
management of playing pitches is only one part of a wider issue of how best to
conserve a finite open space resource for a diverse and sometimes conflicting range
of needs.
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A2: Revised methodology
4.7
The revised methodology has been developed in line with the above and the
feedback obtained from widespread consultation on the 1991 methodology. The
changes proposed to enhance the methodology include:

a more holistic view of pitch provision as one element of open space

the concept of ‘team equivalents’ and ‘match equivalents’, to reflect the
requirements of the small-sided games

the refinement of team generation rates

the revised definition of a ‘pitch’

the refined quantitative audits of pitches by the use of multiplication factors for:

-
availability/accessibility
-
quality (to include the importance of ancillary provision at pitch sites as well
as pitches themselves)
-
carrying capacity
a revision of the role of synthetic turf pitches (STPs) and multi-use games areas
(MUGAs).
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B: Defining the scope and purpose of the study
4.8
There are a number of key factors that local authorities need to consider when they
are defining the scope of their playing pitch strategy. These will also relate to the
purpose of the strategy:

managing the project

integration with other open space/sports strategies

setting out the objectives for the study

sports to include

the study area/sub-areas

the time required and time of year.
B1: Managing the project
4.9
4.10
Given the diverse range of professional interest in the playing pitch strategy, it is
recommended that the study is overseen by a Steering Group. Its composition will
reflect the scope of the study, the catchment area involved, the internal structure of
the commissioning body and the timetable. The Steering Group might include:

local authority leisure officers

local authority planning officers

Sport England

local authority parks officers/personnel responsible for management and
maintenance of local authority sites

local authority sports development officers

local education authority officers concerned with facility provision on school sites

representatives of other agencies/organisations funding the strategy.
A ‘second tier’ of people should be consulted by the Steering Group. This might
include:

county council sports development officers

governing body representatives (eg the FA’s regional facility development
managers, the RFU’s rugby development managers, the EHA’s regional
development managers and the ECB’s county cricket development officers)

local strategic partnerships (eg the FA’s local football partnerships)

local authority special projects officers or others with an overview of
funding/financing sources
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
4: MORE DETAILED GUIDANCE
local interest groups (eg local sports council, regional federations and other
representative sports organisations).
4.11 The Steering Group should meet at least four times during the strategy preparation
process:
4.12
4.13

at the outset, to agree the objectives and prepare the brief

shortly after the commissioning of the strategy

after the main data-gathering/research/survey phase when preliminary findings
are available and main issues have been identified

at the presentation of the draft report.
The first tasks of the Steering Group will be to:

determine whether to appoint consultants to undertake the task or use in-house
resources (see Appendix B for a model Consultants’ Brief for a Playing Pitch
Strategy)

establish the purpose and outputs from the study

establish the accuracy of existing information held by the authority and others

provide lists of people who should be advised or consulted about the study.
It will also be important for the Steering Group to give early attention to certain other
matters that may influence the way the study is conducted, such as:

What is the availability and detail of local population estimates and projections?
Will existing information be sufficient to develop the strategy in appropriate detail,
or will additional research need to be conducted?

What (if any) will be the appropriate sub-areas for the strategy/study (see B5)?

What will be the desired time horizon for the strategy? For example, should it be
tailored to the same horizon as the local development plan?

Does the development of the strategy need to link into the local authority
committee cycle and, if so, how?
B2: Integration with other open space/sports strategies
4.14
It is important that a playing pitch strategy is not undertaken in isolation, but is linked
with wider strategies for the future provision and maintenance of open space and
outdoor sports facilities. Formal sport is just one use of open space and, ideally, an
integrated approach should be adopted which links a study of the formal
requirements for playing pitches into other informal uses of open space. Appraising
pitch sport provision in this way is likely to be of maximum benefit when it is closely
allied to studies relating to:

the overall stock of open space (including amenity open space, children’s play
areas and informal open space)
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4.15
4: MORE DETAILED GUIDANCE

other facilities for pitch sports (eg indoor provision, artificial turf pitches, multi-use
games areas and specialist indoor and outdoor facilities)

other outdoor sports facilities, such as bowling greens and tennis courts.
Informal facilities such as kick-about areas are an important part in the local
hierarchy of provision. Their provision should not therefore be considered in isolation
from that of formal facilities. This further emphasises the need to avoid considering
playing pitches in isolation from other forms of open space.
B3: Setting out the objectives for the study
4.16
In addition to linking with work on open space assessments, the main objectives of
the playing pitch strategy should relate to the benefits set out in paragraph 1.4. For
example, objectives might include:

to provide a carefully quantified and documented assessment of current and
future needs for playing pitches

to provide information to assist performance management, Best Value reviews
and asset management

to provide information to underpin:
-
the protection, enhancement and improvement of the existing pitch stock
-
improvements in community access to educational and non-local authority
pitches
-
the development and creation of new pitches to meet identified deficiencies

to enable local standards of provision to be developed to ensure the adequate
provision of new pitches in relation to new housing developments

to provide a framework for delivering government policies for social inclusion,
environmental protection, community involvement and healthy living

to provide good-quality information and evidence of need for funding bids for new
and improved provision

to provide the context for sports development of pitch sports which aims to
develop the range of opportunities available.
B4: Sports to include
4.17
A playing pitch strategy can be developed for all team sports requiring grass pitches
for play (eg football, rugby union, rugby league, cricket, hockey, lacrosse, American
football, softball, rounders). However, the following should be borne in mind:

The assessment should take into account the distribution of artificial surfaces for
both training and competition. This is particularly relevant for hockey, which is
now almost exclusively catered for by synthetic turf pitches (STPs), but is also
applicable to football and cricket (artificial wickets) [see E2].

For many sports other than cricket and football, the number of pitches is often so
small that assessment can be undertaken on a club-specific basis.
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B5: Study area/sub-areas
4.18
Traditionally, pitch studies have tended to be undertaken for one local authority area,
with reference made to cross-boundary movements of players and teams. However,
the way that local pitch sports are organised often bears little relationship to local
authority boundaries. It therefore makes sense for local authorities to cooperate
when determining the catchment areas and study boundaries.
4.19
In agreeing the study boundary, the following should be taken into account:

the structure/characteristics of the local authority region (urban, rural, mix of the
two)

the structure of areas covered by strategic planning documents

the league structures and catchment areas of individual clubs

the need for sub-areas to address specific needs and issues relating to towns or
community areas and their catchments

known patterns of play and the extent to which clubs/teams travel into and out of
the study area.
4.20
As a minimum, the study area should equate with a local authority administrative
area. It is recommended that wider than local authority areas are used where
feasible and where the authorities have interrelated and/or similar issues to address.
4.21
If a playing pitch strategy only
relates to a whole local authority
area, it will not be clear from the
results where the shortfalls and
surpluses occur. The practical
solution to this is to gather and
process data at the ward or parish
level, and then to amalgamate
those wards into a number of subareas that share similar
characteristics. The locations of
shortfalls and surpluses can then
be more clearly identified.
Examples include:
 North Wiltshire District Council
used its ‘committee areas’.
 Mid Devon and West Devon
used their official ‘community
areas’.
CASE STUDY: Sub-areas in Colchester borough
A playing pitch strategy was undertaken for Colchester
Borough Council in 2000/2001. After calculating the eight
stages of the methodology, the following shortfalls/underused pitches were identified:
Adult football
Junior football
Cricket
Adult rugby
Junior rugby
Hockey
+33
-4
+4
+6
-3
+13
To give the above data more meaning, a basic amalgamation
of wards was undertaken to form three distinct sub-areas
(Urban Catchment Area, Northern Rural Area, Southern Rural
Area). Once the methodology was recalculated, more
meaningful results were revealed, eg the vast shortfall of
junior football pitches in the Urban area, which was masked in
the borough-wide analysis.
Adult football
Junior football
Cricket
Adult rugby
Junior rugby
Hockey
 The Royal Borough of Windsor
and Maidenhead used its main
urban centre (Maidenhead) and
the outlying rural areas (North and South).
Urban
Northern
Rural
Southern
Rural
+27
-21
+5
+5
-3
+13
+7
+2
+3
No data
No data
No data
+1
+6
-1
No data
No data
No data
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4: MORE DETAILED GUIDANCE
 Rural authorities have used parishes with the assumption that at least one pitch
should be provided in each.
4.22
The important point is that there must be a clear and justified rationale for defining
the sub-areas. It is rarely (if ever) appropriate to interpret the results of the PPM at
individual ward or parish level, because the catchment area and travel patterns of
individual teams are usually much larger than wards or parishes.
B6: Time required and time of year
4.23
A distinction is made between undertaking a study and developing a strategy, and
the inherent timescales involved. With regard to the first, a typical single district pitch
study (population of around 150,000 in the catchment area) will usually take around
four months to complete. Larger areas will require more time because of the greater
amount of data that needs to be collected. Even if basic data on pitch supply is
available, the research into demand is likely to take around 8–10 weeks.
4.24
A pitch study can be carried out at any time of year, but the most suitable time is the
beginning of the winter season (ie September–December/early January), when
winter pitches are marked out and visible (and pitch quality can be ascertained).
Most data collection focuses on the last complete season and at this time of year
both the last full winter season and the recently ended summer season will still be
fresh in everyone’s minds. A pitch study carried out between January and April is
likely to focus more on emerging issues in accommodating winter fixtures for that
current season and the forthcoming summer season. This is not a problem provided
data can be obtained on the number of matches played in the last full season.
4.25
Developing a good strategy may take significantly longer than the study, due to the
need to encourage support and ownership of the document. Up to six months,
therefore, should be allowed for the whole project.
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C: Where to get the information
4.26
This sub-section outlines the information required and where/how it can be sourced.
This has also been summarised in Table 4.1 Information sources.
C1: Demand information
4.27
The successful and accurate working of the methodology depends on obtaining as
accurate a tally as possible of the number of teams and other users of the pitches
and the existing pattern of play.
4.28
In the first instance, a direct count of teams can be made by using a number of
sources including:
4.29

governing body, county association handbooks and league handbooks

interviews with league secretaries

booking records for local authority, educational and other pitches (where
available – this will also supply information on patterns of play/temporal demand)

sports club directories

local press and telephone directories

local knowledge.
It is vital that there is dialogue with local clubs so that the strategy can fully reflect
local concerns and issues. A questionnaire or telephone survey with clubs can also
investigate elements relating to the supply of facilities as well as existing, latent and
future demand. For example:
Demand

membership, membership trends and number of teams per club

place of origin of team members

matches played per season (home and away)

length of season

duration and frequency of matches

number of postponements and cancellations last season

level of activity at existing facilities

preferred time of play

unmet demand

financial status (for predicting future numbers of clubs)

links with local schools and other users
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
4: MORE DETAILED GUIDANCE
sports development plans.
Supply
 details of home ground facilities (including size, ownership)
 use/location of indoor facilities and artificial surfaces
 quality of pitch provision
 quality of ancillary facilities at different venues
 facility constraints on membership and development.
NB An example club questionnaire can be found in the Electronic Toolkit.
Table 4.1 Information sources
Source of information
Sport’s governing body, county association
handbooks and league handbooks
Information required
Names and contact addresses for:
 adult/senior teams
 junior teams
 mini teams
based in both the local authority area and the
wider area, that play in local leagues.
Number of weeks of the playing season.
Predicted changes in the pattern of
play/temporal demand.
Predicted changes in the number and type of
matches played.
Potential for more midweek play.
Future league/cup competitions for the sports.
Shifts in participation trends.
Changes in governing body rules to allow use of
artificial surfaces, eg for football matches.
Specific local issues that affect teams, eg lack
of pitch availability in certain areas, pitch quality
issues, etc.
Interviews with league secretaries
As above.
Sports club directories
Names and contact addresses for:
 adult/senior teams
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 junior teams
 mini teams
based in both the local authority area and the
wider area, that play in local leagues.
Press and telephone directories
Names and contact addresses for:
 adult/senior teams
 junior teams
 mini teams
based in both the local authority area and the
wider area, that play in local leagues.
Local knowledge
Names and contact addresses for:
 adult/senior teams
 junior teams
 mini teams
based in both the local authority area and the
wider area, that play in local leagues.
Local authority booking records
Teams making bookings for local authority
owned/controlled playing pitches.
Availability and accessibility of existing pitches.
Latent demand – teams that have been turned
away.
Schools’ booking records
Community use of school playing pitches.
Questionnaire survey of clubs
Questionnaires should be sent to clubs
currently playing in the study area. This should
include all teams/team equivalents regardless of
whether some/all of their players reside out of
the study area boundaries.
Pitches used for home matches if different from
a team’s main ‘home pitch’.
Breakdown of home games played (league,
cup, friendly) to help in appraising policy
options.
Factors that may be constraining the number of
home matches, eg poor pitch capacity, booking
policies, etc.
Whether the number of home games played
each week is an accurate reflection of what
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teams actually want.
Percentage of matches played each day on
each type of pitch, eg adult, junior or mini
pitches.
Availability and accessibility of existing pitches.
Potential for improvements to existing pitches’
quality and capacity (including ancillary
provision).
Specific quality issues for pitches and changing
facilities.
Questionnaire survey of schools
Community use of school playing pitches.
Sports development officer
Numerical targets in sports development plans.
Identification of teams.
Identification of pitch issues.
Planning
Forecast changes in population (including those
arising from new housing areas).
Land available for development as new pitches.
In-house staff/consultant
Full inventory of the numbers and types of grass
and artificial pitches currently in use in the study
area, their availability and their use. This should
be recorded as accurately as possible with
precise sizes and pitch conditions.
Pitch quality and capacity.
Parks Department
Grounds maintenance records for individual
pitches in local authority ownership.
Availability and accessibility of existing pitches.
Potential for transferring pitches from one type
of use to another, either on a temporary or
permanent basis, eg football to rugby, adult
pitches to mini soccer pitches.
Potential for improvements to existing pitches’
quality and capacity (including ancillary
provision).
Education
As above.
Internet
Identification of teams.
Identification of leagues and fixtures.
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C2: Supply information
4.30
Further information will be required from the providers of playing pitches (town and
parish councils, schools, colleges, universities, private companies, the MoD and
neighbouring local authorities), including:
 type, size and number of pitches
 sports accommodated
 area covered by pitches and total area of the site
 condition and quality
 pitch capacity (an estimate of the number of games per week a pitch can
accommodate) [see E5]
 ownership and/or operator:
- public (local authority, town and parish councils)
- LEA and other educational (public/private schools, colleges and higher
education)
- other public sector (MoD, other government departments)
- voluntary provision (sports clubs, charitable bodies or community bodies)
- private/corporate provision
 availability on different days and at different times – this will be important in
assessing the supply of educational and institutional pitches for community use
 ancillary facilities – availability and quality of changing facilities and social
accommodation
 presence of floodlights
 land that could be brought into pitch use relatively quickly
 local plan and other proposals for new pitch land and new sports facility
development.
NB An example provider and school questionnaire can be found in the
Electronic Toolkit.
4.31
Other useful sources of information on pitches include:
 the recently completed Register of English Football Facilities (REFF) [data will be
held on its website: http://www.reff.org.uk]
 the Register of Recreational Land (available from Sport England’s regional
offices)
 the RFU’s Club Audit: September 2002. The results can be obtained by contacting
the relevant constituent body secretary. Contact details can be accessed from:
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http://www.rfu.com/clubs/index.cfm/fuseaction/memb.group_assosummary/asso_
select/0/grou_select/0/name_select/0.htm
 LEA/LA records (non-domestic rate register, property registers, booking records)
 schools’ asset management plans
 existing studies and strategies by local authorities, governing bodies (planning
documents, green space strategies)
 town and parish council records
 contract specifications for pitch maintenance
 league handbooks
 maps and aerial photographs (often available free of charge from web-based
mapping agencies).
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D: Analysing demand
D1: Defining a team
4.32
The methodology uses teams as the basic unit of demand. The study thus needs to
collect data on all known teams for each sport, whether league, friendly or casual,
senior or junior. Most teams will be obvious – 1st XI, 2nd XI, U16s – but the growth in
mini and small-sided games is now challenging, to some extent, the traditional
concepts of a ‘team’ and a ‘game’. Due to these varying uses, the methodology also
uses the concept of a ‘team equivalent’ or ‘unit of play’ to indicate discrete groups of
demand for a pitch. Team equivalents can be calculated on the basis of:
 number and ages of players (which affects wear and tear of the pitch)
 length of match/session
 area of play/size of pitch required.
4.33
4.34
The desirability of thinking in terms of ‘team equivalents’ becomes clear when
considering the following conundrums:

Mini-soccer involves short games with small teams of young players. It is
frequently played on specially marked adult pitches to allow more than one game
to be played at a time. Games are played one after the other, according to age.
Clearly, in determining the capacity of a playing pitch to accommodate games, it
would be wrong to equate one mini-soccer team with one adult football team. So
how can mini-soccer matches and teams be included in the assessment?

Sports training is an important component of demand for playing pitches.
However, training on grass pitches produces wear and tear and reduces the
capacity of pitches for competitive play. The needs of training should be reflected
in a playing pitch assessment. Therefore, how best can a training session be
reflected in the study for the purposes of assessing pitch capacity?

School pitches available to community teams will not only be used for pitch
sports, but also for school PE and ‘breaktime’ activity. Such activity will also
produce wear and tear and influence the capacity of pitches to accommodate
competitive games. How can this be reflected in a playing pitch assessment?
Table 4.2 seeks to overcome some of these issues by defining the ‘team equivalent’
for various forms of activity. In essence, it seeks to convert different types of activity
into an equivalent proportion of an adult team. The contents of the table will therefore
help to assess the relative impact of different types of activity on the supply of
pitches. It should also help to encourage a more sophisticated assessment of
demand based on the requirements of other activities beyond conventional
competitive matches involving adult teams.
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Table 4.2 Calculation of team equivalents
Type of players
PE lesson: 11–
16 year olds:
football/rugby
PE lesson: 7–11
year olds
28 mini-soccer
teams
30 midi/mini/tag
rugby teams
Football/rugby
training – adults
Junior cricket
training
Breaktime
activity
Length of
Area of play/size
match/session
of pitch
Assume 2
1 junior
hours
football/rugby pitch
Team equivalent
1 junior
football/rugby team
Assume 2
hours
15 minutes per
team/match
(14 matches)
1 junior
football/rugby pitch
4 matches
concurrently across
1 adult pitch
1 mini-soccer/minirugby team
1 adult football
team
10 minutes per
team/match
(15 matches)
Up to 2 hours
3 matches
concurrently across
1 adult pitch
1 adult
football/rugby pitch
1 cricket pitch
1 adult rugby team
Up to 2 hours
Up to 1 hour
1 junior or adult
football pitch
1 adult
football/rugby team
1 junior cricket
team
1 junior football
team
4.35
The above table provides a good starting point, but it is indicative only and may need
to be amended in the light of local information and/or circumstances.
4.36
The above conversion factors will only be relevant when pitches are shared for
different activities. For example, where pitches are only used for adult football, or
where mini-soccer is played on dedicated pitches, it will not be necessary to apply
these conversion factors.
4.37
Moreover, some teams (pub, club and works teams) may only play on an infrequent
basis and could not be said to function as a regular unit. In such cases, the total
number of such ‘casual games’ should be divided by the average ‘home games per
team per week’ variable (see Stage 2 of the Playing Pitch Model in Section 3) to
establish its equivalent in terms of number of teams.
D2: Team generation rates
4.38
Team generation rates (TGRs) indicate how many people in a specified age group
are required to generate one team. They are derived by dividing the appropriate
population age band in an area by the number of teams in that area in that age band.
Once the number of teams has been established, the TGR for each sport and age
group should be calculated to assist in modelling current adequacy and future
demand.
TGR calculations
TGR = population in age group  number of teams relevant to that age group
The following examples help clarify what TGRs mean.
If an average TGR for a particular sport is 1:500 then
1:100
1:1000
 high TGR  relatively low latent (unmet) demand
 low TGR  relatively high latent (unmet) demand
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4.39
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The use of TGRs can:
 allow benchmarking against other similar authorities (eg urban, rural, urban fringe)
 help monitor the success of sports development programmes (particularly with
respect to target groups)
 help predict future levels of demand.
4.40
Currently there are circa 160 playing pitch assessments or strategies that have been
undertaken throughout England. The majority of these include the calculation of
TGRs. While there is no formal benchmarking process for TGRs, these existing
studies can be used by authorities for informal benchmarking comparisons. A list of
TGRs extracted from playing pitch strategies produced over the last 10 years is
available on the Sport England website: http://www.sportengland.org
4.41
TGRs should be calculated for different age groups and different sub-divisions of
sports, as shown in Table 4.3.
Table 4.3 Sport sub-groups for TGR calculations
Sport sub-group
Football:
Mini-soccer (U7/U8/U9/U10s) –
mixed
Junior football – boys
Junior football – girls
Men’s football
Women’s football
Cricket:
Junior cricket – boys
Junior cricket – girls
Men’s cricket
Women’s cricket
Hockey:
Junior hockey – boys
Junior hockey – girls
Men’s hockey
Women’s hockey
Rugby union:
Mini-rugby – mixed
Junior rugby – boys
Junior rugby – girls
Men’s rugby
Women’s rugby
Rugby league:
Junior rugby – boys
Junior rugby – girls
Senior rugby – men
Senior rugby – women
Age group
6–9 year olds
10–15 year olds
10–15 year olds
16–45 year olds
16–45 year olds
11–17 year olds
11–17 year olds
18–55 year olds
18–55 year olds
11–15 year olds
11–15 year olds
16–45 year olds
16–45 year olds
8–12 year olds
13–17 year olds
16–17 year olds
18–45 year olds
18–45 year olds
13–17 year olds
16–17 year olds
18–45 year olds
18–45 year olds
NB Kwik cricket has been excluded from the above as it can be played on any surface.
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D3: Latent demand
4.42
In analysing the adequacy of current provision, latent demand should be considered.
This is demand that cannot be expressed because of lack of access to pitches or
other ancillary facilities. Factors to take into account when assessing latent demand
are outlined in Table 4.4.
Table 4.4 Factors influencing latent demand
Factor
How to take it into account
Current frustrated demand
Speak to league secretaries to gauge how many potential
teams are waiting for home pitches so that they can join a
league. These could be called ‘virtual’ teams.
The Sports Club Questionnaire (in the Electronic Toolkit) will
also highlight whether teams are currently playing in their
preferred location.
Compare with observed participation and team generation
rates in neighbouring local authorities.
Influence of sports
development initiatives*
Take into account any numerical targets set in local sports
development initiatives. Ensure that such targets are set and
monitored in future sports development strategies.
Quality of pitches/ancillary
facilities
Poor-quality facilities (identified through questionnaires/site
visits) may restrict new players from being attracted to sport
or result in poor retention levels.
National sporting success,
and its influence on
increasing participation*
Examine any long-term trend evidence that may exist (at the
national and local level) to assess the impact that national
sporting success has on increasing participation, as well as
the extent to which any increased levels are maintained.
Sources of such time sequence data might include the
General Household Survey (GHS), affiliation records of local
leagues (where they exist), national governing body data.
Pricing policy
A high cost for hiring/leasing facilities may prevent teams
from forming (or hinder the long-term sustainability of existing
clubs). Compare with the pricing policies of neighbouring
authorities.
Sport in the school
curriculum*
If the profile of school sport is increased it may impact upon
after-school clubs, inter-school matches and, ultimately, more
people playing team sports beyond school hours and school
years.
Impact of mini-sports in
engendering long-term
increases in adult play*
In the next few years it will be possible to establish the extent
to which those playing mini-soccer/rugby will move through
into junior and adult football/rugby.
Lifestyle changes and
other activities competing
for leisure time/spend,
including other forms of
sport*
The effect of these other competing demands may be to
reduce overall demand for formal pitch sports. For example,
small-sided soccer at commercial venues may lead to fewer
teams playing on Sunday mornings. On the other hand,
people who start playing indoor small-sided football for fun
and/or to get fit may in turn be encouraged to move on to the
11-a-side game.
(*Denotes that this will also influence future demand.)
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4.43
A local survey of clubs and analysis of league affiliations will be able to highlight the
potential scale of fluctuation in participation. It may also be possible to relate known
participation levels for a given sport at a given time in the past to certain events. For
example, did a national sporting success perceptibly increase participation nationally
and/or locally?
4.44
It is important for your assessment to take into account any projected increase in
local participation brought about through the impact of local sports development
initiatives. This can be difficult due to the fact that few local sports development plans
set quantifiable targets for increasing participation. Therefore, local authorities and
governing bodies should establish numerical targets in this respect.
D4: Displaced demand
4.45
A further consideration needs to
be given to teams that are
based within the study area but,
for reasons such as lack of
pitches or inappropriate ancillary
facilities, travel outside the
study area to play ‘home’
matches. A case study from
research undertaken in South
Somerset demonstrates the
importance of understanding
such issues.
CASE STUDY: Displaced hockey teams in South Somerset
A playing pitch strategy, undertaken in 2002 for South
Somerset District Council, revealed there to be two hockey
clubs playing ‘home’ matches in South Somerset, providing a
total of 10 teams. At present there are two publicly accessible
STPs which are deemed sufficient to meet their needs.
However, further research highlighted another two clubs, Yeovil
and Wincanton, providing for 17 teams that originate from
South Somerset. Due to a lack of STPs they have to travel to a
private school in neighbouring West Dorset. When these teams
were factored into the playing pitch methodology, a clear
shortfall of STP provision became apparent.
NB Information on cross-boundary issues may be accessible from the regional
federations of sport.
D5: Future demand
4.46
In order to assess future demand for sports pitches, existing TGRs can be applied to
estimated future changes in the population (linked to planned housing areas). By
breaking down population estimates into age groups, future demand among the
team-generating age groups can be identified.
4.47
When predicting the number of teams likely to be playing at a future date:
4.48

The current TGR should be applied to population estimates to give the predicted
number of teams at the relevant future date (assuming existing participation rates
transferred to a larger/smaller population).

Revised/assumed participation rates, taking into account latent demand and
predicted future demand (eg robust sports development plans that project a 10%
increase in participation), should be applied to the population estimate.
To summarise, the standard TGR reflects the status quo and can be used to
compare the existing situation with that in other areas. A modified TGR can be used
in modelling the future situation (in conjunction with population figures) but must also
reflect the potential impact of latent demand.
Where numerical sports development targets are available, they can be applied to
the Playing Pitch Model in the following way:
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Number of
teams in 2003
TGRs
Population
growth
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Number of
teams in 2010
Sports
X development
targets
=
Number of
teams in 2010
(revised)
D6: Pattern of play
4.49
The temporal demand for games is the proportion of matches that are played each
day. This must be assessed on a local basis since different areas of the country may
show marked variations. Temporal demand is required to show:

time of peak demand

use of pitches throughout the week to assist in calculations of capacity.
4.50
If a pitch is used for mini-soccer/rugby, by schools or for training sessions, it will be
necessary to make estimates of the number of ‘match/game equivalent’ periods on a
similar basis to that used for team equivalents.
4.51
Together with the number of teams, this is a critical element in compiling information
on the demand for playing pitches. Detailed information should be gathered on the
number of games played on each pitch, by whom these games are played and the
times these games/matches are played.
4.52
The playing pitch assessment has to take account of the changing nature of demand.
It measures available pitches against peak demand in a situation where patterns of
play are determined by league structures and size and not by individual behaviour or
choice. The following trends are reducing the dominance of Saturday
afternoons/Sunday mornings as peak periods in many areas, and pitch usage is
likely to be just as great on Saturday mornings and Sunday afternoons for youth and
mini activity:

growth in ‘pay as you play’ football at five-a-side centres

school use of community pitches during the week

mini-soccer – during the week and at weekends (allied to this is the issue of
whether mini-soccer has dedicated pitches or uses existing adult pitches)

growth in youth soccer

girls’ and women’s soccer – currently often on Sunday afternoons

Saturday league play (declining in some areas)

Sunday morning league play (declining in some areas)

special events/tournaments, especially mini-soccer

holiday activity sessions and special coaching courses, eg ‘Football in the
Community’ schemes, run during school holidays.
The issue is thus whether the existing pitch stock can cope with all or some of these
trends or, in some cases, whether these trends will lead to a decrease in demand for
conventional grass pitches.
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E: Analysing supply
E1: Defining a pitch
4.53
Within planning legislation, Statutory Instrument 1817 defines a playing field as ‘the
whole of a site which encompasses at least one playing pitch’. It defines a pitch as ‘a
delineated area which, together with any run-off area, is of 0.4 hectares (1 acre) or
more, and which is used for association football, American football, rugby, cricket,
hockey, lacrosse, rounders, baseball, softball, Australian football, Gaelic football,
shinty, hurling, polo or cycle polo (grass or artificial surface)’. The area of 0.4
hectares equates to the recommended minimum size of a junior football pitch,
including run-offs.
4.54
Education Guidance (The Protection of School Playing Fields and Land for City
Academies, Ref: DfES 0580/2001, Annex B, paragraph 13) defines a minimum pitch
size as 0.2 hectares. In order to maintain conformity with current legislation the
following definition is proposed:
A pitch is a grass or artificial surface which is marked out as a pitch for
at least part of the year and on which a match can be played, and has a
minimum size of 0.2 hectares, including run-off areas.1
4.55
4.56
Establishing precisely how many pitches there are within the study area will be
difficult for several reasons:

The number of pitches at a given site can fluctuate over short periods of time for
reasons of management and husbandry. This means that the findings of a count
conducted in one season may differ from the results of a similar exercise
conducted the following season.

Site inspections may occasionally fail to identify existing pitches because goals
may only be erected on match days, and markings may be poor.

The time at which site surveys are conducted will greatly influence the number of
pitches identified through site investigation.

Football matches involving younger children may use portable goals and smallsided pitches, and these may be difficult to identify through site inspection.
Counts of junior football pitches may therefore need to be restricted to pitches
that are marked out (with goals in place) and of sufficient size to host games
between older children's teams.
Due to these problems the counting exercise should be as rigorous as possible with
the aim of establishing 'pitch capacity' based on what is known about current and
estimated future needs (see E5 on page 56).
1
For the purposes of this document, the definition of pitch has a minimum size of 0.2 hectares,
including run-off areas. However, the definition outlined in Statutory Instrument 1817 defines
minimum size as 0.4 hectares and Sport England is obliged to work to this definition when
considering any consultations on planning application. However, the Secretary of State has
announced that consideration is being given to lowering the size incorporated in the definition to 0.2
hectares.
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E2: Role of synthetic turf pitches (STPs), multi-use games areas (MUGAs) and
specialist five-a-side centres
Synthetic turf pitches
4.57
The development of STPs has fundamentally changed the way some sports are
played and matches are programmed. For example, the fact that STPs are almost a
prerequisite for hockey has meant that games can only be accommodated by
sequential programming on match days. In time, the development of ‘new
generation’ STPs for football may
New Generation STPs
have a profound effect on this sport
too. It would be theoretically
In 2002, FIFA sanctioned the development of ‘new
possible to programme football
generation’ STPs for football and potential use in the
matches in the same way as
2006 World Cup. A number of sites are currently being
hockey. However, this may be more
piloted around the world. UEFA is likely to follow suit in
problematic for football, given that
the near future.
most clubs tend to have only one or
These pitches are, to all intents and purposes, ‘grass’.
two teams, which would require
However, the extent to which they will be accepted by
similar timed slots. Hockey does not
national governing bodies and players in England is
tend to have this problem given the
still to be determined.
multi-team structure of most clubs,
allowing for better coordination.
4.58
Research conducted by Sport England into the use of STPs has suggested that they
play two principal roles – midweek training for football and weekend matches for
hockey. For football the size of the pitch is less important, as they are often divided
up for training purposes. However, for hockey the dimensions of the pitch must meet
a minimum standard to allow league play. The capacity of STPs is of course greater
than grass pitches, but this is dependent on the facility’s opening hours and the
availability of floodlighting.
4.59
The role of STPs for football is currently to absorb midweek training and, in some
cases, matches. In most of these cases the matches could not be played on grass
pitches due to the lack of lighting. Therefore, the role of STPs as an alternative to
grass pitches is limited due to current league rules. Their greatest impact, along with
MUGAs, is in fact likely to be helping to free up sports hall space for other sports by
accommodating five-a-side football. There is little demand for grass pitches from
hockey because most competitive matches are played on synthetic turf pitches
(STPs). The preferred method for modelling demand for STPs is by using other
strategic planning tools such as the Facilities Planning Model.
4.60
For inclusion in the Playing Pitch Model, the assumption should be made that the
average peak day capacity for an STP is four, that is, no more than four matches can
be played on an STP on the peak day (normally Saturday).
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Multi-use games areas
4.61
Facilities such as tarmac five-a-side courts (that may double up for tennis and/or
netball) and multi-use games areas (MUGAs) have an important role in providing for
the casual needs of various sports. For example, well-designed and located MUGAs
provide not only for casual kickabout (to be encouraged in its own right) but can also
reduce pressure on existing grass pitches from casual use and training.
4.62
The role of MUGAs should therefore be recognised in terms of provision for
informal/casual use and all-weather training for football. While it would be difficult
(and probably inappropriate) to embrace MUGAs and other small-sided artificial
surfaces in quantitative assessments of capacity, their role should be recognised in a
wider sense. For example, casual/informal facilities are of value in developing a
desired local hierarchy of pitches for different sports (see E7).
Specialist five-a-side centres
4.63
In addition to MUGAs, the last few years have seen a considerable growth in
specialist five-a-side centres across England. (In January 2002 there were 37 such
commercial facilities in England and this number is growing rapidly.) In addition to
providing an ideal facility for winter football training, the recent development of formal
five-a-side leagues has impacted upon an increase in the overall participation in
football and arguably the decline in the traditional men’s Sunday morning leagues.
4.64
The whole issue of new artificial surfaces for hockey, football and other sports –
whether as full-size pitches, multi-use games areas or specialist five-a-side facilities
– will require close review during the life of this guidance. However, this still leaves
the immediate issue of how those undertaking playing pitch strategies should reflect
such facilities in assessments of supply.
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E3: Availability and accessibility
4.65
The ownership and accessibility of pitches will also influence their actual availability
for community use.
4.66
The term ‘secured community use’
has been adopted to define this.
This is likely to embrace:

all local authority facilities

school facilities where they are
subject to formal community
use agreements

other institutional facilities that
are available to the public as a
result of formal community use
agreements

CASE STUDY: An assessment of playing pitches in
Redcar and Cleveland
This assessment was undertaken during 1999/2000. The
research and consultation identified 180 grass pitches that
were used by the community. These pitches equate to
0.96 hectares/1,000 people within the study area.
However, further analysis of these pitches (following a
categorisation similar to Table 4.5 below) revealed that
127 of the community pitches did not have secured
access. If these pitches were excluded from the analysis,
the level of provision would be considerably lower (0.36
hectares/1,000 people).
The report concluded that ‘securing’ these pitches is a
high priority:
any facilities that are owned,
‘The study has highlighted the danger in assuming
used or maintained by
their long-term availability, as there can be no
clubs/private individuals and
guarantee that the managers of these pitches will
which, as a matter of policy
continue to make them available for public use.’
and practice, are available to
large sections of the public
through membership of a club or through an admission fee.
4.67
Of course, the cost of use must be considered reasonable and affordable by the
majority of the community.
4.68
While it is crucial to identify all pitches as part of the audit process, an important part
of assessing total pitch capacity is establishing the availability of pitches for public
use. The following categorisation (Table 4.5) seeks to indicate which pitches should,
and should not, be included within that assessment.
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Table 4.5
4: MORE DETAILED GUIDANCE
Categories of pitches
Category
Definition
Supplementary information
A(i)
Secured
community
pitches
Pitches in local authority or other public
ownership or management
A(ii)
Pitches in the voluntary, private or commercial
sector which are open to members of the
public#
A(iii)
Pitches at education sites which are available
for use by the public through formal
community use arrangements*
B
Used by
community, but
not secured
Pitches not included above, that are
nevertheless available for community use, eg
school/college pitches without formal user
agreements
C
Not open for
community use
Pitches at establishments which are not, as a
matter of policy or practice, available for hire
by the public
Notes
# Where there is a charge, this must be reasonable and affordable for the majority of the local community.
* Pitches in secured community use are pitches that are available for use by community teams and whose future use
is secured for the coming seasons by one or more of the following:

a formal community use agreement

a leasing/management arrangement between the school and LEA requiring the pitch(es) to be
available to community teams

a policy of community use minuted by the school or LEA, including tariff of charges, etc

minutes of the board of school governors allowing use of pitches by community teams

written commitment from the school to the current community team(s) using the pitch(es)
and
where it is the intention of the school to maintain access for community teams to its pitch(es) at peak times (ie
evenings, weekends and/or school holidays) for the next two or more years.
E4: Pitch (and ancillary facilities) quality
4.69
Pitches are a natural resource and their capacity to accommodate games over the
given period of time is determined by their physical quality. At the minimum, capacity
affects the quality of the playing experience and, in the extreme, can result in the
inability of the pitch to cater for play at certain crucial times or by certain groups.
4.70
Moreover, it is not just the quality of the pitch itself – drainage, type of soil, grass
cover, wear and tear, slope, quality of maintenance, markings – but also the quality,
standard and range of ancillary facilities – changing, floodlights, spectator facilities,
car parking, social provision, practice areas – that determine whether the facility can
contribute to meeting the demand from various groups and for different levels of play.
4.71
Table 4.6 summarises those factors that may influence the quality (and therefore
capacity) of pitches and ancillary facilities.
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Table 4.6
4: MORE DETAILED GUIDANCE
Factors that influence quality and capacity
Factor
Comment
Slope
These factors will have a major impact on the number of games
that can be played on a pitch over a given period, and hence the
overall pitch capacity. Factors such as drainage and soil type will
also greatly influence the extent to which matches may be lost
during periods of wet weather. Indeed, climate has a big effect
on the carrying capacity of pitches.
Exposure (openness to
elements)
Soil type
Drainage
Grass cover or surface type
This will impact upon not only the number of games that can be
played but also the types of game. For example, artificial turf is
not currently an acceptable medium for most competitive
football.
Type and quality of changing
(if available)
Good-quality changing, with clean and secure accommodation,
is desirable for most levels of play and essential for many.
Changing accommodation to a reasonable specification is
usually a league requirement for adult football, and the level of
specification increases with higher standards of play.
-
Showers
-
Cleanliness
-
Security
Floodlighting
The lack of female changing accommodation is a potential
constraint on the further development of girls’ and women’s
football.
Floodlighting is often required for clubs/teams playing above a
certain standard. Floodlighting also allows greater use of a pitch
for both training and competition, on winter midweek evenings
for example. Provision of floodlighting can therefore help to
spread demand over the week.
Contrary to this, floodlighting of pitches can often lead to overuse as such pitches are often used intensively towards the end
of a season to counter the backlog of fixtures.
Car parking
Offstreet dedicated car parking for both players and spectators is
desirable for all facilities and essential for many due to the
requirements of leagues and relevant governing bodies.
Spectator and social facilities
Formal spectator facilities will only be a requirement beyond a
given standard of play and will be determined by the
requirements of relevant leagues and governing bodies.
The absence of these facilities can frustrate the development of
aspiring clubs, especially where there are planning issues or
lack of security of tenure (see below).
Practice areas
Practice areas (off the main body of the pitch) are essential at all
levels of competitive play. They also play an important role in
reducing wear and tear on conventional pitches.
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Factor
Comment
Security of tenure
This can prove a fundamental constraint to clubs developing the
quality and capacity of their home facilities. Many clubs will not
be able to take an active involvement in the maintenance and
improvement of their facilities due to a lack of security of tenure
– for example, where clubs play on council pitches or school
sites.
Management
Movement of goal posts reduces wear of turf pitches.
Quality assessments
4.72
4.73
Assessing the quality of pitches, although a time-consuming task, is important for
several reasons:

It helps to identify pitches that are being over-used.

It helps explain why some pitches are being under-used.

It helps prioritisation for investment when developing an action plan (see Section
6).
There are a number of different methods for collecting meaningful qualitative data.
a) A detailed professional assessment, which will use technical testing methods and
provide a detailed report. Organisations such as the National Playing Fields
Association and the Sports Turf Research Institute (STRI) specialise in such work.
The STRI and Sport England have developed a minimum standard for turf pitches
(see Appendix C).
b) A user survey, designed to enable clubs to give their opinion of the quality of the
pitch(es) they use. Examples of survey questions can be found in the sample
user/provider questionnaires in the Electronic Toolkit. This method is less expensive
and time-consuming than (a) above, although it is subject to bias and inaccurate data
(as a ‘good’ pitch for some clubs may be viewed as a ‘poor’ pitch by other clubs). It
gives a good indication of users’ perceptions, which can help to identify specific
issues/problems.
c) In-house site visits are the third option. The pitch quality assessment in the
Electronic Toolkit has been designed for use by local authority officers. The
assessment has been designed to be:

quick to use: pilot studies have shown that a typical site visit takes no longer than
10 minutes

simple to use: it can be used by people with little training/background in
undertaking pitch assessments. It is recommended that the same person
undertakes all visits for consistency

comprehensive: it assesses pitches, equipment and ancillary facilities
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
4: MORE DETAILED GUIDANCE
easy to analyse: a simple scoring system has been developed, which will result in
the following classification:
Over 90%
= an excellent pitch
65–90%
= a good pitch
55–64%
= an average pitch
30–54%
= a below average
pitch
Less than 30%
= a poor pitch
4.74
Ideally all three methods would be used in partnership as they complement
and help inform each other.
4.75
The above analysis will provide invaluable guidance for asset management
purposes. While it is linked to the eight stages of the Playing Pitch Model through
weightings, the data will aid the prioritisation of future improvements to pitches.
E5: Pitch capacity
4.76
The number of community matches a grass pitch can absorb is a function of the
needs of other users and quality. For example, a school with an active dual-use
policy may only be able to allow one community game each weekend, while a
comparable council pitch may be able to accommodate two matches.
4.77
There is no formula for calculating the
carrying capacity of pitches as it is
dependent on a wide range of factors,
such as weather conditions,
age/weight of users, quality of players.
However, through local knowledge,
user surveys, interviews and so on,
and an analysis of usage patterns
from the previous season, it should be
possible to classify each pitch into the
categories listed in Table 4.7 overleaf.
4.78
An informed judgement on carrying
capacity can be made by considering
the questions in the adjacent box.
Capacity questions
1. What proportion of games were cancelled last
season due to the poor condition of the pitch?
2. Is the condition of the pitch declining year on
year?
3. Is the condition of the pitch declining over the
season?
4. What is the maintenance regime for the pitch
at present?
5. Could the capacity of the pitch be improved by
enhanced maintenance?
6. What quality score has been given to the
pitch?
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Table 4.7 Carrying capacity for each type of pitch
Carrying capacity
Three matches (or more) per week
Two matches
One match per week
One match (or less) per fortnight
Multiplication
factor
1.5
1.0
0.5
0.25
Worked example
4.79
To demonstrate the calculations in assessing the carrying capacity of pitches, a
worked example is shown below.
A district council has 65 adult football pitches. The quality assessment identified:
Carrying capacity
Three matches (or more) per week
Two matches
One match per week
One match (or less) per fortnight
Total
Number in
study area
9
23
22
11
65
Factor
Score
(no x factor)
1.5
1.0
0.5
0.25
13.5
23.0
11.0
2.75
50.25
Therefore, in this local authority, although 65 adult football team pitches are
available, due to the varying quality of the pitches there is an equivalent of only 50
pitches available at any one time.
4.80
It is important to bear in mind that the above examples take into account only the
needs of programmed competitive play. These will be easy to quantify from league
handbooks, as well as knowledge of the structure of, and venues for, cup
competitions.
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E6: Impact of training and informal play
4.81
A further consideration in assessing the capacity and availability of pitches is the
extent to which they have to accommodate training activity (see Table 4.2) and
informal use. Informal use is particularly relevant for local authority pitches on public
open space, which are also used for other forms of public recreation activity, and
which are therefore susceptible to damage from a variety of sources.
4.82
Although it is not possible to factor informal use into the methodology, the impact of
such use cannot be ignored (see Section 5). This point further emphasises the need
to undertake playing pitch studies within a wider-context open space provision.
E7: Hierarchy of provision
4.83
The aim should be to develop and maintain a hierarchy of playing pitches to satisfy
the different aspirations of users. A suggested hierarchy is set out in Figure 4.2.
Figure 4.2
Suggested hierarchy for playing pitches
Hierarchy allows for
progression by
Regional/national level
Higher level
Higher level
district/county
district/county
Low level/local
Low level/local
Low level/local
league
league
league
Casual
matches/play
4.84
aspiring clubs/teams
Casual
matches/play
Casual
matches/play
Casual
matches/play
Within this diagram:

the casual (or 'foundation') level of the hierarchy would include kick-about areas,
five-a-side pitches and 'rough' pitches for casual use which encourage initial
participation

the local league (or 'participation') level offers facilities for those clubs on the
lowest rungs of regular competitive play, where there will normally be a
requirement for changing accommodation and a preference for well-drained, 'true'
playing surfaces

the district/county (or 'performance') level offers facilities for those teams that
have reached a fairly high standard of play and are playing regular league
matches where there may be requirements in respect of playing surface, changing
facilities and so on
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
4: MORE DETAILED GUIDANCE
the regional/national (or 'excellence') level represents the peak of the hierarchy
and might cater for clubs in regional and national leagues at an amateur, semiprofessional and professional level. Once again, facility requirements will be
commensurate with the standard of play and might include spectator facilities,
floodlighting and so on.
4.85
Informal facilities clearly play an important part in the local hierarchy of provision.
Their provision should not be considered in isolation from formal facilities.
4.86
This hierarchy can be developed for facilities for both juniors and seniors, and
recognises the value of pitches not in community use. It can be further developed for
individual sports in conjunction with Sport England and the relevant governing
bodies. It is similar to the approach now adopted by the Football Association, Rugby
Football Union, England and Wales Cricket Board and the English Hockey
Association in their national facilities strategies, which are summarised in Table 4.8.
Table 4.8 National governing bodies’ facilities hierarchies
National governing
body
Rugby Football Union
England and Wales
Cricket Board
English Hockey
Association
Rugby Football League
Football Association
Hierarchy of facilities
(see National Facilities Strategies, available from Sport England, for further details)
The four ‘Model Venues’ are designed as a framework, and are
not in any priority order:
Model Venue 1: Club, school or other provider playing
recreational, introductory and lower-level competitive rugby
Model Venue 2: Club, school, university or other provider with a
wider programme
Model Venue 3: An established venue with a wide range of
programmes and potentially higher-level competitive rugby
Model Venue 4: A venue of top-level training and competitive
rugby
‘Seven steps’ identified as central to the development of cricket in
England and Wales:
Step One: Primary schools
Step Two: Secondary schools
Step Three: Club cricket
Step Four: District cricket
Step Five: Representative cricket (inc national and county academies)
Step Six: First class county cricket
Step Seven: England teams
A hierarchy of facilities for hockey at local, regional and national
levels is proposed to meet the needs of the sport from grassroots
to high performance:
Local: Hockey-led local facilities; multi-use local facilities; MUGAs;
school facilities
Regional: Provision of a regional network; ‘World Class Water’
National: National Stadium; ‘World Class Water’
To be published in 2003
N/A2
The FA’s National Facilities Strategy will be published in 2003. However, it will not include a
hierarchy due to the vast range/level of facilities that are used to play football in England.
2
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TURNING YOUR ASSESSMENT INTO YOUR STRATEGY
TOWARDS A LEVEL PLAYING FIELD
5: TURNING YOUR ASSESSMENT INTO YOUR STRATEGY
5
Turning your assessment into your strategy
5.1
Through undertaking the data collection and analysis the exact areas of shortfall or
under-used pitches for each sport will now be known. The assessment needs to be
turned into a strategy that will help inform your local plan, local cultural strategy and
community plans.
5.2
The strategy needs to include recommendations that are prioritised and sufficiently
precise to allow tangible projects and tasks to flow from their adoption. (NB See the
ODPM’s publication Assessing Needs and Opportunities: A Companion Guide to
PPG17.)
5.3
This section highlights some possible solutions to dealing with pitch shortfalls/underuse and suggests ways to structure your playing pitch strategy document.
Identifying solutions (Stage 8)
5.4
5.5
Following the assessment of supply and demand of pitches, detailed policy options
need to be developed to deal with the local situation, which typically fall under three
main headings:

quantitative deficiencies

qualitative deficiencies

underused/unused provision.
The relevance of the policy options outlined will depend on the nature of the study
area, the sport in question and the issues identified by the assessment. The aim of
this guide is therefore to indicate a variety of solutions that might be considered
under each of the three headings. The relevance of each possible solution must be
measured against local circumstance.
Quantitative deficiencies
5.6
Quantitative deficiencies arise when there is an absolute shortage of pitches and/or
when the existing pitch(es) cannot accommodate existing demand, particularly at
peak periods. Some degree of spare capacity is an integral part of playing pitch
provision for the following reasons:

to accommodate latent and future demand for existing pitch sport teams

for the development/expansion of new pitch sports (such as softball, mini-soccer
and ‘tag’ rugby)

to accommodate backlogs and for rest and recovery periods.
5.7
Increases in demand can be estimated through reference to adopted sports
development plans that contain clearly identified and justified targets from growth.
‘Active Sports’ plans are a good example of this.
5.8
Based on estimates from the above information, local authorities should estimate a
justified ‘strategic reserve’ of pitches required for their area.
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5.9
5: TURNING YOUR ASSESSMENT INTO YOUR STRATEGY
There are a number of solutions that can rectify the situation:
(a) changing pitch use
(b) dual-use facilities
(c) enhancing carrying capacity
(d) management options
(e) developing new pitches.
Each of these is explained in turn below.
(a) Changing pitch use
5.10
A simple, cost-effective solution is to change the use of a pitch from one sport to
another (where there are unused pitches and no latent demand). It is important to
note, however, that the pitches must be in the right location to meet the needs of the
existing or unmet demand.
5.11
In addition it may be possible to realign existing playing field areas to improve
pitches or create more pitches. (It should be noted that the sharing of pitches
between winter and summer sports can curtail their respective seasons.)
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(b) Dual-use facilities
5.12
5.13
The continuing development of
dual-use of school playing fields
offers considerable potential,
particularly for meeting any growth
in demand from junior teams. This
often needs genuine financial
commitment from local authorities
to improving surfaces and
capacity, providing or improving
changing accommodation and
possibly providing revenue
subsidies to users.
CASE STUDY: ‘Pitching it Right for Torbay’, January 1995
Torbay Council commissioned a playing pitch assessment and
strategy in 1995. Eight years on, the benefits to Torbay are still
evident.
The benefits of the strategy have been threefold:
 Highlighting shortages of pitches and raising the profile of
the pitch sports among local councillors. However, the
authority has still encountered difficulties in getting
councillors to ‘sign up’ to the need for new and improved
provision being a priority, especially in view of the lack of
finance to enable this.
Clearly there are management
issues inherent in formulating and
 Highlighting the benefits of co-location of pitch facilities (for
managing dual-use agreements.
this district) for economies of scale in urban areas and the
Further advice and guidance can
need to extend community use of educational pitches.
be obtained from Educational
 The strategy has been extensively quoted within the local
Facilities: Management of
plan (Torbay Local Plan – deposit version/draft for
Community Use (Sport England,
consultation, July 1999) and has been used to highlight
1995), which advises on the
deficiencies, underpin proposals for new playing field
opportunities to develop
provision at four/five locations, support greater community
community use of school sports
use of school playing fields and urge for protection of
facilities and looks at the different
playing pitches.
management options and offers a
practical checklist for managers.
This can be obtained at http://www.sportenglandpublications.org.uk
(c) Enhancing carrying capacity
5.14
Improvements to existing pitches and their ancillary facilities will increase their
carrying capacity. This is discussed in more detail in ‘Qualitative deficiencies’.
(d) Management options
5.15
There are also management options that might be considered in order to meet a
peak demand problem. These include:

extending the playing season by two to three weeks. However, in many areas
this will not be an option due to sharing of grounds between summer and winter
sports (which creates its own problems in terms of accommodating fixtures and
preparing pitches in time for the new season)
 introducing differential pricing in favour of less popular days; however, this will
often need to be organised on a league basis and may interfere with the
expressed wishes of players.
(e) Developing new pitches
5.16
If there is an absolute shortfall, the only possible solution is to provide new pitches.
While providing new pitches in rural areas can often be relatively straightforward (in
terms of availability of undeveloped land), in urban areas it presents a more difficult
task as the cost of acquiring new land is often prohibitive. It should, however, be
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noted that the provision of additional pitches can only make a small contribution to
reducing peak day deficiencies.
5.17
If the preferred option is new pitches, careful consideration must be given to location
and the number and type of pitches to be accommodated on one site. Economies of
scale can be achieved by locating a number of pitches together, but changing and
ancillary accommodation must be adequate to cope with regular, if not peak,
demand.
5.18
Capital funding can be obtained through the following sources:
5.19

Sport England Lottery Fund for rugby, hockey and cricket pitches, clubhouses and
pavilions

Football Foundation for football pitch and changing room improvements

New Opportunities Fund (NOF) via the Green Spaces and Sustainable
Communities Fund

developer contributions via Section 106 agreements

the National Playing Fields Association.
All local authorities that are involved in the housing development process are
advised to refer to Providing for Sport and Recreation through new housing
development main guide and annexes (Sport England 2002) (available to download
as a pdf) http://www.sportengland.org/whatwedo/places/sport-develop.htm). This
guide for planners, sports development and leisure officers, developers and others
involved in the housing development process gives advice on how sport and
recreation provision can successfully be achieved in conjunction with new housing.
Emphasis is given to:
 pursuing a strategic
approach at local authority
level
 the need to link the
corporate strategy and
Best Value work of
authorities with the process
of negotiating new and
refurbished sports facilities
 joint working between sport
and leisure professionals
and land use planners
within authorities
CASE STUDY: A playing pitch strategy for Windsor and
Maidenhead, August 2001
The Royal Borough of Windsor and Maidenhead (RBWM)
commissioned a playing pitch assessment and strategy in
2001, and the impact has been felt immediately:
‘We are already using the information contained within the
playing pitch strategy for cultural strategy anchor plans, work
with the Football Foundation and to help secure Section 106
planning agreements with developers.’
Head of Community Partnerships, RBWM
 the provision of sound justification for what is sought from developers and other
applicants for planning permission.
Qualitative deficiencies
5.20
This is a crucial area, for even if the numerical modelling shows that existing
provision can accommodate current and future demands, it is frequently the case
that the existing quality of pitches and ancillary facilities gives rise to dissatisfaction.
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5.21
In many areas there may be a greater need to improve the existing stock than to
provide additional pitches.
5.22
Technical options here include:

maximising the playing potential of existing stock through improvements to pitch
quality by, for example:

improving education and sharing expertise about pitch construction and
drainage systems
 harnessing the expertise of turf specialists and other bodies in establishing
the best way to construct pitches in varying locations
 levelling and draining of pitches
 supporting improvements in pitch construction (such as interweaving of
artificial grass in goalmouths on football pitches)
 adopting maintenance regimes which are tailored to the priority needs of
given sites and the strategic significance of venues. Often, significant
improvements can be achieved through maintenance/refurbishment rather
than new build
 carrying out improvements and upgrading of existing artificial surfaces
 maximising the playing potential of existing stock through a strategic approach to
improving ancillary facilities by, for
example:
Tax incentives for community amateur
sports clubs
 providing changing facilities where
An announcement was made in the
none exist at present
budget (2002) that major tax incentives
are to be made available for over 100,000
 improving existing changing facilities,
community amateur sports clubs (CASCs)
taking special account of the needs of
in the UK. See
girls, women and youth players
http://www.sportengland.org/tax_breaks.htm
for more details.
 reviewing the programming and
timetabling of the use of sites to ensure the most efficient use of both pitches and
changing facilities

promotion of single multi-sports clubs based on the European model or ‘soccer
centres’ to reduce costs. For example, the FA aims to provide ‘a lifetime of
footballing opportunities for a minimum of 10 teams from youth to adult, male to
female, through developing 100 community clubs in 2003 to 500 in 2006’.
However, if this approach is adopted care is required so that the geographical
spread of pitches is not lost

ensuring that major capital and revenue investment, notably in rural/deprived
areas, results in sustainable and viable facilities. For example, designs for
changing facilities should be appropriate to the site and not elaborate or costly if
they are primarily designed for grassroots participation. Joint development of
facilities on multi-use sites (such as football and cricket), particularly in rural
areas, should be encouraged

enforcing more strongly existing legislation regarding fouling of sports pitches by
dogs
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
5.23
5: TURNING YOUR ASSESSMENT INTO YOUR STRATEGY
reducing wear on pitches by removing the posts from site after every match. This
least expensive but relatively labour-intensive method, as endorsed by the
NPFA, will stop all casual use from taking place. If posts are left on site for casual
use, then a movement of one post through 90 will reduce wear on the pitch.
While considering the above options, it is recommended that the following
documents are consulted:

Natural Turf for Sport, Sport England (2000)
This guidance note concentrates on the broad requirements for the successful
design, development and aftercare of playing surfaces for the major natural turf
sports.

Pavilions and Clubhouses, Sport England (1998)
This guidance note concentrates on pavilions that are free standing and
designed primarily for cricket, football, hockey and rugby. The standards outlined
can also be applied to the upgrading of existing accommodation.

Football Foundation Data Sheets, Football Foundation (2001)
These data sheets provide information on dimensions, planning permission,
changing rooms and clubhouses, floodlighting, synthetic turf pitches and
refurbishment of facilities.
Downloadable from:
http://www.footballfoundation.org.uk/html/guidancenotespage.asp

Turf Pitch Quality Standards, Sport England (2002)
This was written as a brief to engage turf specialists for NOF Green Spaces pitch
improvements. It sets out, in consultation with the NPFA, the Sports Turf
Research Institute (STRI) and the Institute of Groundsmanship (IOG), a minimum
standard for turf pitches (see Appendix D). This can be used in playing pitch
strategies as a measure/target for all pitches.
NB It is only a minimum standard and some sports, eg football, are currently
working with the STRI to develop a higher standard for their sport.

Disability Discrimination Act 1995 Code of Practice – Rights of Access, Disability
Rights Commission (2002)
This revised Code of Practice deals with the duties placed by Part III of the
Disability Discrimination Act 1995 on those providing goods, facilities or services
to the public and those selling, letting or managing premises.
Downloadable from:
http://www.drc-gb.org/drc/InformationAndLegislation/Page331a.asp

Pitch sizes
The maximum and minimum sizes of pitches recommended by the national
governing bodies of sport can be found at Appendix E.
5.24
There is a widespread need to tailor the nature and condition of pitches more closely
to the players’ requirements. Expectations are now higher and pitch sports have to
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TOWARDS A LEVEL PLAYING FIELD
5: TURNING YOUR ASSESSMENT INTO YOUR STRATEGY
compete with an increasing range of leisure pursuits, many of which can be
undertaken in much greater comfort than is offered by the average municipal football
pitch on a winter’s Sunday morning. If more people are to be encouraged to
participate in pitch sports, then pitches/ancillary facilities need to be improved.
5.25
This is particularly important if clubs are restricted from promotion because their
ground and facilities do not meet the requirements (eg dugouts, separate referees’
changing, roped-off area) laid down by more senior leagues. A high standard of
provision is also required for representative match and cup finals. Areas where local
authority pitches constitute the majority of the playing field stock – but these are
located at public open space sites with poor ancillary provision – may be deficient in
this respect, even if, numerically, there are sufficient pitches.
Underused/unused provision
5.26
The best explanation of context for underused or unused pitches is set out in national
policy guidance.
5.27
PPG17 states: ‘Existing open space, sports and recreational buildings and land
should not be built on unless an assessment has been undertaken which has clearly
shown the open space or the buildings and land to be surplus to requirements. For
open space, “surplus to requirements” should include consideration of all the
functions that open space can
perform. Not all open space,
CASE STUDY: Playing pitch study in Middlesbrough, 1993
sports and recreational land
and buildings are of equal
The study in Middlesbrough concluded that, although
merit and some may be
statistically there was an adequate number of local authority
available for alternative uses.
pitches to meet current demand, other issues directly
In the absence of a robust and
influenced the situation, notably:
up-to-date assessment by a
local authority, an applicant for
planning permission may seek
 pitch quality/capacity (pitches were excessively used during
the winter months when more than one game per week per
to demonstrate through an
pitch was likely to cause severe damage)
independent assessment that
the land or buildings are
surplus to requirements.
 the lack of quality changing accommodation.
Developers will need to consult
the local community and
The study recommended that:
demonstrate that their
proposals are widely supported
 methods of lessening the intensity of use on ‘structurally
by them.’ (PPG17: Planning for
weak pitches’ (that is, by utilising other sites/increasing the
Open Space, Sport and
capacity of those being used) should be investigated.
Recreation)
5.28
Underused or unused provision
 a strict cancellation system should be adopted
is when the number of pitches available exceeds the current and projected demand,
both throughout the week and, more particularly, on peak days. True excess only
 various
maintenance
for each pitch should
occurs when laid out pitches are unused
by any
team, tasks
evenprescribed
on an occasional
basis.
be carried out to improve quality and capacity in the
This may, for example, happen in an urban area that has traditionally been well
meantime, and
provided for but has suffered rapid demographic decline.
5.29
 minimum
standardspitches
for changing
accommodation
However, where genuine ‘spare capacity’
on certain
is identified,
theshould
be adopted.
following policy options should be considered:

further promotion and marketing of the relevant sports in order to ensure that
latent demand in the area has been genuinely accommodated
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TOWARDS A LEVEL PLAYING FIELD
5.30
5: TURNING YOUR ASSESSMENT INTO YOUR STRATEGY

taking a long-term view of likely trends in demography and sports over the next
20 years and of the long-term open space needs of the population

reducing the number of pitches on a site to improve those remaining, for example
by increasing their size, realigning them to improve drainage or landscaping. This
will require a high degree of maintenance on the remaining pitches

change of use, such as from football to rugby pitches (if there is excess provision
for the former and a shortfall for the latter)

changing to other recreational uses, eg jogging, cycling, walking, golf

if no other sporting demand is expressed, changing to informal recreational use
as, for example, an urban park or nature reserve.
Disposal of pitches should not be contemplated or permitted except in very limited,
qualified circumstances. As outlined in Planning Policy Guidance Note (PPG) 17:
Planning for Open Space, Sport and Recreation, irrespective of whether there is a
surplus of provision, open space and sports and recreational facilities that are of high
quality, or of particular value to a local community, should be recognised and given
protection by local planning authorities through appropriate policies in plans. Local
planning authorities should:
(a) protect and improve the quality of small areas of open space within urban areas
that can help create attractive urban environments and offer opportunities for
informal recreation and play
(b) protect and enhance (for example, through provision of additional facilities) those
areas of open space that act as valuable community resources and which can be
used as places for congregating and for holding community events, religious
festivals, fêtes and travelling fairs
(c) protect those areas of open space that are particularly important for wildlife and
biodiversity, and seek to improve other areas of open space in ways that will
allow wildlife to flourish.
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5: TURNING YOUR ASSESSMENT INTO YOUR STRATEGY
Developing minimum local standards of provision for playing pitches
5.31
An important outcome of a playing pitch study is the development of local standards
of provision, in accordance with national planning policy. Such standards will:

underpin negotiations with developers over their contributions for new pitch
provision to meet the needs of new residential developments

provide an additional overview of the general supply of pitches/level of provision

assist in protecting land in playing field use

assist in benchmarking with other areas/authorities.
5.32
The NPFA’s Six Acre Standard states that for every 1,000 people, 1.2 hectares of
playing pitches should be provided. This is a useful national benchmark and has
been adopted as a local standard in the absence of a detailed local assessment.
However, PPG17 now requires local authorities to undertake detailed local
assessments to provide evidence as a basis for developing a local standard.
5.33
To develop local standards, the area of land required for playing pitch use at the end
of the local plan period must be calculated. The actual playing area of each pitch
should be used plus run-offs and safety margins. If actual playing areas cannot be
obtained, the sizes or areas indicated in Appendix E should be used. Only those
pitches with full community access should be included.
5.34
Once the total area is calculated, it should be compared to the total future population
of the study area to give a ‘hectares per thousand population’ figure. It may be
necessary or appropriate to develop more than one standard to reflect sub-areas that
have been used.
CASE STUDY: A minimum standard for South
Somerset
Achieving a simple standard of
provision will not, by itself, ensure
As part of South Somerset’s playing pitch strategy, a
an adequate supply of pitches of
review of its local standard was undertaken. Policy
the right type. For example, the
CR2 of its adopted Local Plan stated that 1.4
size and shape of a given playing
hectares of playing pitches should be provided per
field dictates the extent to which it
1,000 population.
can be used for different sports.
Similarly, the quality of playing
By applying the dimensions specified in Appendix E
surface and drainage will also
to the playing pitch audit, it was established that the
influence which teams and sports
standard was being exceeded (1.54ha/1,000
can use a given facility. The
people). However, the PPM highlighted the need for
existence or absence of changing
an additional 12 hectares of pitch provision to cater
rooms and other ancillary facilities
for latent and displaced demand.
(such as floodlighting) dictates
whether a pitch can be used for
The strategy concluded that:
higher-level games, or whether its
value is restricted to local Sunday
‘Policy CR2 is currently being over-achieved but
league matches. Finally, the
will need to be increased further. This is a matter
number of matches that a pitch
for future monitoring and should form part of the
can accommodate over a given
next Local Plan review.’
period will also influence its
general utility.
5.35
5.36
Some general principles of playing pitch and facility design should therefore be
developed in conjunction with local standards.
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SECTION 6:
ACTION AND REVIEW
TOWARDS A LEVEL PLAYING FIELD
6: ACTION AND REVIEW
6
Action and review
6.1
Turning the strategy into action and then regularly reviewing it is vital to ensure that
all the work undertaken in collating and analysing data has been time well spent.
Developing an action plan
6.2
Once the calculations have been made and the way forward agreed, it is vital that
the strategy is ‘brought to life’ and not left on the shelf. The best way to do this is to
ensure that all officers/partners sign up to an action plan.
6.3
Action plans can be developed in a number of ways and take a number of different
forms. Many authorities have developed their own format for action plans and apply it
across all their services. Further guidance on developing action plans is provided in
Planning Across Boundaries (Sport England, 1999).
6.4
It is recommended that the objectives in the action plan follow the ‘SMARTER’
principle. They should be:
 Specific
 Measurable
 Achievable
 Resourced
 Time-orientated
 Evaluated
 Reviewed.
6.5
A recommended format and some example actions are outlined below. It is important
to prioritise the actions in the plan:
Priority
Objective
Method
Target
Role
Finance
What is the
most
important
action?
What do we
want to do?
How are we
going to
achieve it?
What and by
when?
Who will be
responsible
?
What will it
cost?
Provide
changing at the
Rec
Apply for Sport
England Lottery
Fund grant
Rec Cricket
Club;
Town Council
£90,000
Improve quality
of pitches in
flood plain
Develop one
new junior
football pitch
Commission
STRI/NPFA
report
Football
Foundation bid
Build changing
provision for four
teams by start of
….season
Study to be
completed by …
Leisure
Services
£12,000
Application
submitted by …
XYZ Football
Club; Leisure
Services
£20,000
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TOWARDS A LEVEL PLAYING FIELD
6.6
6: ACTION AND REVIEW
In addition to action plans, it is recommended that each local authority develops a
series of tools with which to benchmark in future years. To assist the development of
the benchmark, the following data should be forwarded to Sport England on
completion of your study:
 TGRs for each sport (as listed in Section 4 D2)
 pitches per 1,000 population
 pitches per study area
 accessible pitches per 1,000 population
 accessible pitches per study area
 area of pitches (hectares) per 1,000 population
 area of accessible pitches (hectares) per 1,000 population.
6.7
An Excel spreadsheet to record such data – the Feedback Form – is in the Electronic
Toolkit.
6.8
The data will be analysed by Best Value ‘family group’, which will allow for target
benchmarks to be developed for rural, urban and urban fringe local authorities alike.
It will be a useful tool for Best Value purposes and will allow for comparison with your
neighbours, similar authorities and your own performance (year on year).
Data update
6.9
Due to the constantly changing number of teams playing pitch sports, with new
teams established each season and some teams folding, it is recommended that a
review of data is undertaken every two years over the life of your strategy. The
Playing Pitch Calculator is in the Electronic Toolkit. This will facilitate the analysis of
data and enable it to be undertaken quickly and effectively.
Monitoring and review of this guidance
6.10
6.11
It is important that this guidance is regularly monitored and evaluated. Monitoring will
be based on a number of indicators including:

the number of playing pitch strategies completed each year

the usefulness of this guide and the methodology

the usefulness and effectiveness of the playing pitch strategies that have been
produced

possible improvements to the guide and the methodology.
Further indicators may be developed in due course. Monitoring and evaluation will
take place through an annual meeting of a Monitoring and Evaluation Group, which
is likely to include representatives from Sport England, the CCPR, the ODPM and
the LGA. Sport England will collate the comments and other information from this
group’s meeting. As a result of the monitoring and evaluation process, this group
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TOWARDS A LEVEL PLAYING FIELD
6: ACTION AND REVIEW
may recommend changes to the guidance, which will be published on the Sport
England website.
6.12
To assist in this process, local authorities are requested to feed back comments on
this guidance (together with the information listed in paragraph 6.6) when they have
completed their playing pitch strategy. Information should be sent to Sport England
via the relevant Regional Planning Officer.
Glossary of abbreviations
BARLA
British Amateur Rugby League Association
CCPR
Central Council of Physical Recreation
DCMS
Department for Culture, Media and Sport
DfES
Department for Education and Skills
DTLR
Department for Transport, Local Government and the Regions
ECB
England and Wales Cricket Board
EHA
English Hockey Association
FA
Football Association
GHS
General Household Survey
IOG
Institute of Groundsmanship
LA
Local authority
LEA
Local education authority
LGA
Local Government Association
LPA
Local planning authority
MoD
Ministry of Defence
MUGA
Multi-use games area
NOF
New Opportunities Fund
NPFA
National Playing Fields Association
ODPM
Office of the Deputy Prime Minister
PPG
Planning Policy Guidance Note
PPM
Playing Pitch Model
PPS
Playing pitch strategy
PQA
Pitch quality assessment
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TOWARDS A LEVEL PLAYING FIELD
REFF
Register of English Football Facilities
RFU
Rugby Football Union
SDO
Sports development officer
STP
Synthetic turf pitch
STRI
Sports Turf Research Institute
TGR
Team generation rate
UDP
Unitary development plan
APPENDIX A
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APPENDIX A
APPENDICES
Page 60
TOWARDS A LEVEL PLAYING FIELD
APPENDIX A
APPENDIX A:
Key national legislation, policy initiatives, strategies and plans
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TOWARDS A LEVEL PLAYING FIELD
APPENDIX A
Key national legislation, policy initiatives, strategies and plans
A1
When developing a local playing pitch strategy, it is important to be aware of the content and
implications of documents that are of national significance in this area. A brief description of
each relevant document is outlined below, in reverse chronological order, together with
details of how to obtain complete copies of the documents.
Assessing Needs and Opportunities: A Companion Guide to PPG17, ODPM (2002)
A2
This guide reflects the Government’s policy objectives for open space, sport and recreation,
as set out in PPG17. The guide:

seeks to build on examples of existing good planning practice, while also taking account
of the recommendations of the Government’s Urban Green Spaces Taskforce and the
need for local authorities to prepare community and cultural strategies

sets out how local authorities can use the planning system to help deliver accessible,
high-quality and sustainable open access and sport and recreation facilities which meet
local needs and are valued by local communities

relates directly to the Best Value regime and the management and maintenance of
publicly owned open spaces and sport and recreation facilities.
Planning Policy Guidance (PPG) 17: Planning for Open Space, Sport and Recreation,
ODPM (July 2002)
A3
Planning Policy Guidance notes set out the Government’s national policies on different
aspects of planning. This document replaces Planning Policy Guidance Note 17 published in
1991. The policies set out in this guidance will need to be taken into account by regional
planning bodies and by local planning authorities in the preparation of development plans.
http://planning.odpm.gov.uk/ppg/ppg17/index.htm
Green Spaces, Better Places, Final report of the Urban Green Spaces Taskforce,
DTLR (2002)
A4
This report has four parts:

Parks and open spaces and urban life [the benefits urban parks and green spaces bring]

Challenges and responses [how problems affecting urban parks and green spaces can
be overcome]

Creating green space networks [good practice examples]

Making it happen [delivering a wider vision for ‘liveable’, sustainable, modern towns and
cities].
http://www.urban.odpm.gov.uk/greenspace/taskforce/final/
The Protection of School Playing Fields and Land for City Academies,
DfES (2001)
A5
This guidance replaces Circular 3/99: The Protection of School Playing Fields. It is a
reference document aimed at:
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APPENDIX A

local education authorities that are considering the disposal or appropriation of land at
community or former county schools

local authorities or school governing and foundation bodies that are considering the
disposal, or change of use, of school playing fields.
http://www.dfes.gov.uk/publications/guidanceonthelaw/0580_01/
The Six Acre Standard, NPFA (2001)
A6
This document outlines the NPFA’s widely endorsed and revised policy on the minimum
amount of play and recreation space that should be provided for every 1,000 residents. It
highlights recommendations for outdoor playing space, that is, for sport, recreation and
children’s play. The recommendations are a global statement of the amount of land required
per 1,000 population, and should be regarded as a minimum standard.
http://www.npfa.co.uk
A Sporting Future for All, DCMS (2000)
A7
The Government reaffirms its commitment to sport. More specifically, the following facilityrelated developments are proposed:

allocation of £150 million to improve school sports facilities

consideration to be given to tightening the categories of possible exemption to the
general presumption against the loss of playing fields in the revised PPG17

encouraging local planning authorities to provide information on planning decisions to
Sport England to better monitor the outcome of planning applications affecting playing
pitches

establishing a monitoring unit drawn from government departments and organisations to
publish monthly figures on playing field disposals

setting up a national advisory panel to monitor and advise on applications to dispose, or
change the use, of school playing fields.
http://www.culture.gov.uk/sport/index.html
The Government’s Plan for Sport, DCMS (2001)
A8
This action plan was drawn up by an Implementation Group which was charged with
agreeing practical ways of achieving the aims set out in A Sporting Future for All (April
2000). It is a statement of the Government’s determination that sport in education, sport in
the community and world class sport should contribute fully to the social and cultural wellbeing of the nation.
http://www.culture.gov.uk/sport/index.html
Planning Bulletin 8: Playing Fields for Sport Revisited, Sport England 2000)
A9
This issue of the Planning Bulletin explores the use of planning obligations, both by
agreement and by unilateral undertaking, to secure sport and recreation provision.
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APPENDIX A
http://www.sportenglandpublications.org.uk/asp/product.asp?product=41&iCount=0
The Town and Country Planning (Development Plans and Consultation) (Departures)
Directions 1999, DETR (1999)
A10
This document came into force in 1999, accompanied by Circular 7/99. The Directions apply
to departure applications that a local planning authority does not propose to refuse and that
consist of certain specified types and scales of development, such as more than 5,000m2 of
retail, leisure, office or mixed commercial floor space, and ‘any other development which, by
reason of its scale or nature or the location of the land, would significantly prejudice the
implementation of the development plan’s policies and proposals’.
http://www.databases.dtlr.gov.uk/planning/npp/PubDetail.asp?thisPub=07/99
Planning Policies for Sport: A land use planning policy statement on behalf of sport,
Sport England (1999)
A11
This document sets out guiding principles which provide the context for Sport England’s
planning policies. It provides guidance on the issues Sport England wishes to see
addressed at different levels of the land use planning system, namely regional planning
guidance, structure plans/unitary development plans (part i) and local plans/unitary
development plans (part ii). This is followed by a more detailed policy section, which sets out
Sport England’s land use planning policy objectives.
http://www.sportenglandpublications.org.uk/asp/product.asp?product=274&iCount=0
Planning Across Boundaries: Guidance on local strategies for the development of
sport, Sport England (1999)
A12
This document gives guidance for local authorities on how to undertake local sport and
recreation strategies, including how to tie them into other strategies that they are preparing.
The guidance makes specific reference to assessing local need, including the undertaking of
playing pitch strategies.
http://www.sportenglandpublications.org.uk/asp/product.asp?product=11&iCount=0
The Town and Country Planning (Playing Fields) (England) Direction 1998, DETR
(1998)
A13
Issued under the Town and Country Planning (General Development Procedure) Order
1995, this Direction acts as an additional safeguard to ensure that communities retain an
adequate supply of playing fields to meet both their current and longer-term needs, in terms
of quantity, quality and accessibility. It applies to any proposal for development of any
playing field owned by a local authority or used by an educational institution.
It also clarifies the role of Sport England:
‘Where the English Sports Council [now Sport England] has objected to a planning
application, either because of the existing or resulting deficiency in local provision of playing
fields for the wider community or where alternative provision proposed would not be
equivalent in terms of quantity, quality or accessibility, but the local planning authority
proposes to grant permission, the Direction requires the local planning authority to notify the
Secretary of State for the Environment, Transport and the Regions so that he may decide
whether to intervene or leave the matter for the local planning authority to decide.’
http://www.databases.dtlr.gov.uk/planning/npp/PubDetail.asp?thisPub=09/98
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APPENDIX A
A Sporting Future for the Playing Fields of England: Policy on planning applications
for development on playing fields, English Sports Council (February 1997)
A14
This document sets out the then English Sports Council’s policy on planning applications for
development on playing fields and suggests that it should be implemented as a refinement
of the guidance in PPG17.
http://www.sportenglandpublications.org.uk/asp/product.asp?product=37&iCount=0
Statutory Instrument 1996 No 1817: The Town and Country Planning (General
Development Procedure) (Amendment) Order 1996, HMSO (1996)
A15
This document added the then English Sports Council to the list of statutory consultees
mentioned in Article 10 of the Town and Country Planning (General Development
Procedure) Order 1995.
http://www.hmso.gov.uk/si/si1996/Uksi_19961817_en_1.htm
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APPENDIX B
APPENDIX B:
Consultants’ brief for a playing pitch strategy
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APPENDIX B
Playing pitch strategy for [Xyz Council]
- Project brief [NB All text in red should be amended by the local authority (LA).]
If the LA chooses to omit a section from this project brief, the numbering sequence of the sections will
obviously need to be changed.
1. Introduction
[Xyz Council] wishes to appoint a Consultant to:
Produce a playing pitch strategy which will guide future provision and management of new sports
pitches in the [Xyz] area in the context of national policy and local sports development criteria.
This brief sets out the background to this project, its aims and objectives, proposed methodology,
timescales, outputs and management arrangements. This brief advocates that the preparation of
the playing pitch strategy should follow Towards a Level Playing Field: A guide to the
production of playing pitch strategies. This document (along with a number of ‘tools’ to manage
the process) can be found on Sport England’s website:
http://www.sportengland.org/whatwedo/places/pitch_strategy.htm
2. Background
Over the last few years, the Government has been concerned over the loss of open space and, in
particular, playing fields. In the drive towards an urban renaissance, the importance of green space
has been highlighted as an important element in creating sustainable communities. The Urban
Green Spaces Taskforce report, in 2002, stressed that it is important to look at open space in terms
of accessibility, quality and quantity in undertaking any local assessments.
Planning Policy Guidance (PPG) 17: Planning for Open Space, Sport and Recreation (ODPM, July
2002) advises local planning authorities (LPAs) to provide the strongest protection for open space,
to resist development pressures that could diminish recreational provision and to adopt a strategic
approach to the provision and protection of sports facilities. In doing this, ‘Local authorities should
undertake robust assessments of the existing and future needs of their communities for open
space, sport and recreational facilities’ (PPG17, paragraph 1). The accompanying good practice
guide, Assessing Needs and Opportunities: A Companion Guide to PPG17 (ODPM, 2002) gives
advice on the undertaking of local assessments, including the use of the playing pitch methodology
contained in Towards a Level Playing Field: A guide to the production of playing pitch strategies, for
developing playing pitch strategies.
[Xyz Council is currently reviewing its local plan/sport and recreation plan/open space strategy, of
which the preparation of a playing pitch strategy is an integral part.]
The current need to find sites for thousands of new households up to the year (2xxx) is likely to
increase pressures for the development of all land in and around urban areas and green spaces
(including playing fields) are particularly vulnerable. Within the [Xyz Council] area, there are a
number of significant developments proposed which could affect the future of existing sports fields
and playing areas, as follows:
[LA to list major housing developments/sports facility developments/sports development
initiatives/relevant ‘live’ external funding bids, etc, as appropriate.]
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APPENDIX B
3. Aims and objectives
The overall aim of this project is to:
I. Produce a playing pitch strategy for Xyz Council , which includes the development of policy
options, an action plan and the establishment of local standards.
II. Ensure the integration of the developed strategy within the Council’s open space strategy,
which is currently being prepared.
The strategy will include the following:
[Delete or add to the following as appropriate.]
1.
A full audit of all playing pitches in the local authority area, including those not available for
community use.
2.
Full consultation with:
-
clubs
-
leagues
-
schools
-
county/regional governing bodies
-
LA officers (leisure, planning, parks and education)
-
adjoining local authorities (to explore cross-boundary issues)
-
Sport England regional office
-
town and parish councils
-
other providers of sports pitches
using an appropriate mix of consultation methods including postal questionnaires, telephone
interviews, face-to-face interviews and focus groups.
3.
Site visits with quality assessments on all sites/all secured community use sites/all ‘problem’
pitches (identified through a user survey). [LA to delete as appropriate.] These will equate to
circa XXX sites.
4.
Gathering and processing of data at the ward/parish level, with their subsequent
amalgamation into agreed sub-areas.
5.
Application of the playing pitch methodology as set out in Section 4 A1 and A2 of Towards a
Level Playing Field: A guide to the production of playing pitch strategies.
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TOWARDS A LEVEL PLAYING FIELD
APPENDIX B
6.
Analysis of the data using the Playing Pitch Model, including model scenarios for the current
year and for next year.
7.
Development of policy options, which flow from the modelling results and the interpretation
of those results in the light of qualitative factors.
8.
Clear recommendations for playing pitch provision, protection and enhancement.
9.
Development of local standards, reflecting both qualitative and quantitative issues.
10.
An action plan for the next five years.
4. Methodology
The strategy should be prepared in accordance with Towards a Level Playing Field: A guide to
the production of playing pitch strategies, which is available to download from:
http://www.sportengland.org/whatwedo/places/pitch_strategy.htm
The guidance includes the following steps (see Section 4 – Towards a Level Playing Field: A guide
to the production of playing pitch strategies for more detailed guidance):
I. Establishing the Steering Group
II. Defining – objectives, study area, sports to be included, timescale
III. Appointing the project team
IV. Producing an audit of teams and pitches – surveys, consultation, desk research
V. The Playing Pitch Model (eight stages)*
VI. Formulating policy and strategy for the future
VII. Producing an action plan
VIII. Monitoring and review
(The appointed Consultant will be responsible for Steps IV-VII.)
*The Playing Pitch Model consists of the following stages

Stage 1: Identifying teams/team equivalents

Stage 2: Calculating home games per team per week

Stage 3: Assessing total home games per week
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TOWARDS A LEVEL PLAYING FIELD

Stage 4: Establishing temporal demand for games

Stage 5: Defining pitches used/required on each day

Stage 6: Establishing pitches available

Stage 7: Assessing the findings

Stage 8: Identifying policy options and solutions
APPENDIX B
In preparing the strategy, the following should also be undertaken:
[Delete as appropriate.]

Site visits
In addition site visits are required to assess the quality of the pitches. A simple matrix scoring
system, the pitch quality assessment (PQA) has been developed and is included within the
Electronic Toolkit that accompanies Towards a Level Playing Field and this can be downloaded
from Sport England’s website. It is recommended that the same person conducts all site visits to
ensure consistency. The Consultant will need to assess all sites/all secured community use
sites/all ‘problem’ pitches (identified through a user survey). [LA to delete as appropriate.] These
will equate to circa XXX pitches.
The results from each site visit must be provided in electronic format at the end of the study.

Open space strategy
This study forms part of the Council’s overall open space strategy. In undertaking the study, the
Consultant will be expected to work with other consultants/council officers who have been
employed to undertake this work. They should therefore ensure that the results and options can
easily be fed into the overall open space strategy.
5. Outputs
A final strategy document is required, that includes the development of policy options, an action
plan and the establishment of local standards for playing fields in the Xyz area.
All information collected during the study should be presented in a form that is compatible with Xyz
Council’s IT software [insert name of local authority system] and, as necessary, Geographical
Information System [insert name of local authority system].
Six colour copies of the final document (and executive summary) should be produced, with a looseleaf copy for photocopying. The document should also be capable of reproduction in black and
white. The final report should be laid out in accordance with the structure given in the appendix to
this project brief.
The following should also be provided on CD:




full report and appendices
Access database of survey responses
Excel spreadsheet/Access database of calculations
Access database of site visits/quality report.
Page 70
TOWARDS A LEVEL PLAYING FIELD
APPENDIX B
Xyz Council shall hold copyright of all presented material. Xyz Council shall be able to distribute the
material in part or whole to any organisation or individual it determines, at no extra cost.
The work will conclude with a half-day dissemination seminar (facilitated by the Consultant)
between key partners to discuss the strategy and its future implications.
6. Fee quotation
The fee quotation should be separated into three elements to include:
[LA to delete elements that will not be required.]
Task
To include:
Fee
(a) Research and consultation
Desk research
Review of existing data/documents
Postal survey of local clubs
Football clubs (circa 150); cricket clubs (circa 60); rugby
clubs (circa 20); hockey clubs (circa 10)
Postal survey of pitch providers
50 parish councils; 40 schools/colleges; 10 independent
schools; MoD; health authority; private companies
Face-to-face consultations
Officers from Leisure, Parks and Planning departments;
Sport England officers
Telephone consultations
County governing body representatives; local sports
council; NPFA; County Playing Fields Association; other
key stakeholders; league secretaries
All information returned via surveys should be stored in
[insert name of system, eg Access 2000]
Database – pitches and clubs
Site visits
All/proportion of sites to be visited and assessed in terms
of quality using the pitch quality assessment (provided in
the Electronic Toolkit)
£
(b) Analysis
Playing Pitch Model (PPM)
calculations
All team/pitch data by ward/parish to be stored in Excel
spreadsheet (downloadable from Sport England website)
Team generation rate (TGR)
calculations
As listed in Section 4 D2 of Towards a Level Playing Field:
A guide to the production of playing pitch strategies
£
(c) Reports and presentation
Preparation of draft report
To include:
Executive summary; local context; demographic analysis;
supply and demand characteristics; key findings from
PPM; development of local standard; action plan
Mapping
Colour maps to be provided to demonstrate key findings
from PPM. Should be GIS-compatible
£
Page 71
TOWARDS A LEVEL PLAYING FIELD
APPENDIX B
Preparation of final report and
executive summary
Six full-colour copies (one unbound) plus CD containing full
report, Access database and Excel PPM spreadsheet, site
visits
Dissemination seminar
Half-day seminar with key partners to discuss the strategy
and its implications
TOTAL
£
7. Budget
The total budget for this project is a maximum of £XX,XXX. This fee is inclusive of expenses, eg
mileage, subsistence.
[or]
It is Council policy not to disclose the budget for this piece of work.
[LA to delete as appropriate.]
8. Timescale
The envisaged timescale for this project is completion within five months of the commissioning date
(anticipated [insert date]). A draft timetable is set out below:
Invitation to tender
(day month year)
Closing date for tenders
(day month year)
Interview date for shortlisted consultants
(day month year)
Project to commence
(day month year)
Draft strategy
(day month year)
Final strategy
(day month year)
The appointed Consultant will be responsible for producing their own detailed programme for
carrying out the project and for completion of stages by key target dates. This programme should
include a detailed, step-by-step timed plan prescribing methodology, specific tasks, responsibilities
and estimated time/resources to complete each step.
9. Management of the commission
The Council’s Sport and Recreation Manager will have overall management of the commission,
supported by an internal working group (from Parks, Planning and Education departments).
The Consultant is required to nominate one senior person to be in overall charge of the project and
with whom the Council shall liaise. The Consultant will be required to attend four internal working
group meetings to discuss the work in progress.
Page 72
TOWARDS A LEVEL PLAYING FIELD
APPENDIX B
10. Tenders
Three copies (one unbound) of the quotation should be received by [insert time and date], marked
private and confidential and addressed to [name, job title, address] in an envelope clearly marked
‘Playing Pitch Strategy – tender’
All tenders must include:

separate costings for each individual stage (see Section 6 of this project brief)

details of key personnel including qualifications, their specialisms and the roles they will play

a description of the approach to be adopted and the method of data collection to be used

contact details of three referees

examples of similar commissions undertaken in the past three years.
The Consultant will be selected on the basis and evaluation of their tender, which will
include price, quality, time and experience in undertaking this form of research and in this
subject field. The Council will not necessarily select the lowest tender. Consultants should
be prepared for an interview and/or to give a presentation of their submission.
11. Contact details
All enquiries with regard to this brief should be directed to:
Name
Job title
Address
Tel
Fax
Email
Page 73
TOWARDS A LEVEL PLAYING FIELD
APPENDIX C
Appendix C
Generic structure for the playing pitch strategy (PPS)
Page 74
TOWARDS A LEVEL PLAYING FIELD
APPENDIX C
Generic structure for the playing pitch strategy (PPS)
The following lists the basic sections, and contents, which a PPS should include:
Executive summary
Introduction

Why have a playing pitch strategy?

Specific issues to be tackled by the strategy

National context (PPG17, NGB Facilities Strategies, trends, etc)

Local context (key documents, demographic changes, etc)
Methodology

PPS methodology

Set structure for strategy listed by electoral wards/settlements
Audit

Supply of pitches

Demand for pitches
Analysis

Standards approach/comparison with other areas

Comparison of supply with demand (including pitch quality assessment)

Future demand

Local standard

Local policy
Recommendations

Level of current provision

Areas of over-provision and under-provision

Location issues

Quality issues

Management regime

Maintenance regime

Sports development

Implementation of local standard – local plan policy, sport and recreation plan, etc
Page 75
TOWARDS A LEVEL PLAYING FIELD
APPENDIX C
Action plan
List and prioritise areas of greatest need within the LA area, for example:

New pitches and changing rooms

Improvement works

Pitch rotation

Maintenance regime

Management regime

Work with education sector

Work with clubs

Alternative open space uses for playing fields – links to open space strategy
Conclusion
Page 76
APPENDIX D:
Consultants’ brief for playing field and pitch improvement schemes
(This brief is based upon the work by, W A Adams and R J Gibbs, (1994),
'Natural Turf for Sport and Amenity: Science and Practice’, published
and reproduced with kind permission from by CABI.)
Playing field and pitch improvement schemes
Consultants brief for Performance Quality
Standards
CONTENTS
1. INTRODUCTION
2. BACKGROUND
3. SELECTION CRITERIA
4. SERVICE STANDARDS
5. TECHNICAL FRAMEWORK
6. DETAILS OF THE TECHNICAL FRAMEWORK
6.1 Performance quality standards
6.2 Usage
6.3 Physical site survey
6.4 Development options
6.5 Preliminary budget costs
6.6 Programme of works
6.7 Tendering for capital development works
6.8 Quality control
7. FEE BIDS
8. FURTHER INFORMATION
APPENDIX A: CONSTRUCTION/UPGRADE PERFORMANCE QUALITY
STANDARD
1
INTRODUCTION
THE PURPOSE OF THIS BRIEF IS TO IDENTIFY THE PERFORMANCE QUALITY STANDARDS
WHICH MUST BE MET BY SCHEMES FUNDED UNDER THE PLAYING FIELDS AND COMMUNITY
GREEN SPACES PROGRAMME. IN ADDITION, THIS BRIEF SETS OUT A TECHNICAL
FRAMEWORK TO BE USED BY TURFGRASS CONSULTANTS, WHEN DRAWING UP PROJECTS
FOR THE AFOREMENTIONED PLAYING FIELDS AND COMMUNITY GREEN SPACES
PROGRAMME.
Adherence to the identified performance quality standards and implementation of the
technical framework will help to ensure that the applicant, funder, national governing
body and, most importantly, the user will have access to a sustainable, quality facility.
2 BACKGROUND
The launch of the New Opportunities Fund’s Playing Fields and Community Green
Spaces Programme, in Spring 2001, has resulted in £19.6 million being made
available for playing field improvements. SUBSEQUENT MEETINGS WITH THE INSTITUTE
OF GROUNDSMANSHIP, SPORTS TURF RESEARCH INSTITUTE, FOOTBALL FOUNDATION
AND NATIONAL GOVERNING BODIES HAVE IDENTIFIED THE NEED TO INTRODUCE A
TECHNICAL FRAMEWORK FOR THE INSTALLATION AND SUBSEQUENT MAINTENANCE OF
NATURAL TURF FACILITIES.
Since 1994, Sport England’s Community Capital Fund has received approximately
300 applications for natural turf facilities, of which 130 have received an award. A
number of common pitfalls have been associated with these applications, and can be
summarised as follows:

Poor contract documentation and contractual arrangements, which can seriously
affect project progress and ultimately the quality of the works

Lack of quality control during the works and particularly in relation to imported
constructional materials

Poor monitoring and supervision of the construction/maintenance works

Inadequate consideration given to the implications of maintenance (manpower,
machinery, training, budget).
3
SELECTION CRITERIA
In deciding the preferred Consultant, particular reference will be given to the
following:

understanding of the technical brief

the ability and resources to meet the deadlines identified

total cost

willingness to attend an interview and/or give a presentation of any submission

references (the names and contact details of at least two clients must be
submitted for reference purposes)

the qualifications and expertise to meet the following criteria:
a. a recognised plant or earth science degree
b. currently acting as an independent full-time consultant in the turfgrass
industry (local authority in-house employees may be able to satisfy this
specific criterion)
c. no formal association or understanding with any commercial organisation
that could influence his or her independence
d. professional indemnity insurance (evidence of cover and details of all
claims to be provided on request)
e. a written code of ethics which identifies the following:
4
-
all promotion or advertising materials are clear, accurate and
incapable of misleading in any way
-
trading terms and conditions shall be expressly agreed prior to any
services commencing
-
services will be provided to the best of their ability and they will use
their best endeavours to satisfy the Client’s requirements
-
no services will be provided except where the Consultant knows that
their experience and qualifications mean that the identified service can
be supplied to the highest standards
-
all the relevant laws, regulations and codes of practice will be fully
understood and observed
-
there shall not be any understanding with any supplier or
manufacturer which results in the Consultant (or their employer)
directly or indirectly benefiting from the use of that supplier or
manufacturer.
SERVICE STANDARDS
The Consultant will:
5

identify a lead consultant who will be the main contact person for the Client

undertake a physical site survey within one month of receipt of the preliminary
user brief

provide a report to the Client within three weeks of the physical site survey

undertake a follow-up visit before the expiry of the defects liability period (for
new construction schemes), or approximately 12 months following any
upgrade works

provide a report to the Client within two weeks of the follow-up visit.
TECHNICAL FRAMEWORK
The Consultant must adhere to the following technical framework. This identifies
work stages into which the process of developing, constructing/upgrading and
administering natural turf facilities is divided.
The technical framework includes:








PERFORMANCE QUALITY STANDARDS
USAGE
PHYSICAL SITE SURVEY
DEVELOPMENT OPTIONS
PRELIMINARY BUDGET COSTS
PROGRAMME OF WORKS
TENDERING FOR CAPITAL DEVELOPMENT WORKS
QUALITY CONTROL.
THE ABOVE ARE EXPANDED IN THE FOLLOWING SECTION.
6
DETAILS OF THE TECHNICAL FRAMEWORK
6.1 PERFORMANCE QUALITY STANDARDS
The Construction/Upgrade Performance Quality Standard in Appendix A sets out the
minimum standard that must be met by a playing field. Cricket-only schemes must
meet the appropriate performance quality standard identified within the ECB, Cricket
Pitch Maintenance: Guideline specification for local authorities.
6.2 USAGE
The assessment of usage and the standard of facilities required will be based upon
the user brief/management information provided by the Client:
- the sports to be played and at which time of year (month by month)
- the expected level of surface performance (local league, regional/divisional league,
etc)
- the number of games per pitch per week
- the number of hours per pitch per week for training
- any need/requirement for phased development
- the need for floodlights
- whether any areas require to be kept in use during construction
- EXISTING GROUNDS MAINTENANCE CONTRACT DOCUMENTATION, INCLUDING
SPECIFICATION OF WORKS.
6.3 PHYSICAL SITE SURVEY

Visual assessment of surface and drainage conditions, topography, soil
examination and analysis (where appropriate). This must examine:
- THE POTENTIAL LAYOUTS
- the potential trouble spots
- the quality and depth of the surface layers, including the topsoil
- the site’s natural drainage capacity
- land drainage discharge points, mains water, electricity and gas supplies
(where known)
- where appropriate, assessment of the site’s ecology.

Detailed survey, with levels, to establish the key features of the site. Areas for
consideration are:
- The topography of the site will determine the need for any level adjustment.
Sites with significant slopes will need to be regraded in order to produce playing
surfaces with acceptable gradients.
- Watercourses: where drainage improvements are required a positive outfall
should be identified into which water from the site can be discharged. The Client
will need consent from bodies such as the Environment Agency and/or the local
authority if utilising existing watercourses or surface water drainage systems.
- Physical structures, such as retaining walls and fences.
- Planting, including the location and condition of trees. The Client must be
aware of any tree preservation orders.
- Where appropriate, the site’s ecology.
- Site boundaries/perimeters: condition and ownership (where known at the time
of visit).
- The location of main services (where known at the time of visit).

Ground conditions. Areas for consideration include:
- The general underlying geology of the site including the type of soil and drift.
This information can often be obtained from geological maps.
- Soil resources: the quality and depth of the topsoil and the nature of the
underlying subsoil.
- The site’s natural drainage capacity including the permeability of the soil and
subsoil. Reliable information can be obtained from on-site sampling and expert
laboratory analysis.
- The history of the site: it is important to establish whether the site has been
used as a formal tip or if any ‘fly tipping’ has taken place.
- All reclaimed sites should be treated with caution. Former household refuse tips
are vulnerable to localised settlement and the production of hazardous gases.
Glass and other debris in surface soils are hazardous to players, while the
presence of asbestos, heavy metals or toxic chemicals can give rise to further
complications.
- Rainfall levels will affect the performance of all surfaces. Areas of high
prevalent rainfall will need higher standards of construction and drainage.

Soil analyses (where appropriate). The visual examination of the soil may be
complemented by a few analyses, where the Consultant considers this
appropriate. Sampling depth must be recorded. The three most useful soil
analyses are:
- PARTICLE SIZE DISTRIBUTION
- PH AND AVAILABLE P + K
- organic matter content.
An exception to these quite basic analyses is when it is suspected that the site
has been chemically contaminated. If contamination by heavy metals is
suspected, guidance must be sought from the Client.
Guidelines on dealing with specific major issues, such as drainage, steep slopes or
the quality of soil conditions with recommendations on appropriate techniques.
- PHOTOGRAPHIC RECORD
- PROVISION OF A PHOTOGRAPHIC RECORD OF THE FACILITY (PRE- AND POSTCONSTRUCTION/UPGRADE).
6.4 DEVELOPMENT OPTIONS
Presentation and discussion of options for construction/upgrade. Cost-efficient
refurbishment/upgrade options must be identified, for example:
- programme of renovation works
- identification of efficient layouts that are easier and more economic to construct
and maintain
- properly constructed pipe-drained pitches can be upgraded by adding further pipedrains to achieve a more intensive system. They can be supplemented with
additional slit-drains to improve the overall rate of drainage from the playing surface
- identification of appropriate maintenance programmes.
6.5 PRELIMINARY BUDGET COSTS
IDENTIFICATION OF PRELIMINARY BUDGET COSTS FOR ANY CAPITAL DEVELOPMENT
WORKS.
6.6 PROGRAMME OF W ORKS
The following timetable (extract taken from ‘Natural Turf for Sport and Amenity:
Science and Practice ' by W A Adams and R J Gibbs, published by CABI, 1994,
page153) identifies a programme of works for the reconstruction/upgrading of a
winter games pitch in the UK with no loss of playing time in the season:

October to December: Prepare contract documents and drawings.

January: Meet potential contractors on site, discuss construction problems,
and obtain completed tenders.

February: Make final selection of Contractor on the basis of tender price,
reliability, availability and track record.

March: Engage Contractor to begin work immediately the pitch becomes
available.

April/May: Complete work during May to allow 80–100 days between sowing
grass seed and beginning of playing season.
More precise work and timing will depend upon the Consultant’s
understanding of the Client’s objectives, as well as the materials involved in
the construction.
6.7 TENDERING FOR CAPITAL DEVELOPMENT W ORKS
IF REQUIRED, THE CONSULTANT WILL BE AVAILABLE TO OFFER ADVICE ON THE
FOLLOWING:
- FORM OF CONTRACT, INCLUDING: CONDITIONS AND PRELIMINARIES, SPECIFICATION
OF W ORKS, BILL OF QUANTITIES, DRAWINGS, ETC
- CONTRACTOR SELECTION
- Evaluation of construction/upgrade tenders; post-tender meetings;
recommendations on tender acceptance.
6.8 QUALITY CONTROL
The facility must be measured against the Construction/Upgrade Performance
Quality Standard (Appendix 1) [no such thing here – what about Appendix C?] when
the initial physical site survey is undertaken. The findings of this assessment will be
recorded on the Pitch Construction/Upgrade Monitoring document (Appendix 2)
[again, no such thing], and included within any subsequent report. Cricket-only
schemes must be measured against the appropriate performance quality standard
identified within the ECB, Cricket Pitch Maintenance: Guideline specification for local
authorities. The findings of this assessment will be recorded and included within any
subsequent report.
The facility must again be measured against the Construction/Upgrade Performance
Quality Standard (Appendix 1) when the follow-up visit is undertaken (before the end
of the defects liability period for new construction schemes or approximately 12
months after the completion of any upgrading works). Cricket-only schemes must
again be measured against the appropriate performance quality standard identified
within the ECB, Cricket Pitch Maintenance: Guideline specification for local
authorities. The findings of this reassessment will be recorded and included within
any subsequent report.
7
FEE BIDS
Submissions should include details of:

the proposed consultancy

the project staff and their experience

the proposed working and liaison arrangements

any sub-consultants, if required

the fee bid, including daily rates and expenses.
These should be received by noon on day/month/year and returned to the address
below.
8. FURTHER INFORMATION
Insert Client details.
APPENDIX A:
Construction/upgrade performance quality standard
ELEMENT
LIMITS
Ground cover (%)
>70 for SH 25–30
METHOD OF TEST
BS 7370: P3 A6
>80 for SH 30–35
Broad-leaved weeds (%)
Sward height (mm)
<10
BS 7370: P3 A6
20–60 PS
BS 7370: P3 A3
20–75 SM
Thatch depth (mm)
<5
BS 7370: P3 A7
Hardness (grams)
35–200
STRI method of test using a 0.5kg
Clegg Impact Hammer from a drop
height of 0.55m
Water infiltration rate (mm/hr)
5
BS 7370: P3 A8
Evenness – 2 metre straight edge
<20mm
BS 7370: P3 A4
<1.25%
BS 7370: P3 A5
Slope – direction of play
Across play
pH value
<2.5%
5.5–7.5
ISO 10390
<32mm
Particle size distribution
GUIDANCE FOR ROOTZONE LAYER
Maximum diameter
[Please address mix of type sizes/styles and lack of alignment. I’ve tried without success to range left everything in the first column!]
KEY: SH = Sward height
PS = Playing season
SM = Summer maintenance
APPENDIX E:
Pitch sizes
Pitch sizes - maximum and minimum
Sport
Type
Min size
Max size
Safety margins Hectares
max with
safety
L
W
L
W
Side
End
Source Notes
Football
Senior
90
46
120
90
9
6
1.4
1
Football
Youth
70
42
82
56
3
3
0.5
2
Football
Minis U9/10
46
27
55
37
3
3
0.3
3
Football
Minis U7/8
27
18
46
27
3
3
0.2
4
Cricket
Senior
46
46
-
-
-
-
1.6-2.0
5
2, 3
Cricket
Junior
37
37
-
-
-
-
-
6
2
Rugby union
Senior
-
-
144
69
3
5
1.2
7
Rugby league
Senior
100
55
122
68
3
6
1.0
8
Hockey
Senior
-
-
91
55
5
3
0.6
9
Sources
1 Football Foundation, Facilities Data Sheet 3
2 English Schools Football Association
3 Football Foundation, Facilities Data Sheet 3
4 Football Foundation, Facilities Data Sheet 3
5 Sport England, Natural Turf for Sport (Design Guidance Note)
6 Sport England, Natural Turf for Sport (Design Guidance Note)
7 Sport England, Natural Turf for Sport (Design Guidance Note)
8 Sports Council, Outdoor Sports: Handbook of sports and recreational building design, Vol 1
9 Sport England, Natural Turf for Sport (Design Guidance Note)
Notes
1 Not yet adopted by FA. FA currently working towards a formal standard for youth
football.
2 Minimum radius to boundary from centre of pitch in use.
3 To accommodate winter pitches on outfield.
4 Dimensions for grass pitch.
1
4