The Provision of Sports Pavilions and Changing Rooms Provided by County Borough Council

A report by the Education and Leisure Scrutiny Committee Task and Finish Group

April 2003

FOREWORD

I am delighted to present the final report of the Education and Leisure Scrutiny Committee Task and Finish Group. The report considers the provision of pavilions and changing rooms provided by Caerphilly County Borough Council.

Pavilions and changing rooms contribute to some of the Council’s key strategies, including those aimed at bringing benefits to the local , economy, health and education. Caerphilly County Borough Council has some 75 pavilions and changing rooms in its ownership. These are in regular use by clubs playing a variety of sports including rugby, football, cricket, bowls and tennis. As well as satisfying sporting needs, pavilions have the potential as meeting places for other clubs and community groups.

This report details the Council’s pavilion portfolio, highlights the condition of individual pavilions and changing rooms and explores the different management arrangements available for these important community assets. The report’s recommendations are challenging and a step change from traditional thinking and resource provision. That said I believe they are achievable and a good starting point for raising the standard of pavilions and changing rooms within the Caerphilly County Borough.

Finally, I would like to thank the valuable contributions made by members of this task and finish group and those officers who assisted in the production of this report. I urge the Education and Leisure Scrutiny Committee to endorse this report and Cabinet to implement its recommendations.

Gill Jones Chairman Education and Leisure Scrutiny Committee Task and Finish Group

1 CONTENTS

Page Foreword 1

Introduction 3 Terms of Reference 3 Membership of Task and Finish Group 3 Committee Secretariat 3 Contributions 3 Methodology 3

The Portfolio 5 Pavilions Defined 5 The Portfolio 5 Table of Pavilions and Changing Rooms by 5 Electoral Ward The Sports Council for Sportlot 7 Capital Grant Scheme

Condition 9 Background 9 Condition Factors 9 Age and Construction 9 Pavilion Users 9 Vandalism 9 Maintenance 10 Table to show the Council’s portfolio of 11 pavilions and changing rooms detailing, types of sports team users, a description of each pavilion and its condition.

Management Arrangements 23 Overview of Current Arrangements 23 Estimated Pavilion Income and Expenditure 23 Statement 2002/03 Current Management Arrangements 24 Reorganising the Current Management 25 Arrangements Leasing Pavilions and Changing Rooms to 27 Users

Conclusions 29

Recommendations 30

Annex – List of pavilion lease agreements 31

2 1. INTRODUCTION

Terms of Reference

1.1 The terms of reference agreed at the task and finish group’s first meeting on 6th November 2002 is outlined below:

To establish the distribution, condition and use of sports pavilions provided by Caerphilly County Borough Council, consider future provision and identify options for refurbishment and management arrangements.

Membership of Task and Finish Group

1.2 The Task and Finish Group was made up from the following members of the Education and Leisure Scrutiny Committee:

Councillor Mrs G M Jones (Chair) Councillor R Cook Councillor D M Gray Councillor S Jenkins Councillor S Lewis Councillor E G Morgan Councillor M F Pritchard Councillor R Woodyatt Councillor D Potter Councillor D Hardacre

Committee Secretariat

Jonathan Jones Scrutiny Co-ordinator and Task and Finish Group Support Officer Dorothy Phillips Committee Services Officer

Contributions

1.3 The Task and Finish Group would like to thank David Hopkins (Director of Education and Leisure), Peter Gomer (Head of Lifelong Learning and Leisure), Derek Price (Principal Parks and Open Spaces Officer) and their staff who kindly provided information and advice during the development of this report.

Methodology

1.4 In completing this report, the Task and Finish Group undertook the following tasks:

1.5 Conducted site visits to the following sample of pavilions on 4th November:

3 Name of Pavilion Location

Brithdir Cricket and Football Pavilion Brithdir

Gelliwen Football Pavilion Above

Location for proposed new sports development New Tredegar comprising of pavilion, changing rooms, pitches and multi use games area.

Islwyn Park Pavilion

Ynysddu Cricket and Football Pavilion

Longbridge Baths

Ystrad Mynach Bowls Pavilion

1.6 Held meetings of the task and finish group on 6th November 2002, 8th January 2003 and 17th March 2003.

1.7 Met with pavilions users’ Peter Szpadt (Nelson Cavaliers FC and Chairman of the Senior Football League) and Barry Horsman ( FC) on 6th November.

1.8 Considered the following reports:

Title of Report Author

Pavilions and Changing Rooms Derek Price, Principal Parks and Open Spaces Officer

Table of Pavilion Data Keith Perkins, Parks Facilities Manager

Property condition surveys for Football Property Services Pavilion, Trelyn Park Pavilion, Ty Isaf Football Caerphilly County Borough Pavilion, Rugby Pavilion, Morgan Jones Council Park Changing Rooms, Ystrad Fawr Pavilion, Ystrad Mynach Bowls Pavilion, Pontymister Welfare Bowls Pavilion and Stadium.

Information Guide ‘Sports Pavilions and Team SPORTLOT Changing Accommodation’.

Playing Fields within Caerphilly County Borough Head of Lifelong Learning Council – An assessment of current and future and Leisure requirements.

4 2. THE PORTFOLIO

Pavilions Defined

2.1 For the purpose of this report, there are two distinct types of building in use by sports users; changing rooms and pavilions. Changing rooms provide essential but basic facilities for outdoor sports. Pavilions provide additional accommodation such as a lounge or hall, which can be used by community groups for non-sport activities e.g. play groups or the St Johns Ambulance.

The Portfolio

2.2 Caerphilly County Borough Council owns a total of 75 pavilions and changing rooms that are located throughout the county borough (29 out of 33 wards). In addition to the council’s provision of pavilions and changing rooms there are a number of additional facilities that will be managed by locally formed Sports Associations. The formation of independent Sports Associations is a requirement of the Sports Council for Wales Sportlot Capital grant scheme. In addition to the 75 pavilions there are a number of clubs who manage their facilities under lease agreements. A list of current lease agreements is contained at Annex 1.

Table of Pavilions and Changing Rooms by Electoral Ward

2.3 The following table highlights by electoral ward, the number of pavilions and changing rooms in the ownership of Caerphilly County Borough Council. A full assessment of current provision and future needs for pavilions and playing fields is contained in the draft report ‘Playing fields within Caerphilly County Borough Council – An assessment of current and future requirements’ dated February 2002, compiled by the Head of Lifelong Learning and Leisure.

Number of Electoral Ward Pavilions/ Name of Pavilion/ Changing Rooms Changing Rooms 2 • Aberbargoed Welfare • Aberbargoed Rec 4 • Abercarn Welfare (Cricket and Rugby Pavilion) • Abercarn Welfare (Football Pavilion) • Abercarn Welfare (Bowls) • Feeder Row 2 • Abertridwr Welfare • Bowls Argoed 2 • Markham Changing Rooms • Holly Bush Rugby Changing Rooms Bargoed 2 • Bargoed Stand • Bargoed Bowls , 4 • Bedwas Bowls (on licence) and • Llanfabon Drive • Graig-Y-Rhacca • Machen Welfare Blackwood 2 • Blackwood Showfield • Libanus

5 1 • Cefn Fforest Welfare 5 • Pandy Park Crosskeys • Waunfawr Park Main Pavilion • Waunfawr Park Cricket Pavilion • Waunfawr Park Green Box Unit • Cross Keys Bowls Pavilion (on licence) Crumlin 4 • Croespenmaen Pavilion • Hafodyrynys Green Box Unit • Kay Field, Crumlin • Football Field Pavilion/Club House 2 • Deri Rugby Pavilion • Fochriw Pavilion 1 • Gilfach Bowls 1 • Llanbradach Football Changing Rooms 1 • Maesycwmmer Changing Rooms Morgan Jones 2 • Morgan Jones Bowls Pavilion • Morgan Jones Changing Rooms Virginia Park 1 • Virginia Park Caerphilly (Green Box Unit) Moriah 5 • Pavilion • Abertysswg Green Box Unit • Eisteddfod Field Rhymney • Rhymney Bowls • Rhymney Changing Rooms Nelson 1 • Nelson Wern Newbridge 5 • Fields Park, Newbridge • Newbridge Bowls Club • Pantside, Pavilion 1 • Pantside, Pavilion 2 • Pentwynmawr Changing Rooms New Tredegar 5 • Brithdir Welfare • Gelliwen (top of Markham Mountain) • Grove Park Bowls, Rugby and Football Club • New Tredegar Green Box Changing Rooms • Philipstown Green Box Changing Rooms Penmaen 1 • Oakdale Pavilion 4 • Britannia Playing Fields • St Davids, Pengam • Trelyn Changing Pavilion • Ynys Changing Rooms, Pengam Penyrheol 1 • Aneurin Park, Caerphilly Pontllanfraith 3 • Bryn Field • Bowls, Cricket Football Pavilion • Islwyn Park Stand Pontlottyn 2 • Pontlottyn Rec • Pontlottyn Welfare Risca West 6 • Tan y Bryn (leased to Pontymister Youth A.F.C.) • Pontymister Sports Pavilion Section 1: Bowls Club • Pontymister Sports Pavilion Section 2: Cricket Club • Pontymister Sports Pavilion Section 3: Upstairs Flat • Ty Isaf Bowls • Ty Isaf Football Club • Fernlea • Longbridge Baths

6 St Cattwg 2 • Tir-Y-Berth • Welfare • Claerwen Ynysddu 2 • Ynysddu Welfare • Community Centre/Changing Rooms Ystrad Mynach 3 • Ystrad Mynach Bowls Pavilion • Ystrad Fawr Changing Rooms

The Sports Council for Wales Sportlot Capital Grant Scheme

2.4 One of the main benefits of the recent facility audit undertaken to confirm the status of the Council’s facilities, was the identification of several “life expired” facilities. The Sports Council for Wales-Sportlot Capital grant scheme has offered a most welcome lifeline to assist in the replacement of facilities through joint working initiatives between the Council and locally formed Sports Associations. The Sports Council for Wales (SCW) provides a range of funding aimed at achieving increased sports participation or improved standards of performance in sport and by utilising this funding route projects can normally proceed using a funding ratio of 80:20. This represents an excellent maximisation of limited local funds.

2.5 The following table provides a list of projects that have either secured Sportlot funding or have applications for funding under consideration.

Project Current Description of Project Value Position Aber Valley Approved Redevelopment of Senghenydd £594,692 Sports contractors Welfare and land at Ridgeway Village Association on site to include: • Construction of 4 team changing room with social area for bowls. • Construction of multi-use games area (MUGA). • Improvements to cricket ground to include installation of artificial cricket wicket. • Construction of new rugby pitch. Owain Glyn Part 2 Application for a 4 team changing £330,000 Dwr, assessment room. Caerphilly April 03 New Tredegar Part 2 New 4 team changing room and bowls £500,000 Sports approval social area. Association given on Conversion of existing tennis courts to Grove Park, 7/03/03 MUGA. New Tredegar Construction of additional rugby pitch. Hafodyrynys SCW-Part 1 Replacement of pavilion with a new 2 £225,000 Welfare forms under team changing room. preparation to be submitted in April 03

7 Pontlottyn SCW-Part 1 Application for a new pavilion Approx. Welfare Blast forms under £250,000 AFC preparation, to be submitted in April 03

2.6 There are several other on going initiatives to improve changing rooms and pavilions. These are listed below:

Potential future Sportlot funding projects

Trelyn Park New pavilion, ground improvements and possible lease of playing areas – subject to detailed discussion and agreement. Ystrad Mynach Improvements to parks facilities to include for replacement- Welfare Park changing facilities for bowls club.

Potential Non-Sportlot funded pavilion refurbishment projects

Longbridge Baths Potential lease to local Sea Cadets with a view to building complex refurbishment by the voluntary sector. Cross Keys Bowls Renewal of changing rooms, funded by grant from LRF- facility Club to be leased to club on completion.

Joint use initiatives

Ystrad Mynach College and C.C.B.C. New changing rooms. Building partnership arrangement. contractor currently on site -CCBC financial contribution £70,000, providing changing facilities for organised sports users adjacent to park and playing fields.

Newbridge Partnership New 4 team changing room. MUGA with floodlights. Cost £500,000. Project being progressed

8 3. CONDITION

Background

3.1 The Council’s stock of changing rooms and pavilions were either built or bought by this authority’s predecessors, with the age of the buildings ranging from the 1920s to the early 1990s. Therefore, there is little consistency between the design, standards, age or condition of the buildings. The portfolio ranges from large good quality brick buildings in good condition to small, prefabricated temporary structures in need of replacement.

Condition Factors

3.2 The condition of pavilions is dependant on a number of different factors, including:

• Age • Construction • Pavilion Users • Vandalism • Maintenance

3.3 These factors are explored in more detail below:

Age and Construction

3.4 As already mentioned, the age of the Council’s pavilions range from the 1920s to the 1990s. All buildings have a natural economic life span, which is largely dependant on the materials used for construction and the maintenance invested in these materials during the lifetime of the building. Members of this task and finish group saw examples of pavilions built from timber and brick as well as a prefabricated building which reflect the overall pavilion building stock.

Number of Pavilion users and sports played

3.5 The pavilions support a mixture of team sports in terms of the variety of sports played, league standards and age groups. Usually, three or four different teams, often playing different sports, share the same pavilion. That said, the number of pavilion users could change on a year-to-year basis as new teams are established and others fold. For this reason it is difficult to predict with any certainty the future usage levels of pavilions. Not surprisingly, pavilions with a large number of different users tend to receive greatest wear and tear. Bowls clubs who have regular use, or are the main user of a pavilion, generally ensure that the building is kept in a good condition.

Vandalism

3.6 Vandalism is a problem within the county. Pavilions are often positioned in open spaces away from local housing and are targeted by vandals. Pavilions are damaged by fire and graffiti, windows smashed, and roofs damaged.

9

Maintenance

3.7 During discussions with this task and finish group, officers reported that since 1996 and the establishment of this authority, there has not been a proactive programmed maintenance schedule/budget for pavilions. Clearly, this is an issue of concern as the absence of programmed maintenance has resulted in the steady decay of buildings. Planned building maintenance allows the identification of peaks and troughs of expenditure to be identified and budgeted for over a number of years. It would also allow management to take decisions about the cost effective life cycle of pavilions rather than continue to spend money on reactive maintenance for buildings with limited user life.

3.8 During the task and finish group’s visit to a number of pavilions on 4th November 2002, members noted that the majority of the buildings were in poor condition. Exceptionally, Ynysddu Welfare stood apart as being a pavilion in good condition, however, members commented that a number of tiles in the showers were loose or missing. Whilst the cost of repairing these minor faults would be modest, without repair the damage would continue to worsen and cost of repair would increase. For example, the damaged tile on the shower wall could ultimately result in the whole wall being re-plastered and re-tiled for the cost of repairing a few loose or missing tiles now.

3.9 Members were surprised to find that minor faults were not recorded and repaired without delay. Each pavilion has a long list of outstanding maintenance issues that cannot be completed due to a lack of available resources.

3.10 The table overleaf identifies the council’s stock of pavilions, a description of the pavilion, its suitability and a property condition assessment. It should be noted that the property condition assessment categories included in the table are best estimates made by the Outdoor Facilities Manager and Parks Development Officer. Accurate data could be achieved by commissioning Property Services to carry out detailed building condition surveys.

3.11 The property condition ratings are defined by a national asset management standard and are listed below:

Category Definition

A Good. Performing as intended and operating efficiently. B Satisfactory. Performing as intended but exhibiting minor deterioration. C Poor. Exhibiting major defects and/or not operating as intended. D Bad. Life expired and/or serious risk of imminent failure.

10 3.12 The following table shows the Council’s portfolio of pavilions and changing rooms, types of sports team users, a description of each pavilion, its suitability and condition. (Please note that the property condition ratings are best estimates and are not the results of full condition surveys)

Pavilion/ Changing Description Suitability Rating Property Property Condition Condition

Rooms Rugby Seniors Rugby Mini/Youth Football Seniors Football Juniors Cricket Seniors Cricket Juniors Bowls Tennis Aberbargoed Aberbargoed Brick building Insufficient room B Rec consisting of large to accommodate ! ! ! foyer, 2 changing senior rugby and rooms, showers, football teams at referee room, the same time. kitchen, 2 toilets and store room. Well maintained by pavilion users. Aberbargoed Poor, but repairable. Too small for both D Welfare rugby and football ! teams. Abercarn Abercarn Large new brick Changing rooms C Welfare ! ! ! ! ! building consisting of too small for rugby (Cricket and office, 2 toilets, large teams. Insufficient Rugby Pavilion) function room with showers and boiler bar, kitchen, 2 large too small to supply changing rooms, hot water for both referee room and rugby teams. large shower room. Well maintained by pavilion users. Abercarn Good new brick Good facility for A Welfare building consisting of football teams, ! ! 2 changing rooms, although would be (Football Pavilion) adequate shower too small for rugby room and referee users. room. Abercarn Good new brick Excellent bowls A Welfare (Bowls) building consisting of facility. ! kitchen, bar, men’s toilets (lady’s toilets are located in a separate building), changing room, function room, store room and shower room. Well maintained by members. Feeder Row Fairly new brick The changing C Cwmcarn building consisting of rooms are not ! foyer, disabled toilet, suitable for mixed large changing room, sex mini football communal shower teams and need to room, and referee be divided. The room. pavilion needs decorating inside. Aber Valley

11 Abertridwr Large building on 2 Fair. C Welfare levels. Lower level - ! ! ! ! ! function room used by bowls club, kitchen and toilets. Upper level – 5 changing rooms, large shower room, toilets and 2 referee rooms. Pavilion in need of decoration. Boiler and showers need to be replaced. Senghenydd New Building under construction via Sportlot Bowls Argoed Markham Brick building with 4 Good B Changing ! ! ! changing rooms, Rooms shower room, referee room, 2 store rooms, toilet, small function room and kitchen. Pavilion in need of decoration. Holly Bush Brick building in fair Good. B Rugby ! condition consisting Changing of changing rooms, Rooms showers and referee room. The rugby club recently decorated the pavilion. Bargoed Bargoed Stand Inadequate capacity Poor C ! ! ! due to the number of playing fields supported by the pavilion. Bargoed Bowls ! Sevenside Generally suitable B prefabricated timber for current use building, generally good condition

Bedwas, Trethomas and Machen Bedwas Bowls New building Excellent bowls A (Managed under ! consisting of kitchen, facility. a licence large lounge, bar, agreement). toilets, office and 2 changing rooms. Llanfabon Brick building Fair. Showers B Drive consisting of 2 need to be ! changing rooms with extended, as there showers, referee are only 3 in each room, and store changing room. In room. addition, the pavilion requires decorating internally and externally.

12 Graig-Y- Building consisting Fair – Too small B Rhacca of 2 changing rooms for rugby. Larger ! with showers and pavilion required toilets. to service demand from new developments. Also, additional showers required as only 4 showerheads in pavilion. Brick construction Adequate for C Machen ! with flat felt type council use Welfare roof Soccer Pavilion Blackwood

Blackwood Brick building with Good. However, C Showfield large function room there are ! ! ! ! ! ! (not used in winter), insufficient toilets kitchen, lounge with and tennis courts bar, 2 changing require rooms, shower room refurbishment. and storeroom. The pavilion is well maintained by bowls club. In addition to the sports clubs, a playgroup also uses the club. Libanus Brick building with 2 Fair. The pavilion B changing rooms, requires decorating ! shower room, referee internally and room, kitchen, externally. storeroom and 2 toilets. Cefn Fforest Cefn Fforest Brick building Fair. The pavilion B Welfare comprising of foyer, is adequate for ! ! ! kitchen, 2 changing football teams but room, shower room, is small for rugby store room and male teams. In addition, and female toilets. there are an inadequate number of showers. Crosskeys Waunfawr Park !* !* !* !* ! Pandy Park ! Brick construction Generally suitable A with community for current use rooms included

13 Waunfawr Park Brick building Very good pavilion B Main Pavilion comprising of 4 and facilities, ! ! ! ! ! changing rooms, 2 however, it is in communal shower need of decorating. rooms, 2 referee rooms with showers, male and female toilets, function room, kitchen and storage room. * Approximately 12 teams use this facility Waunfawr Park ! Brick and Wooden Offers good B Cricket Pavilion Pavilion on 2 levels accommodation consisting of 2 for the cricket and changing rooms with mini football users, a communal shower, however, the toilets, storeroom, pavilion is in need lounge with bar and of decoration. small kitchen. Waunfawr Park ! ‘Deluxe’ type unit. Very good A Green Box Unit Very large with 2 condition and well changing rooms, looked after by shower, referee room users. Ideal for the with shower, large mini rugby storeroom, kitchen, team users. and toilets. Waunfawr Park ! A new changing A Old Bowls room is currently Pavilion under construction. Crumlin Croespenmaen New brick building Good football C Pavilion comprising of 2 pavilion but small ! !* changing rooms, for rugby teams. large meeting room/kitchen, toilets and storeroom. The pavilion suffers from consistent vandalism. * occasional Hafodyrynys ! ! Green box unit (large Good football B Green Box Unit type2) comprising of pavilion but small changing room with for rugby teams. showers, referee room and storeroom. Kay Field, ! Brick building Fair B Crumlin comprising of 2 changing rooms, shower room, referee room, toilet and store room. Trinant Brick building Good. Trinant FC B Football Field ! comprising of foyer, is considering Pavilion/Club lounge with bar, bar, leasing the House 2 changing rooms, pavilion and shower room, referee ground from room, storeroom, and CCBC. kitchen/laundry/dryin g room. Darren Valley

14 Deri Rugby ! ! Prefab building Facilities are B Pavilion comprising of 2 adequate, however, changing rooms with pavilion requires a showers, referee new roof and room and toilets. showers expensive to maintain. Fochriw ! ! Wooden pavilion Poor. The building D Pavilion comprising of foyer, is in very poor 2 changing rooms condition and is with showers and useable only referee room. because of the considerable work carried out by the football club. Gilfach Gilfach Bowls ! Controlled by Generally suitable B Pavilion management for current usage committee with CCBC input on utilities and general maintenance Brick and wood construction Llanbradach Llanbradach Brick and wood Poor. In the short C Football building on 2 levels term the building ! ! ! requires decorating Changing consisting of 4 changing rooms, 2 internally and Rooms externally, showers shower rooms (First and heating on (Premier floor), 1 shower room football ground ground floor require (ground floor), replacement and used by Welsh referee room, another referee room league) kitchen, storeroom is needed. Long term and 2 toilets. the building needs to be replaced. Maesycwmmer Maesycwmmer A brick building Fair. Building in B Changing ! attached to a need of internal Rooms community centre decoration and and comprises of 2 external facia changing rooms with boards being showers and 1 referee replaced. room. Morgan Jones Morgan Jones Wooden building In the short term C Bowls Pavilion with function room, 2 the building needs ! toilets, 1 changing a new kitchen and room and kitchen. decorating Floor covering in internally and function room externally. recently replaced. However, it is The pavilion is thought that the suffers from vandals building will need starting fires on the replacing within 5 veranda. years.

15 Morgan Jones Changing room 1 Changing rooms A Changing ! ! ! Brick building, need redecorating. Rooms toilets, communal Changing room2 changing room with recently suffered showers and from water damage storeroom. and requires repair.

Changing room 2 C Brick building, toilets, communal changing room, 4 shower cubicles with electric showers and storeroom. Virginia Park Prefab building Poor. Repairs C Dressing rooms comprising of have been agreed !* !* changing rooms with which include new showers, referee roof and repairs to room, kitchen and internal walls. toilets. This work is expected to give * indicates female another 3 to 5 teams years usage. In addition there is insufficient shower space – 3 showers in each changing room. Virginia Park Green Box Unit Pavilion not in use. C Caerphilly comprising of 2 Suitable for (Green Box changing rooms with football teams Unit) small shower rooms only. Too small and toilets, for rugby teams. storeroom.

Moriah Abertysswg Prefab building. Poor condition will D Pavilion Information about need replacing ! ! ! facilities is unknown within 5 years. but is large enough to Partial new floor accommodate both and covering football and rugby required. New teams. roof required due to constant vandalism. Abertysswg Information about Units only suitable Green Box Unit facilities is unknown for lower league except that it is only clubs. Both are in suitable for football poor condition will teams as there are 3 need replacing showers per changing within 5 years. room. Eisteddfod A brick building The pavilion is in C Field Rhymney consisting of 2 need to decorating ! ! changing rooms, 2 but is well looked showers, small after by the mini kitchen, and 2 store football users. cupboards. Rhymney Bowls Wooden pavilion The pavilion dates B consisting of large back to 1920, and ! function room, 2 while well cared changing rooms, for by the bowls kitchen and toilets club it is in need of replacement due to age.

16 Rhymney Brick building A good facility but B consisting of 4 large it is in need to Changing ! ! Rooms changing rooms with decorating. showers, 2 referee rooms and storeroom. Nelson Nelson Wern Brick building Excellent facility A comprising of foyer, that fully meets the ! ! 2 large changing needs of users. rooms with showers, kitchen, toilets and disabled toilet. Newbridge Fields Park, Brick building In good condition. A Newbridge comprising of 2 ! changing rooms with showers, referees room and storeroom. One of the last built by Islwyn BC. Newbridge Wooden building In good condition. B Bowls Club comprising of 2 The bowls club ! changing rooms, have recently function room, 2 decorated and toilets, store carpeted the room/office and lounge. kitchen. Pantside Information about The pavilions are C+C Pavilion 1 and ! ! facilities is unknown. in a fair condition, Pavilion 2 however, there are problems with the pavilion’s electrics. In addition, the extractor fans are continually vandalised and need replacing.

Pentwynmawr A brick building The pavilion is in B Changing ! ! comprising of 2 good condition and Rooms changing rooms with has recently been showers, referee decorated by the room, toilets and local football club. store room. New Tredegar Brithdir A wooden pavilion Needs to be D Welfare comprising of a small replaced. The ! ! foyer, 2 small pavilion is in very changing rooms with poor condition, showers and a toilet. with inadequate lighting, showers and heating. £8,000 recent spent repairing roof and back wall.

17 Gelliwen (top of Brick building The building is D Markham ! ! comprising of 2 small very small for Mountain) changing rooms, 1 rugby teams and in communal shower poor condition. room (with only 4 Inadequate lighting shower heads), and showers. referee room, and Needs decorating. storeroom. Only used as a fall back facility. Grove Park Pavilion confirmed C Bowls, Rugby for placement via ! ! sportlot Fund and Football Club, New Tredegar New Tredegar Green box unit Unit in responsible C Green Box Shared use with the above comprising of two condition, but long Changing changing rooms with term replacement Rooms small shower rooms needed and toilet Philipstown Green Box Unit Unit in reasonable C Green Box comprising of 2 condition, but long ! changing rooms with term replacement small shower rooms needed. and toilets, storeroom. Penmaen Oakdale Brick building The building does B Pavilion comprising of not have adequate ! ! ! function room, female toilets and

kitchen, 2 small is in need of bowlers changing decorating. St rooms, 4 rugby Johns Ambulance changing rooms, 2 also uses the toilets, 1 disabled facility. toilet and store room.

Pengam Britannia Fairly new brick The building is in B Playing Fields building comprising good condition, ! of a large function however, the

room, kitchen, building needs disabled toilets, 4 decorating and changing rooms with new floor showers, 2 referee coverings are rooms and toilets required in the kitchen and function room. The outside of the building suffers from constant vandalism and needs painting. The building could be used by community groups. St Davids, Brick building The building is in A Pengam consisting of 2 poor condition but ! changing rooms, 1 is programmed for shower room, 1 decoration this referee room, year (2002/03). kitchen, 2 toilets and storeroom.

18 Trelyn Brick and wood The pavilion is too C Changing ! ! ! ! building consisting of small to Pavilion large foyer, 4 accommodate the changing rooms with rugby and football showers, toilets, 2 teams together. referee rooms, The building is in kitchen and store need of decorating. room. Ynys Changing Large Green Box Very good B Rooms, Pengam Changing Unit condition. ! ! comprising of 2 changing rooms with showers, toilets, referee room and store room.

Penyrheol Aneurin Park, Large brick building The building is in B Caerphilly consisting of function good repair, ! ! ! room, kitchen, although facer attendant’s office, boards need storeroom, ladies and replacing and gents toilets, 4 painting. The changing rooms, pavilion is large shower room regarded as an and referee room ‘eyesore’ but could with shower. become a premiership ground for senior football teams. The opportunity also exists for community groups to make use of the pavilion. Pontllanfraith Bryn Field Fairly new brick The pavilion is in C building comprising good condition but ! ! ! ! of foyer, 2 changing suffers from rooms, communal vandalism. The shower, kitchen, male changing facilities and female toilets are fairly small for and store room. rugby teams and the showers are inadequate for all both football and rugby teams. Islwyn Park Bowls, Cricket A wooden prefab The pavilion is D Football ! ! building comprising used by a local Pavilion of function room, 2 playgroup and is changing rooms with heated by old showers, kitchen, electric heaters that office, storeroom and have very high toilets. running costs. The whole building is in a state of disrepair and needs to be replaced.

19 Islwyn Park Purpose built brick The stand is badly C Stand stand, which contains vandalised by fires ! ! 2 changing rooms and graffiti. The with showers, 3 internal storerooms, referee accommodation room, male and needs decorating. female toilets, The facility is a meeting room and poor reflection on boiler room. CCBC. Pontlottyn Pontlottyn Rec 2 changing rooms, Only adequate C shower room, toilets changing rooms ! and store room. for football teams. However, insufficient shower capacity. Pontlottyn Details not available. Building D Welfare constructed in ! 1920s and in need of replacement. Risca West Longbridge A disused 1960s Teams use the D Baths outdoor swimming changing rooms as ! pool. The building is a last resort only. in a state of disrepair with the exception of a ground floor changing rooms with showers. Major building works would be required to renovate the building. A possible partnership arrangement to bring the building back into use may be possible in the near future. Pontymister Changing rooms with Excellent facility B Sports Pavilion ! ! access to showers, that is well Section 1: Bowls male and female maintained by Club toilets, kitchen area bowls club. The and large lounge with lounge is used for bar. non- sports activities e.g. slimming club and ad hoc parties etc. The Bowls club is considering leasing the accommodation. Pontymister Changing rooms with Well kept by B access to showers, Cricket Club. Sports Pavilion ! Section 2: male and female Opportunity fort Cricket Club toilets, kitchen area the and large lounge with accommodation to bar. be used by other organisations.

20 Pontymister Consisting of living The flat is B Sports Pavilion room, 2 bedrooms, currently empty, Section 3: kitchen, bathroom, however, the Upstairs Flat toilet and veranda. opportunity exists to let the accommodation for commercial or community purposes. Ty Isaf Bowls Brick building Very well maintain A consisting of 2 by the Bowls Club. ! changing rooms, Members recently male and female extended the toilets, kitchen, and lounge, decorated lounge with bar. and re-carpeted the pavilion. Ty Isaf Football Brick building A repair A Club consisting of foyer, programme has ! ! meeting room, 2 been performed changing rooms with recently. showers, male and female toilets, referee room with shower and kitchen. Fernlea, Fairly new brick The building is in C building comprising good condition but ! of 2 changing rooms suffered from with showers. serious vandalism 2 years ago. St Cattwg Tir-Y-Berth Brick building with The building is B Steel cladding suitable for ! consisting of 2 football teams; changing rooms with however, it is in showers, toilet, need of decorating. referee room and store room Geligaer Controlled by Generally suitable B Welfare management for current usage ! committee with CCBC input on utilities and general maintenance Ynysddu Ynysddu Large brick building Very good A Welfare consisting of foyer, 4 condition except in ! ! ! ! changing rooms, with need of new front showers, 2 referee windows, doors to rooms, large function main entrance and room, kitchen and 2 a few other minor toilets. repairs. Tennis courts require repainting.

21 Wattsville Brick building Main Hall – not in B consisting of use. The building Community ! ! Centre/ changing area and is constantly Changing main hall. vandalised. Changing Area – 2 Consequently, the Rooms very large changing windows have rooms, 2 communal been bricked up shower rooms, 2 and external walls referee rooms, are covered in kitchen, store room graffiti. The and male and female opportunity exists toilets. for local community groups to use the main hall. In addition, the changing rooms could be divided to make 4 separate changing rooms. Ystrad Mynach Ystrad Mynach An old wooden Wooden building D Bowls Pavilion ! building with a newer in poor condition (Old Section) prefab extension with the back wall consisting of an and floor in need office 2 changing to replacement. rooms, male and female toilets, disabled toilet, large function room and kitchen. Ystrad Mynach Bowls Pavilion As above B (New Section) Ystrad Fawr Prefab building Pavilion recently C Changing ! ! ! ! consisting of 2 refurbished by the Rooms changing rooms with rugby club and showers, referee new shower room with shower system fitted. and toilets. However, in need of other minor works and decoration. Tan-y-Bryn Prefab building The pavilion is in A consisting of 2 excellent condition ! changing rooms with and suitable for the

showers, toilets, football team kitchen and large users. function room. Claerwen 2 prefab buildings The pavilion is not D Gelligaer (originally the toilets used and is from Ystrad Fawr unsuitable as a Park) consisting of changing room. changing area, toilet, 2 single showers.

22 4. MANAGEMENT ARRANGEMENTS

Overview of Current Arrangements

4.1 The responsibility for the management of the council’s portfolio of pavilions is delegated to the Parks Services, which is part of the Education and Leisure Directorate.

4.2 Parks Services are responsible for all functions associated with the management and operation of pavilions, including; the booking of pavilions, recommending the charging policy for pavilions and playing fields, customer liaison, commissioning maintenance and repairs through Property Services, arranging insurance cover, managing budgets, recruiting pavilion attendants, maintenance of playing fields etc. This approach provides pavilion users with a totally managed service.

4.3 A summary of the estimated income and expenditure for pavilions is provided below.

Estimated Pavilion Income and Expenditure Statement 2002/03

£ £ Income* (pavilions and changing rooms) Football and Rugby 11,004 Cricket 1,719 Nursery Groups 1,229 Special Events 314 Meetings 472 Total Income £14,738

Less Expenditure

Wages - pavilion attendants (estimated that 22,980 hours 117,198 are worked per annum) National insurance and superannuation costs 4,500 Reactive maintenance (wear and tear and vandalism etc) 75,000 Structural maintenance 57,290 Heating, lighting and water charges 73,000 Insurance 60,000 Non-domestic rates (2001/02 figures) 11,022 Cleaning materials 4,500 Waste collection 1,500 £404,010 Net estimated annual cost for the provision of £389,272 pavilions and changing rooms Cost per pavilion/changing room per annum £5,190 Cost per pavilion/changing rooms per week £99.81

* Not including the fees for the hire of pitches.

23 4.4 The table shows that while the annual income from pavilions totalled £14,738, the costs of providing the service amounted to £404,010 leaving a net cost to the Council after receipts of £389,272. An analysis of the costs associated in providing pavilions and changing rooms provide the following facts of note.

4.5 The total net cost of £389,272 can be broken down as follows:

• £132,290, or 34%, is spent on essential maintenance. • £121,698, or 30% is spent on wages, national insurance and superannuation. • £73,000, or 19%, is spent on utility charges. • £60,000, or 15%, is spent on insurance. • £11,022, or 3% is spent on non-domestic rates. • £6,000, or 1.5% is spent on cleaning materials and waste collection.

4.6 The cost per pavilion equates to:

• £1,763 spent on essential maintenance. • £1,622 spent on wages, national insurance and superannuation. • £973 spent on utility charges. • £800 spent on insurance and rates. • £80 spent on cleaning materials and waste collection.

4.7 On 20th February 2003 Corporate Management Team agreed to a notional allocation of approximately £400,000 for improvements associated with existing “community facilities “ i.e. pavilions and community centres. It is assumed at this stage that this funding will be divided on a 50:50 basis.

4.8 In addition to the above, £100,000 has been allocated for parks. It should be noted that this additional allocation is being allocated from grant money made available as part of the National Assembly’s local government financial settlement for 2003/04. Whilst this additional money is most welcome, unfortunately it is not guaranteed for future years.

Current Management Arrangements

4.8 Under the present system, the Parks and Grounds Maintenance Team have responsibility for the complete management of Council’s pavilion and changing room stock. Inherent in this structure is that the Council is liable for all operational costs and liabilities in return for a negligible rental income. As outlined above, this leaves the Council with a net annual contribution estimated at £389,272. In financial terms the income received from pavilion hire charges represents less than 4% of the true cost to the Council of providing the service.

4.10 During recent years the authority has established a “standard approach” to leasing facilities to enable clubs to have the opportunity to manage their own affairs. Leasing is also a feature of most Sports Council for Wales Sportlot grant terms and conditions of contract for a minimum period of 21years. Each application to lease is considered its own merits and involves detailed examination/investigation. This

24 involves detailed examination of property and legal conditions set by former bodies and applicable to specific locations.

4.11 Whilst the current management regime is costly for the Council, its service element of the operation is particularly user friendly for pavilion users, albeit that the buildings are largely in an unsatisfactory condition. It is likely that under the present arrangements, the condition of pavilions will continue to decline, as historically there have been insufficient resources available to both operate and invest in modernising the buildings.

4.12 In short, the status quo offers substantial benefit to pavilion users in terms of ease of use, substantial expense to the Council and little opportunity for resources to be redirected into improving the condition of the buildings.

Reorganising the Current Management Arrangements

4.13 The opportunity exists to rationalise the current management arrangements whilst retaining the Council’s overall responsibility for the management and maintenance of the pavilions. The costs associated with the delivery of the pavilion service are outlined in the table containing the estimated income and expenditure statement. The following paragraphs list those cost headings and offer suggestions for savings by moving responsibility to users or changing certain established working practices. All options can be considered on a ‘pick and mix’ basis, with the opportunity for some or all to be implemented. Any savings achieved could be reinvested into rebuilding, refurbishing and maintaining the Council’s stock of pavilions and changing rooms.

4.14 Labour Costs (wages, national insurance and superannuation) – These costs relate to the employment of Pavilion Attendants and are estimated to total £121,698, or 30% of the net pavilion budget for 2002/03. The labour costs are incurred through the employment of Pavilion Attendants who are responsible for opening, closing and cleaning pavilions. Labour costs could be reduced by revising the conditions of pavilion hire to require pavilion users to collect and return keys from council offices or leisure centres etc as well as taking responsibility for cleaning the pavilions after use. Although this option offers savings in excess of £100,000 per annum, this should be balanced against the following considerations.

4.15 It is expected that this proposal would reduce the revenue generated by pavilion hire charges, as it would seem unreasonable to maintain the current hire charge structure. Although hire charges are already very modest (e.g. £8.95 per match), they could be reduced in recognition of the users increased responsibilities. As pavilion income only accounts for 12.5% of the total labour costs, the impact would be minimal.

4.16 It should also be recognised that this proposal may not be suitable for all pavilions and officers in the Parks and Grounds Maintenance Team would need to undertake further research to ensure that keys for pavilions were accessible for all communities, especially for those without local access to council offices and leisure centres etc.

25 4.17 Pavilion Attendants are employed on annual seasonal contracts that run from August to May. Therefore, while redundancy is not strictly speaking an issue, this option would result in Pavilion Attendants not being offered future re-employment. As many Pavilion Attendants also claim income support or similar benefits, a decision to not offer future employment would affect those already on a low income.

4.18 Maintenance - Reactive and structural maintenance are estimated to total £132,290, or 34% of the net pavilion budget for 2002/03. The total is divided into £75,000 for reactive maintenance (wear and tear and vandalism etc) and £57,290 for structural maintenance.

4.19 The Parks and Grounds Maintenance Team commission maintenance from Property Services under a service level agreement. Property Services will allocate work to either to the Council’s DSO or a private contractor as necessary. For the financial year 2002/2003, approximately 60% of maintenance work was allocated to private sector building contractors and the remaining 40% to the DSO. As a general rule of thumb, all emergency work is usually allocated to the DSO as they have the necessary systems and capacity available to react quickly when necessary. Works that have a longer lead-time, say up to 30 days, are typically undertaken by a private contractor. These less urgent works are larger projects which can be most cost effectively completed by small building companies.

4.20 The cost of any maintenance work undertaken by the DSO increases with the urgency of individual job requests. Building Services has a sliding scale of ‘Priority Timescales’ that add an additional premium to the standard cost of any maintenance work. Cost premiums above the standard rate would be expected as part of the normal contract terms from any large building contractor which provides a 24-hour call out service. It should be noted that the smaller contractors operate the same systems as the DSO, however, there are no premiums other than for the out of hours service.

4.21 There are 5 levels of ‘priority timescales’ charged by Building Services and these are listed below:

Priority Description Percentage on cost

0 Emergency Out of Hours – For 50% immediate repairs required outside of normal hours. 1 Emergency. For repairs required 50% within 1 working day, or same day if request is made before 10.00am. 2 Urgent Priority. For repairs required 35% within 7 working days. 3 Priority. For repairs required within 20% 28 working days. 4 Routine. For repairs required within None 90 days.

26 4.22 Due to the high volume of small repair works requested, the Parks and Grounds Maintenance Team estimate that in an average year, 90% of all works requested from the DSO attract an additional premium charge as follows:

Priority Percentage of requests which attract Percentage on cost an additional premium charge 0 None 50% 1 15% 50% 2 60% 35% 3 15% 20% 4 10% None

4.23 The current arrangement for meeting this requirement is unsatisfactory for both the Leisure Department and DSO. The vast majority of these requests are non- technical in nature and so are particularly costly for the Leisure Department to source through the DSO. Due to the high volume of work requests, they are time consuming for the DSO to compete but account for very little of their overall turnover.

4.24 Employing directly 2 skilled handymen for general maintenance and repair duties of a non technical nature could provide the Parks and Grounds Maintenance Team with significant benefits in terms financial savings and additional capacity to undertake both reactive and planned maintenance.

4.25 A pilot exercise covering a period of twelve months adopting a secondment approach of appropriate staff from building services would be the most beneficial method. Clear benefits of service delivery and levels of work could then be established along with options for employing additional staff to cover seasonal and other short term peaks in work loads.

4.26 It is estimated that total cost of employing 2 handymen staff would total £34,000 per annum, while the annual cost of purchasing and running 2 vans is assumed at £11,000. This provides a combined total of £45,000 per annum. However, additional costs would be incurred for the purchase of training, materials and tools. The current reactive and structural maintenance expenditure is estimated to total £132,290 for 2002/03, of which approximately £50,000 is spent with the DSO. It is recognised that the DSO would still be required to undertake emergency plumbing, electrical and other building works etc. However, the vast majority of the non technical works, as well as some planned maintenance could be undertaken by the 2 handymen. The additional costs associated with employing the handymen would be off-set by reducing the need for private contractors and the introduction of planned maintenance.

4.27 Utility Charges – Heating, lighting and water charges total £73,000, or 19%, of the net pavilion budget for 2002/03. Although utility charges are a significant expenditure item, there is little opportunity for savings.

4.28 Insurance – Much like utility charges, insurance is an inescapable cost. Insurance amounts to £60,000, or 15%, of the net pavilion budget, however, assuming that the insurance contract is properly tendered, there are little opportunity for savings.

27 4.29 Non-domestic rates – This is a statutory charge which amounted in 2001/02 amounted to £11,022, or 3% of the net pavilion budget. As the Council is legally obliged to pay non-domestic rates on pavilions and changing rooms, there is no room for savings. That said, if clubs took the opportunity to lease pavilions from the council, they would qualify for rate relief of up 100%.

4.30 Cleaning Materials and Waste Collection – Are relatively insignificant costs which together amount to £6,000, or 1.5% of the net pavilion budget.

Leasing Pavilions and Changing Rooms to Users

4.31 In addition to making efficiency savings, overall management responsibility for pavilions and changing rooms could be delegated to users. Under this model clubs would form a management committee and lease a pavilion from the council at minimal cost (currently £50 per acre per annum) in exchange for taking responsibility for future maintenance and running costs. This arrangement would not necessarily need to extend to the maintenance of pitches, which would prohibitively expensive for clubs.

4.32 It is acknowledged that this arrangement would not be suitable for all pavilions and changing rooms, as users would have considerably more responsibility. There are potential benefits to users, such as access to bid for grants from the Sportlot Fund to refurbish and extend pavilions, which will allow for greater access and more flexible use of the pavilion. In addition, clubs would have the opportunity to seek charitable status, which would allow them to qualify for non-domestic rate relief of up 100%. Again, this is an advantage not available to local authorities.

4.33 Although there are benefits for clubs in leasing pavilions, these need to be carefully balanced against the disadvantages. Officers’ tentative discussions with a number of users have shown that potential running costs and the poor condition of the buildings are matters of concern. Before this option could be pursued a programme of pavilion renovation would need to be agreed so that users would be taking responsibility for pavilions after they have been restored to good repair. The Council could also consider providing an annual maintenance grant to leaseholders towards the cost of maintaining a pavilion. The grants could be funded from the running cost savings achieved through leasing the pavilions and be dependant on the leaseholders keeping the building in a satisfactory condition.

28 5. CONCLUSIONS

5.1 The Council has some 75 pavilions and changing rooms within its ownership that are located throughout the County Borough. The age and condition of these buildings vary considerably. It is concerning that over 40% of these buildings are considered to be in a condition considered to be ‘Poor - exhibiting major defects and/or not operating as intended’, or ‘Bad – life expired and/or serious risk of imminent failure. Additionally, there is no strategy in place to replace or redevelop these buildings.

5.2 There has not been a planned maintenance approach for pavilions and changing rooms since the establishment of this authority in 1996 due to constricted budgets. This is an issue of great concern as the absence of planned maintenance results in the steady decay of the Council’s pavilions and changing rooms.

5.3 The current management arrangements for pavilions and changing rooms are a large financial burden to the leisure budget. This report has identified alternative ways of providing the service that are worthy of further consideration by officers and the Cabinet Member for Education and Leisure.

5.4 The maintenance requirement for pavilions and changing rooms results in 90% of emergency repairs attracting an average additional ‘on cost’ premium of 35% above the standard rate. Two handymen could be employed to do the majority of these minor non-technical repairs as well as an amount of planned maintenance.

5.5 Although there are opportunities for efficiencies to be made under the present management arrangements, additional resources are required to maintain pavilions and changing rooms and undertake a programme of replacement.

5.6 Officers from Education and Leisure are assisting sports clubs in applying for grant aid from Sportlot to build new, and refurbish pavilions, changing rooms and playing fields. This innovative approach is applauded.

29 6. RECOMMENDATIONS

6.1 We recommend:

6.1.1 Property services undertake a full survey of the Council’s portfolio of pavilions and changing rooms to establish an accurate picture of the buildings’ condition.

6.1.2 That, as a matter of urgency, a schedule of works is developed to replace or redevelop those pavilions and changing rooms which have a property condition rating of ‘Poor’ or ‘Bad’. Depending on best value for money, Property Services should commission this work from either the DSO or a private contractor as soon as possible.

6.1.3 Two skilled maintenance staff should be employed directly by the Leisure Department to undertake future day to day maintenance of pavilions and changing rooms, including any remedial works required on those buildings with a property condition rating of ‘Good’ or ‘Satisfactory’.

6.1.4 Additional resources are made available to implement the strategy to replace or redevelop pavilions and changing rooms.

6.1.5 Additional resources are made available for the establishment of a planned maintenance budget.

6.1.6 Where practical, management arrangements for pavilions and changing rooms are rationalised as outlined in paragraphs 4.13 to 4.30.

6.1.7 Users are encouraged to lease pavilions and take responsibility for future maintenance. To achieve this, incentives such as the redevelopment of pavilions and/or an annual grant is considered.

30 Annex 1 LEASE AGREEMENTS

Tenant Property Term

Newbridge Cricket Club Land for cricket ground & pavilion 21 yrs from 01.01.70. Lease currently being re-negotiated.

Crosskeys RFC Pitch/Changing rooms at Pandy Park 21 yrs from 01.07.73. Lease currently being re-negotiated.

H Tovey and others Pitch at Glanyrafon Park, Blackwood 21 yrs from 01.04.78. Council retain the right to use these facilities. Senghenydd RFC Land at Senghenydd 21 yrs from 01.09.79

Pontymister Youth AFC Land and Pavilion at Tanybryn Risca 21 yrs from Dec 02

Newbridge RFC Land for stand, club & pitch at Newbridge 30 yrs from 01.01.78 Welfare Ground.

Senghenydd Cricket Club Land for pitch, at Senghenydd. 21 yrs from 01.10.90

Nelson RFC Land for pitch, clubhouse and car park. 30 yrs from 25.03.82

Risca RFC Land for pitch & clubhouse at Stores 25 yrs from 01.01.93 Field, Risca.

Trustees of Treowen Stars Land for clubhouse rear of the Uplands, 25 yrs from 01.08.93 Sports & social Club Newbridge.

Bedwas RFC Bedwas Rugby Ground. 70 yrs from 01.04.74

Caerphilly Tennis Club Land for courts & pavilion. 50 yrs from 12.07.95

Crosskeys RFC Use of clubhouse at Pandy Park. 99 yrs from 01.08.80

Pontllanfraith RFC Land at Pontllanfraith 99 yrs from 10.02.82

Bedwas Bowls Club Land for clubhouse at rear of Bedwas 25 yrs from 01.06.99 (Licence) Workman’s Hall

31