Active people, healthy places Councils and their partners leading sport and physical activity in their place

Case studies Cover photo: A baby yoga session in Three Rivers District, Hertfordshire Contents

Forewords 3

Introduction 5

The national context 7

Key learning points 8

Achieving outcomes 10

Case studies – council in-house teams Broxbourne 17 Wirral 19 East Riding 21 Oxford 23 Three Rivers 25 Eastleigh 27

Case studies – outsourced providers Mendip 29 Kirklees 31 Hackney 33 Tameside 35 Stockton-on-Tees 37 Oldham 39

Further reading and contacts 41

Active people, healthy places 2 Forewords

Local Government Some councils have achieved these objectives by contracting with trusts or other Association providers, while others have retained the service in-house. There are merits to both I am delighted to introduce this joint approaches, and this publication aims to help publication with Sporta and the Chief Cultural councillors and decision-makers think through & Leisure Officers Association (cCLOA) on what the best approach might be for their how councils, leisure trusts and their partners area, and equip them with the information they are helping communities to become more need to frame the discussion. active, despite financial pressures. Finally, what is clear is that in continuing to Our sport and leisure provision is one of our lead sport and physical activity in their places, most valued services, and has an increasingly councils and councillors will increasingly need important role to play in tackling rising levels to work effectively with partners locally and of obesity and inactivity. Councils’ role as nationally. The Local Government Association strategic leaders of place has never been more (LGA) sees its partnership with Sporta and important to achieving this. But as we continue cCLOA as helping councils on this journey. to coordinate and deliver these services in the face of reducing budgets, we need to make Councillor Gerald Vernon-Jackson CBE sure that not only are they providing a good, Chair, LGA Culture, Tourism and Sport Board cost-effective service, but that they are reaching the people that need it most.

The ‘Air Trail’ at Tees Barrage, run by Tees Active in partnership with Stockton-on-Tees Borough Council

3 Active people, healthy places Sporta cCLOA The landscape surrounding leisure services Our vision as cCLOA is that every locality has and facility management is changing, and a thriving, high quality and distinctive cultural is presenting a challenge to the survival and leisure offer – we achieve this by sharing of genuine public benefit operations. This best practice and providing an informed and landscape risks creating an unbalanced coherent voice for the sector. As such, I am marketplace driven by lowest price and delighted that we have been able to support defaulting to standardised services which the development of this publication. focus on those who can afford to pay. We are Today’s leisure market offers a fantastic also seeing the loss of expertise and capacity choice of activities for people to take part within local authorities and the dilution of in. Budget gyms have boomed, our green charitable tax benefits. spaces have been revolutionised by park These factors place pressure on genuine runs and fitness trails, adventure races such public benefit operations. As a result, the as ‘tough mudder’ have grown rapidly and special contributions which trusts can bring technology has broadened the appeal of to policy objectives are put at serious risk. outdoor activities. Over this time, councils Charitable leisure trusts are underpinned have been grappling with austerity. This by a sustainable, cross-subsidy model that reduction in budgets, when combined with enables their focus to be on the needs of a rapidly changing leisure market, has the whole community. Sporta fundamentally broadened the variation and quality of local believes that the ambitions within recent sport and leisure provision. national strategies can best be served by a I believe these changes mean that local mixed marketplace which includes a healthy authorities need to increasingly take a local charitable trust/social enterprise sector. strategic leadership role in sport and leisure. Despite leisure, sport and physical activity This requires a solid understanding of being non-statutory services, the evidence of residents’ needs and the capacity to shape their public value and the preventative health and coordinate the local offering. Sport impacts is stronger than ever before. These and leisure must also be used to effectively services can contribute to multiple public support the delivery of wider agendas such policy objectives. These include reducing as preventing ill health through innovative and health inequalities, upskilling and employing inclusive programmes and activities. local people and being community spaces for These case studies show some excellent social engagement and interaction. However, examples where councils and sector experts the pressures on this public infrastructure put have moved beyond cost and the numbers the value of such services at significant risk. of people using their services to maximising These issues require collective action the strategic benefits of sport and leisure, across local government, stakeholders and alongside demonstrating the value this has on the leisure sector to ensure that the ethos broader council and partner agendas. and commitment to public benefit services survives for future generations. The need to Ian Brooke Chair, Chief Cultural & Leisure Officers fully capture, recognise and value the unique Association; Head of Community Services, benefits of our delivery model is as vital today Oxford City Council as it has ever been.

Stuart Lockwood Chairman, Sporta; Chief Executive Officer, Oldham Community Leisure

Active people, healthy places 4 Introduction

Local sport, leisure and physical activity The Local Government Association (LGA), services can help people to live longer, Sporta (the national association of leisure healthier and happier lives. This makes them and cultural trusts) and cCLOA (Chief fundamental to achieving councils’ aspirations Cultural & Leisure Officers Association) have for the wellbeing of their communities. collaborated to produce this report, which looks at how councils, charitable leisure trusts Councils have a critical local leadership and their partners are delivering sport and role for sport and physical activity in their physical activity services in their localities. places. In the current economic climate, and in the face of national challenges such as The aim of this report is to share good high levels of obesity and inactivity and an practice and help decision-makers (primarily ageing population, it is more important than councillors and officers with an interest in/ ever that councils and their delivery partners responsibility for sport, leisure and physical demonstrate strong evidence of impact, value activity) consider how their council can deliver for money and service excellence. on this agenda in the best way for local people and communities.

A leisure café run by Active Tameside, which works in partnership with Tameside Metropolitan Borough Council

5 Active people, healthy places The report reflects the fact that many services sector, outsourced providers, the business remain facilities based, but readers should community, schools, local sports clubs, note that whole systems approaches to county sports partnerships, national sports promoting physical activity, with contributions organisations and many more. from many other services and partners, are increasingly being promoted. Insight on how The concern is that ongoing pressure on this can be done will be captured by Sport council budgets can drive a ‘race to the England’s local delivery pilots programme, bottom’, with price becoming the critical announced in 2016. Getting people more element in decision making. Effective active is a complex issue which should commissioning and (where relevant) engage a range of service areas – from procurement can guard against this. public health to regeneration and housing, Through taking a local leadership role and parks, highways, adult social care, education bringing partners together around a shared and others. It needs high-level leadership if vision of the potential for sport and physical change is going to be effective. activity to transform lives, councils can This report includes 12 case studies from achieve three important ambitions at the same different local authority areas. Six look at time: how councils are working with charitable • improved facilities and services for local leisure trusts to deliver services, facilities and people activities (Mendip, Kirklees, Hackney, Oldham, Tameside and Stockton-on-Tees). The other • a reducing cost to the council, whether six have a focus on in-house provision of services are run in-house or through an sport and leisure or sports development external provider teams by councils (Oxford, Broxbourne, • maintaining an overall focus on the Wirral, Three Rivers, East Riding and council’s strategic priorities and community Eastleigh). While other delivery models are outcomes. available to councils, this publication focuses on the in-house and charitable leisure trust Any publications, approaches, case studies models. or delivery models mentioned in this report are not necessarily endorsed by the LGA, These councils are motivated by a desire Sporta and cCLOA. Councillors and officers to provide or procure good-quality services should seek to gain independent advice and and interventions that meet community need guidance on what solutions will best meet and help to achieve a range of outcomes, their local needs. The LGA, Sporta, cCLOA, particularly around health and wellbeing. They Sport England and other councils can assist are using service development, new ways of in this process. Full details of publications and working, a solid outcomes focus and strong strategies mentioned in this report, including partnership work to ensure that sport and web addresses, are provided in the ‘further physical activity services remain sustainable reading’ section at the end. over the coming decades.

Councils have a crucial role in leading effective and productive working with all providers, partners and stakeholders to address key local challenges. Good practice involves bringing all the players together to maximise the health, economic and social outcomes that can be delivered through sport and physical activity – partners such as the broader public sector (particularly health and public health), the voluntary and community

Active people, healthy places 6 The national context

In recent years, a number of national In 2017 the ‘Cycling and Walking Investment strategies and reports have been published Strategy’ outlined the Government’s ambition which provide a framework and context for to make cycling and walking a natural choice the delivery of local sport and physical by 2040. Key foci are increasing the number activity services. of travel stages undertaken by bike and foot, reducing cyclist fatalities and injuries, and The national physical activity framework, increasing the proportion of children aged 5 ‘Everybody Active Every Day’, was published to 10 that usually walk to school. in 2014 and highlighted four domains for action at local and national levels: Active The LGA offers a broad range of programmes Society to create social change; Moving and tools to help councils and councillors Professionals to utilise professionals and tackle the challenges and take advantage of volunteers; Active Environments to create the opportunities for sport, physical activity places supportive of activity; and Moving and leisure. Details of this suite of resources at Scale to evaluate and adopt evidence- are included in the ‘further reading’ section at based practice. the end of this report. It includes:

In 2015, the Government published ‘Sporting • ‘Leadership essentials’ courses for sport future – a new strategy for an active nation’, and physical activity portfolio holders which had a focus on five key outcomes: • A guide to developing a local outcomes physical wellbeing, mental wellbeing, framework for culture and sport individual development, social and community development and economic development. • Culture, tourism and sport improvement toolkit ‘Sporting future’ set out the government’s ambition, shared by local government, for all • Engaging in commissioning: a practical partners to work together to create a more resource pack for the culture and sport physically active nation. sector • Putting culture and sport at the heart of In 2016, Sport England published its national commissioning: the role of local leadership strategy for sport and physical activity, ‘Towards an Active Nation 2016-21’. This set • Understanding commissioning: a practical out how Sport England and its partners – guide for the culture, tourism and sport including councils and charitable leisure trusts sector. – would deliver the ‘Sporting future’ strategy. In September 2017, Sport England published Local councils, working with their partners guidance for councils considering the various and providers, are critical in delivering on delivery models for sport and leisure services. these ambitions. They are best placed to lead ‘Leisure management options guidance’ sets local activity to identify and address the key out the different delivery models (in-house challenges and issues, setting local corporate management, outsourced management and or strategic objectives to improve the lives of establishing a new organisation) and explores local people and communities. the topic of commissioning for outcomes.

7 Active people, healthy places Key learning points

The councils and leisure trusts featured • Demonstrate impact. as case studies in this report were asked • Work to attract external and internal to suggest ‘key learning points’ which funding/commissioning where appropriate, could provide useful insights for other local linked closely with the council’s corporate areas. These comments are not necessarily priorities. endorsed by the LGA, Sporta or cCLOA but they reflect the experiences and opinions of • Ensure a clear, joined-up vision of where councils and charitable leisure trusts in the the council wants to be across sport, 12 case study areas. leisure and physical activity services and facilities. An edited summary follows, in two sections: • Encourage a culture of innovation. • learning points from councils providing • Embed continuous improvement at sport and physical activity services the heart of what the council does. in-house • Challenge and assess procedures • learning points from councils and to ensure best practice. outsourced providers working in partnership. • Maintain a high profile with partners and stakeholders and align programmes to support the achievement of local, county, Learning points from regional and national objectives. councils providing sport • Capital investment in ageing stock, such and physical activity as gym equipment, can drive revenue and membership sales. services in-house • Rationalising membership types and • In-house provision enables close alignment categories can help to make the ‘offer’ to the council’s corporate objectives. simple to understand, communicate and sell. • Put customers and communities first, understand their needs and involve them • Reviewing all staffing levels can help to at every stage. maximise income-generating opportunities and potential savings. • Councils cannot do it alone: look for where you can collaborate or develop existing/ new partnerships around mutual priorities. • Having strong councillor advocates/ champions for health and wellbeing is important to achieve and maintain political backing.

Active people, healthy places 8 Learning points from • Take a joint approach to implementing national policy and good practice. councils and their • The criteria for assessing tenders in a outsourced providers procurement process is critical: if the driver working in partnership is to achieve the lowest price, the outcome will be a ‘caretaker’ operator with little • Having an outcomes-based approach is interest in community outcomes. critical: both partners need to commit to the • Contracts for leisure services should allow outcomes and support their joint delivery. for a modest profit to be made. The trust • Good personal relationships across the delivery model is based on cross-subsidy: organisations can help to keep the focus on surpluses provide financial resilience and service development and improvement. the ability to re-invest in facilities, services • Councils should give outsourced providers and programmes. the flexibility to engage with a range • Councils should be open to challenge and of partners as they see fit – making willing to challenge back when working with collaborative links, adding and receiving their partners to deliver outcomes. value and connecting programmes and The key themes of partnership working, services. choosing the right delivery model, in-house • Be innovative and proactive and enable delivery, commissioning and procurement will creative-thinking. be covered in more detail in the next section. • Listen to the needs of your community. • Maintain and develop a culture and ethos which has social impact at its heart. • Create a joint understanding of the value of preventative services, including among health and social care stakeholders/ commissioners. • Don’t be afraid to advocate a bold vision in order to take advantage of the opportunities for progressive, dynamic and agile leisure trusts, working with their voluntary sector and council partners. • Build in an appropriate programme of reporting, review, discussion and outcome assessment involving managers, councillors, trustees and stakeholders.

9 Active people, healthy places Achieving outcomes

The case studies in this publication In Oxford, the in-house sport and physical demonstrate that high-quality, well-planned activity team works with partners including sport and physical activity services, facilities the Oxfordshire Sport and Physical Activity and programmes can deliver on a range of Partnership, Sport England, national local strategic outcomes. governing bodies of sports, schools, sports clubs, charities and the voluntary There are many other examples of excellent and community sector to ensure sport and practice across the country. This section physical activity is accessible to everyone and will look at some of the essential elements meets local need. that can help councils and their partners to achieve their ambitions. Choosing the right delivery Strong partnership working model Councils cannot work in isolation to achieve There is no right or wrong delivery model – it is a their ambitions for local communities. choice for individual councils based on a range Successful collaboration in sport, leisure of factors including cost, service improvement, and physical activity can lead to service and sustainability, increasing participation and facility improvement, cost savings, a stronger generating capital investment. Councils can local economy and – most importantly – seek advice and information from Sport improved health and wellbeing outcomes for England, the LGA, Sporta and cCLOA and other local communities. councils if they are considering any change to their leisure management delivery options. Whether a council delivers services and programmes in-house or through outsourced The most common delivery options are: providers, strong and effective partnership • In-house management. working is important to the delivery of agile, quality services that meet local need. If • Outsourced management to an existing services are outsourced, the partnership operator. In most cases this involves a large between the council and its outsourced contractor (trust/social enterprise or private provider is critical. sector) or it could be a trust which, although it is based in one main area, also takes on a In Hackney, for example, Hackney Council small number of other contracts. and the charitable leisure trust GLL work with a range of partners to deliver programmes and • Establishing a new partner organisation projects that address local priorities. These for the local authority’s area. This is mainly partners include the voluntary and community achieved through creating an independent sector, Age UK, Alzheimer’s Society, Sport organisation, for example a charitable England, Amateur Swimming Association, leisure trust (company or community England Netball, England Squash, Lawn Tennis benefit society) or other form of non- Association, Homerton University Hospital NHS profit distributing organisation (such as a Trust and the South East Commissioning Unit. community interest company or charitable

Active people, healthy places 10 incorporated organisation). In some cases, The case studies here include Broxbourne, a local authority trading company or a joint where the sports centres service is making a venture company is chosen. trading budget surplus; and Wirral, where the sport and leisure service is on course to meet In the case of some facilities, a full or long- its ambition of a net investment requirement term asset transfer can be a good option. of zero by 2020. Both councils have improved This can involve community asset transfer; their services and increased income and the use of long-term leases with restrictions; total user visits while delivering on corporate or long-term leases without restrictions. priorities. Over the longer term, councils will also want to consider the greater role that outreach Surpluses can be re-invested to improve programmes and non-facilities based facilities, increase the range of services activities may play in their service provision. on offer, target key community groups and increase participation. In-house provision can In order to make the right choice, councils enable a particularly close alignment to the need to fully understand the range, benefits, council’s corporate and strategic objectives. potential problems and local ‘fit’ of each Capital investment can bring long-term option. Outsourcing contracts can cover a long benefits: improved facilities can drive up period of time, so it is important to get them footfall and increase membership sales. right. The right delivery model can change over time: for example, a council with outsourced Factors behind Three Rivers District Council provision may decide to bring it back in-house. retaining an in-house leisure development Councils and their partners are advised to team include the council finding it easier seek independent advice on which options to respond to customer demand, easier to would be suitable to their circumstances. respond to changes in strategic priorities and easier to ensure that local councillors are Delivery models and contracts can evolve involved in enhancing the local leisure offer. and adapt to changing priorities and circumstances. In Tameside, a remodelling of the existing local leisure trust began in Effective commissioning 2011, led by Tameside Metropolitan Borough Council and in partnership with the trust. The Commissioning offers a means of joining up trust was re-branded as Active Tameside and resources to focus on improving outcomes for a top-to-bottom business redesign took place, citizens and communities in the most efficient which led to the co-production of a new and effective way, both now and in the future. outcomes-based contract in 2017. Detailed interpretations of commissioning vary but, broadly speaking, it involves four key Borough Council’s leisure Stockton-on-Tees activities that combine to achieve efficiency facilities are managed by Tees Active. When and maximise value: a contract extension was being considered, the council commissioned an external • understanding needs and desired assessment which concluded that Tees Active outcomes provided good value for money and that its • optimising resources (money, community culture, ethos and values aligned with those and user resource, assets) of the council. As a result, Tees Active was awarded a 20-year contract extension. • targeting resources • choosing the right mechanism to best achieve the desired outcomes. In-house delivery In-house provision can deliver services which achieve outcomes, increase participation rates and reduce the overall cost to the council.

11 Active people, healthy places Originally published in the LGA resource ‘Understanding commissioning: a practical guide for the culture and sport sector’ (2011) Needs

Review Resources

Users Monitoring Priorities communities

Delivery Delivery options

Procurement

Councils should follow a clear process of Councils are increasingly commissioning understanding need, strategic planning, other services, such as culture and tourism, delivery and monitoring of services to ensure alongside sport and leisure. This is becoming outcomes are being met, keeping service more prevalent in the commissioning users and communities at the heart of the space and can support public objectives, process. The commissioning process can sustainability and place-based approaches. establish how sport and physical activity services can contribute to wider priorities Councillors’ democratic mandate, and outcomes for the area and reach target accountability and knowledge of their place audiences. These priorities often include: and residents make them uniquely placed to provide the political leadership required to • improving health and wellbeing and focus on community-wide strategic outcomes reducing health inequalities around sport and physical activity. They can also ensure fair representation of different • providing local economic benefit interests, community groups and local areas. • promoting community cohesion The LGA has developed a range of resources • educating, protecting and providing and tools on commissioning and developing opportunities for young people an outcomes framework for sport, leisure • supporting and caring for vulnerable adults and physical activity services. This includes and older people, and keeping people publications produced specifically for independent for longer councillors. Details can be found in the ‘further reading’ section at the end of this • providing high-quality services. report.

Active people, healthy places 12 In Kirklees, the partnership between Kirklees A useful resource is the LGA’s National Active Leisure (KAL) and Kirklees Council Procurement Strategy for Local Government is moving from ‘council outcomes’ towards in England (details are in ‘further reading’), ‘partnership outcomes’, with partners which sets out a vision for procurement and across the public, private and voluntary encourages all councils to engage with the sectors looking at how they can collectively delivery of outcomes in four key areas: contribute. A new commissioning agreement is being developed which will set out the • making savings outcomes KAL is expected to deliver, with • supporting local economies clear performance measures. • demonstrating leadership Eastleigh Borough Council, through its • modernisation. commissioning process, is working with two outsourced providers to address key local Procured services should contribute to, and challenges such as a large gap between male be underpinned by, public policy objectives, and female participation rates. There is also a rather than being determined purely on cost drop-off in participation by boys and girls at or efficiencies. However, cost savings for around 11 years of age, so Eastleigh’s leisure councils and achieving community outcomes centre is offering targeted activities for that can go hand-in-hand. The case studies in this age group. report include examples where outsourced providers are working with councils to reduce East Riding of Yorkshire Council’s in-house the subsidy they receive (and not just through leisure service has attained a high level of efficiency savings) while demonstrating commissioning from public health, currently improved outcomes for local communities. about £800,000 each year. The council’s separate sport, play and arts service is When the leisure contract was up for renewal commissioned by public health via a service in Oldham in 2012, Oldham Council asked level agreement of £131,000 a year to deliver prospective operators how they planned to programmes that engage vulnerable and engage priority community groups in activities hard-to-reach groups. and services. Oldham Community Leisure (OCL) provided a financially competitive bid that was equally strong in terms of wider Effective procurement social impact and community benefit. This commitment to community-based provision In this context, procurement is the process was key to OCL securing the contract. of councils acquiring sport, leisure and physical activity services from third-party Since 2015, Mendip District Council has providers, such as charitable leisure trusts, procured Fusion Lifestyle to deliver its and working with them through a contract. leisure service. The engagement and Procurement includes specifying the scope support of councillors has been crucial to of services to be delivered, the outcomes the development of this partnership, from wanted and the standards for service delivery. commissioning and procurement through It involves tendering and selecting the to contract management. Regular meetings preferred provider(s) through value analysis, taking place between Fusion, councillors and risk assessment, quality and suitability senior officers, which underpin the council’s assessment and through issues such as ongoing leadership role in improving the social value. health and wellbeing of local residents.

13 Active people, healthy places Questions for decision- makers Questions that councillors and senior decision makers may want to consider/ask when deciding how sport and physical activity services should be delivered include:

• How have we identified needs? • Do we know if service users and other stakeholders are satisfied? • How good is the current service? • What services are being provided by others, including the private sector? • How can we protect, enhance and refocus our community assets (leisure and wellbeing centres)? • What outcomes (results) do we want, and will we have the levers and influence to work towards them? • What is the available budget? • Have all the options and models been considered, explored and understood within the context of local priorities, targets and ambitions? • Have we consulted the market – are there gaps in the market? • Can we afford it? • What service standards are we setting and how will they be measured? • What social value will be delivered? • How will we measure and review the outcomes? • Have staff been consulted? • How will we control risk? • What incentives are there to perform well/ reduce costs? • How flexible is our delivery model if local need and/or priorities change?

Active people, healthy places 14 Young people in Tameside are introduced to climbing at a facility run by Active Tameside

15 Active people, healthy places Case studies

The 12 case studies that follow reflect a range of council types, political control and location. Six of them focus on in-house delivery of sport and physical activity facilities and services and/ or sports and physical activity development, and six look at how councils are working with outsourced delivery partners, primarily charitable leisure trusts, to deliver services.

All 12 case studies demonstrate the local government sector’s ability to work with a broad range of partners to meet shared challenges and deliver the right outcomes for their people and places. They show how commissioners are securing health and wellbeing outcomes through good-quality facilities and appropriate services and programmes, whether delivery is in-house or external, to deliver their strategic priorities.

Active people, healthy places 16 COUNCILS DELIVERING SPORT AND PHYSICAL ACTIVITY FACILITIES, SERVICES AND/OR DEVELOPMENT IN-HOUSE Broxbourne Broxbourne Borough Council has set itself the target of being financially independent In-house service delivery by 2020 while protecting internal back-office services, and is on track to achieve this. The Broxbourne Borough Council runs financial performance of the sports centres, along with the management fee contribution, its own sports provision through the are helping towards this goal. Broxbourne Sport service. Over the last 10 years the service has gone This improved financial performance is attributed to a range of issues, including: from an operating loss to a trading budget surplus, which is used to • enhanced membership practices improve the facilities and increase • streamlined fees and charges participation. This has already • enhanced ‘learn to swim’ practices saved more than £700,000 from the • more efficient staffing (staffing costs have council’s capital programme budget. reduced year-on-year). In 2013/14 the council invested £4 million to Background re-develop the Laura Trott Leisure Centre. Broxbourne Borough Council externalised its Since then, usage has increased by 76,000 sports centre services in 2002 but brought visits year (18 per cent) and turnover has them back in-house two years later. The improved by £900,000 (29 per cent). The financial benefits of outsourcing the delivery cost of the investment will be paid back service were not perceived as significant, in just over four years. and there was a recognition that efficient in- house performance would be beneficial for Surpluses generated are put into a the council – both financially and in terms of sinking fund/reserve account and used achieving corporate priorities. The facilities to fund equipment replacement or facility include two leisure centres and a golf centre. refurbishments – costs that would have previously been funded by the council’s Back in 2006/07, the sports centres service capital programme. To date (October 2017), was operating at a cost to the council this account has received £1.2 million and of £386,000. By 2017/18, the trading the improvement commitments from it total budget surplus was £1.3 million. From that, £715,000. Broxbourne Sport pays a management fee back to the council of £356,000 a year, rising Broxbourne Sport represents the council to £506,000 in 2018/19. The council also at the borough’s Health and Wellbeing receives a recharge payment for its central Strategic Group forum. It has been involved services of a similar value. with a successful bid to Sport England to match-fund a three-year GP referral scheme Broxbourne’s corporate priorities for 2017- managed by a local ‘get active’ specialist. 20 include ‘enhancing the quality of life’. The This collaborative working has so far helped objectives for this priority include helping around 500 inactive residents to take up residents to have a healthy lifestyle and a more active lifestyle. The sports centres encouraging a sense of community through facilitate many of the scheme’s activities and events, leisure activities and volunteering. have introduced a low cost gym membership package, which has been well received by Impact and outcomes Over the past 10 years, income from the residents. Partnership work is also underway sports centres has increased by £1.5 million with Herts Sports Partnership, Hertfordshire (42 per cent) while usage has increased County Council’s public health team, Lea by 144,000 visits a year (34 per cent). Valley Health and local schools.

17 Active people, healthy places In 2017, Broxbourne Borough Council won the Local Government Chronicle award for ‘entrepreneurial council of the year’ in recognition of its financial resilience, its ambition and its robust plans to bridge the funding gap.

Councillor Dee Hart, Cabinet Member for Leisure and Culture, said: “The council recognises the role that it plays in providing community leadership in matters of health and physical activity. We are proud of the services and facilities that we offer in-house that help to make a positive difference to people’s health and wellbeing, such as our leisure facilities, parks and open spaces and cultural facilities. “The quality and scope of our ‘offer’ has improved in recent years through a combination of sound management and investments made on the strength of robust business cases. We look forward to working with our community partners going forward to help tackle the key health issues, in collaboration and partnership.”

Key learning points • In-house sports service provision can provide an opportunity for councils to generate income which can be re- invested to improve the facilities and increase participation. • It can also enable a closer alignment to the council’s corporate objectives, such as helping residents to have a healthy lifestyle and increasing community cohesion through events and leisure activities.

For further information contact Wesley Hutchins Head of Broxbourne Sport, Broxbourne Borough Council [email protected]

Active people, healthy places 18 COUNCILS DELIVERING SPORT AND PHYSICAL ACTIVITY FACILITIES, SERVICES AND/OR DEVELOPMENT IN-HOUSE Wirral Objectives and outcomes The sports development team’s work feeds In-house service delivery into a number of key themes in the council’s 2020 vision. These include:

Wirral Council runs its own sport • people with disabilities live independently and leisure provision and has an (through provision of accessible facilities ambition for the service to be self- and activities) sufficient by 2020. Ahead of that, • workforce skills match business need investment is underway to improve (through apprenticeship schemes and staff progression opportunities) the facilities, increase participation, • assets and buildings are fit for purpose improve the health of local people (capital projects to increase footfall, and generate greater income from revenue development opportunities and the sports facilities. improved access) • leisure and cultural opportunities for all Background (through a diverse range of activities that Wirral Council’s sport and leisure provision cater for all residents) consists of eight leisure centres, four golf courses, a sailing centre and a sports • Wirral residents live healthier lives (for development team. The service employs example through partnership working with about 290 staff and 140 sessional coaches. health to implement intervention schemes) Alongside the comprehensive sport offer • Wirral neighbourhoods are safe (through there are seven gyms and over 380 exercise delivery of programmes in areas of high classes each week. Total footfall is just over anti-social behaviour). three million visits each year. The council offer is wide-reaching and The council’s leisure strategy and sports involves many other organisations, including development team have a focus on hard- over 400 sports clubs that use council to-reach community groups, such as young facilities, schools and colleges, community people not in education, employment or groups, local businesses, the Wirral Tourism training. The ‘Active Wirral’ campaign targets Network and training providers. The increased activity across the borough, relationships with health are strengthening including in areas of deprivation, using and a number of initiatives are now in place sport as the ‘hook’. Over the years, various around cancer (with Macmillan), cardiac funding streams have contributed to this work rehab and diabetes exercise on referral. including Sport England, the Neighbourhood Local and regional partners include NCS Renewal Fund, Big Lottery Fund, Positive (National Citizens Service), Doorstep Street Activities for Young People and the Early Clubs (Sport England) and the Merseyside Intervention Grant. Sports Partnership.

Wirral has an ambition for its leisure facilities Looking to the future to be fully inclusive and accessible, offering A strategic review of leisure services, parks, a broad range of activities, programmes culture and libraries is underway, with a and facilities. Within the leisure facilities Cabinet decision on the future delivery model programming there is a mix of disability due in late 2017. Ahead of this, the council sessions and tailored programmes. The has adopted a more commercial approach to development of capital funding streams is these services, with the aim of reducing the underway for a sensory room and changing net investment requirement to zero by 2020. places to aid access.

19 Active people, healthy places Over £3 million has been invested into • Reviewing all staffing levels can improving the leisure facilities, which has help to maximise income-generating helped to drive growth in membership from opportunities and potential savings in the 9,500 to over 15,500 in two years. operation of all delivery areas.

Significant developments around IT and • Utilise the services of specialists to marketing are underway with the aim develop innovative solutions to attract of increasing customer interaction and broader user groups. For example, using improving membership retention rates. The a leisure marketing specialist means golf facilities have been restructured, with the service now embraces social media ‘footgolf’ introduced at three courses to and digital campaigns and has a more increase participation. targeted approach.

Councillor Phillip Brightmore, Wirral’s Cabinet For further information contact Member for Environment, said: “In times of Simon Bellamy prolonged austerity, when financial difficulties Leisure Operations Manager, Wirral Council may discourage poorer or at-risk residents [email protected] from accessing private sports and leisure facilities, it is vital that local authorities maintain a quality, affordable and accessible alternative. Not to do so risks exacerbating health inequalities and necessitating costly interventions by councils, and their partners, at a later date. “Members, especially lead members, must be mindful of the impact of accessibility upon those they represent, lobbying government to properly fund that which our communities so desperately need. Through targeted investments, working with partners and delivering differently, councils should seek to enable and encourage physical activity and wellbeing.”

Key learning points • Capital investment in ageing stock, such as gym equipment, can drive revenue and membership sales. • Rationalise membership types and categories to make the ‘offer’ simple to understand, communicate and sell.

A bowling session run by Wirral Council

Active people, healthy places 20 COUNCILS DELIVERING SPORT AND PHYSICAL ACTIVITY FACILITIES, SERVICES AND/OR DEVELOPMENT IN-HOUSE East Riding of Yorkshire annually) to deliver a range of programmes to engage vulnerable and hard-to-reach In-house service delivery groups. • Hull University provides high-level research East Riding of Yorkshire Council that helps develop the health schemes and provides its sport, play and arts also measurements that show the impact of service and its leisure service in- the leisure service on health and wellbeing. This work is due to be published. house. Other models have been • The sport, play and arts service is a key considered and trialled in the partner within Active Humber, the county past, such as outsourcing, but the sports partnership for the sub region. services demonstrate high levels • The sport, play and arts service is of success under the in-house commissioned by School Sports mechanism. Partnerships to deliver a high-quality coaching and teacher training package for Background primary, secondary and special schools East Riding of Yorkshire Council’s leisure in the East Riding, with a focus on non- service is successfully reducing its traditional sport such as outdoor adventure overall cost and increasing the number of skills, healthy lifestyle workshops and play participants and overall service income levels. leaders. It makes a significant contribution to the local • The sport, play and arts service supports health and wellbeing agenda and works with sports clubs to develop and improve a broad range of partners. and provides advice and support on gaining accreditation, funding, recruiting The council’s separate sport, play and arts volunteers and starting a junior section. service enables and supports the targeted It also manages the East Riding Club development of quality sport, play, physical Accreditation Scheme. activity and arts opportunities. It works to address a range of cross-cutting agendas Impact and outcomes that fit with the council’s priority outcomes, The cost of East Riding’s leisure service particularly ‘promoting health, wellbeing and has reduced by about £1.2 million over the independence’ and ‘supporting vulnerable past nine years, while the number of visits to people, reducing inequalities’. leisure facilities has increased dramatically – from 3,569,009 in 2008/09 to 5,371,013 in Partnership working has been crucial to the 2016/17. success of both service areas. Several key partnerships have helped drive them forward: The approach of the sport, play and arts service is to promote prevention, early • Public health: the leisure service has attained intervention and co-production using a a position with healthcare providers that has community asset model. The service influences resulted in high level of commissioning and positive behaviour change by consulting, awareness of what it can offer. Leisure is empowering and working with individuals and currently commissioned to about £800,000 groups to develop their skills, knowledge and each year and covers areas such as the NHS confidence to make positive changes. Live Well programme, GP referral, health checks and health optimisation. • The sport, play and arts service is commissioned by public health via a service level agreement (£131,000

21 Active people, healthy places The sport, play and arts service had a core Key learning points budget of £661,000 in 2017/18. Due to • Keep as close to the customer as possible planned savings, this will reduce to £561,000 to enhance each and every customer in 2018/19. journey. The service levers in a substantial amount • Councils cannot do it alone – of external funding and commissioned partnerships make it happen. work. In 2017/18 this is £364,000 which is used to fund fixed-term contracts and other • Make efforts to attract external and programme delivery costs. There are currently internal funding/commissioning linked 12 different funders, of which public health is closely with the council’s corporate the largest, which commission the service to priorities. deliver against a wide range of cross-cutting outcomes. For further information contact Ian Rayner Councillor Jonathan Owen, Chairman of the Interim Head of Culture and Customer East Riding Health and Wellbeing Board, Service, East Riding of Yorkshire Council said: “We have been very innovative in our [email protected] approach to sport and leisure services through focussing on customers and building service provision. This has generated the momentum to bring together many local partners to improve the customer journey whilst making the most of the resources available. So, for example, we know that the health interventions we have with customers create a healthy community as well as saving long-term costs for the NHS.”

Looking to the future Future plans include:

• Continuing with capital investment in the leisure facilities to ensure that the council has a strong sport and leisure portfolio. • Ensuring the level of health commissioning remains high and the outcomes and effects on the community are measured and articulated. • Striving to make any further savings required, to maximise commissioning opportunities and to seek ways of becoming more commercial and bring in additional income.

Active people, healthy places 22 COUNCILS DELIVERING SPORT AND PHYSICAL ACTIVITY FACILITIES, SERVICES AND/OR DEVELOPMENT IN-HOUSE Oxford delivered to schools and fitness classes in parks and green spaces. External funding of In-house sports and almost £1.5 million has been brought in over physical activity the past eight years. development To ensure an effective joined-up offer within the city, the team works closely with the Oxford City Council’s award- outsourced provider to improve and develop the leisure facilities and services. Sports winning sport and physical activity development is a key agenda item at the team works with a broad range monthly council/client meetings. Objectives of partners, including an external and priorities are agreed through an annual service plan. provider which operates the city’s sport and leisure facilities. Targeted The team also works with a wide range of partners, including the Oxfordshire Sport and programmes, projects and events Physical Activity Partnership, Sport England, are helping to increase participation national governing bodies of sports, schools, among key community groups. sports clubs, charities and the voluntary/ community sector, to ensure sport and Background physical activity is accessible to everyone. Oxford City Council recognises the value of leisure in supporting community cohesion, Outcomes and impact Strong partnership work between the council cutting across social divides and improving and its partners is bearing fruit. The past eight physical and mental health. The council takes years have seen: a local leadership role, knitting together all the providers into a coherent offer to maximise • year-on-year increases in regular adult value for local residents. participation in sport, reaching 31 per cent in 2016 In 2009, a charitable leisure trust won the contract to operate and manage Oxford’s sport • over 6,700 disadvantaged young people and leisure facilities, which include three leisure have participated in the council-run ‘Youth centres, an outdoor pool and an ice rink. At the Ambition’ programme time, there was discussion around whether the • evaluation using Social Return on council’s sports development function should Investment (SROI) methodology showed a also transfer. This option was not taken up, due gain of £13 million through Youth Ambition to the value and impact the in-house team was in 2015/16 demonstrating within the city. • more than 116,000 attendances at activities The sport and physical activity team is made and events organised by the sport and up of six officers (one externally funded) who physical activity team deliver programmes, projects and events to • approximately 1,000 women engaged in help Oxford’s residents become more active the council-run ‘Active Women’ sport and and lead healthier lives. Much of this work physical activity programme is aimed at target groups such as younger and older people, black, Asian and Minority • a £13.18 return on investment for every £1 Ethnic (BAME) people, disabled people and spent on the social rounders league residents of deprived neighbourhoods. • a 53 per cent increase in participation at The team costs approximately £220,000 each leisure centres, from 896,000 (2009/10) year but works hard to bring in additional to 1,370,000 (2016/17), and a 40 per cent revenue, for example through activities increase in visits by the target groups.

23 Active people, healthy places The work of Oxford’s sport and physical • Work together as an effective team and activity team has been recognised by Quest encourage a culture of innovation. accreditation, a continuous improvement tool • Put customers and communities first and and quality scheme for sports development understand their needs and priorities. overseen by Sport England. In 2017, they were the first in the country to achieve an ‘excellent’ • Embed continuous improvement at the Quest for Active Communities score. The team heart of what you do. won the 2014 Association of Public Service • Look for where you can collaborate Excellence award for the best sport, leisure or develop existing/new partnerships and cultural service team of the year. around mutual priorities. Councillor Linda Smith, Portfolio Holder • Demonstrate impact: this will put you in for Sport, Leisure and Parks, said the in- a stronger position to make your case, house team plays a critical role in raising whether it is for internal or external activity levels. “Participation rates in Oxford funding, partnership work, promotion of are high thanks to their work on attracting what you do or quality assurance. inward investment and their ability to work closely with colleagues from across council For further information contact departments, and wider external partners, to Hagan Lewisman provide affordable and inclusive opportunities Active Communities Manager, for physical activity.” Oxford City Council [email protected] Key learning points • Ensure a clear, joined-up vision of where you want to be across leisure services and facilities, sport and physical activity.

Nordic walking in Oxford

Active people, healthy places 24 COUNCILS DELIVERING SPORT AND PHYSICAL ACTIVITY FACILITIES, SERVICES AND/OR DEVELOPMENT IN-HOUSE Three Rivers Three Rivers contracts out the management of its leisure venues, which include three leisure In-house sports and leisure centres and a public golf course. The new development contract currently being developed for this partnership will include a sports development element, with the aim of it being complementary Three Rivers District Council has an to the council team’s work programme. in-house leisure development team Impact and outcomes and contracts out the management The leisure development team works with a of its leisure venues. The team number of vulnerable groups alongside mass works with a range of partners participation activities such as Parkrun. This to meet strategic targets around includes work to increase the health and wellbeing of those with additional needs, increasing the health and wellbeing mental health issues and vulnerable children of local people, including those with and their families. additional needs, mental health The council’s objectives for healthier issues and vulnerable young people. communities are: • develop and improve access to good Background Three Rivers District Council delivers its leisure quality housing development programme through an in-house • create prosperity for all and access to service team of eight officers. The team works opportunities with partners across a range of projects, • support the most vulnerable people in the including leisure venues, schools, Hertfordshire district Sport and Physical Activity Partnership, public health, parish councils, the voluntary and • provide a healthy and safe environment community sector (such as MIND), libraries and • reduce health inequalities, promote others. They also work with internal teams such healthy lifestyles and support learning and as planning and housing. community organisations.

The factors behind the council retaining an Performance indicator data for 2016/17, which in-house leisure development team include demonstrates performance against the targets finding it easier to respond to customer set within the council’s strategic plan, includes: demand, to respond to changes in strategic priorities and to work with local councillors • just under 400,000 attendances by adults to enhance the local leisure offer. The total at leisure venues and activities budget for the team is £467,150 and it has • over 200,000 attendances by young people also received public health funding. at leisure venues and activities Councillors are supportive of the work the • 100 per cent of older people taking part in leisure development team delivers and an activity scheme for people in sheltered will assist on projects wherever possible. housing reported specific health benefits There are two lead members (one covers • 193 new customers on the exercise referral leisure, community and wellbeing, the other programme covers health) who are fully briefed on work programmes and support a number of projects • children’s play activities rated ‘outstanding’ across the team. Formal processes are in place by Ofsted where recommendations for the department are • 1,255 attendances by children from low- presented to the Leisure, Health and Wellbeing income families at holiday play schemes Committee and debated by councillors.

25 Active people, healthy places • 83 per cent of vulnerable children were • supporting local clubs to access funding satisfied with the leisure projects offered from Sport England to develop facilities (for to them. example Evergreen Football Club).

Looking to the future Councillor Chris Lloyd, Lead Member for Three Rivers District Council has a forward Leisure, Community and Wellbeing, said: focus on innovation, best practice and “The council is proud of its achievements increasing income generation. This includes and is committed to delivering quality sourcing external funding to enhance existing leisure services that enhance the health and projects, working with partner organisations wellbeing of our communities.” and continually assessing procedures to ensure value for money for the local community. Key learning points • Embrace innovation. Examples where external funding has been/is being sourced include: • Continually challenge and assess procedures to ensure best practice. • Heritage Lottery Fund: funding application submitted for a large heritage project within • Involve the local community at every Leavesden Country Park stage: delivery must meet their needs. • Sport England: funding to support the • Maintain a high profile with stakeholders development of an all-weather pitch in and make sure programmes are aligned partnership with Rickmansworth Hockey to support the achievement of local, Club county, regional and national aims and objectives. • Sport England: funding to support the development of a watersports facility at For further information contact Rickmansworth Aquadrome, in partnership

with Bury Lake Young Mariners Charlotte Gomes Leisure Development Manager, • Sport England: funding to build a new Three Rivers District Council 3G pitch and multi-use games area, in [email protected] partnership with the YMCA, at Leavesden Country Park

Young people set off on a ‘parkrun’ in Three Rivers

Active people, healthy places 26 COUNCILS DELIVERING SPORT AND PHYSICAL ACTIVITY FACILITIES, SERVICES AND/OR DEVELOPMENT IN-HOUSE Eastleigh the benefits In-house sports and • to protect and provide quality active environments and facilities which are physical activity accessible to local communities. development Impact and outcomes The council works with its outsourced Eastleigh Borough Council’s sport providers and a broad range of other and active lifestyles team works with partners – including health and the voluntary and community sector – to address key local its two outsourced leisure providers, challenges. For example, the borough suffers and other partners, to help people from high levels of inactivity and obesity and lead healthier lives. Local priorities there is a large gap between male and female include getting women and girls participation rates. There is a drop-off in participation at around 11 years of age, so more active and addressing a drop- the leisure centre offers activities for young off in participation as young people people such as ‘teen gym’, gymnastics, approach their teenage years. street dance and trampolining. The Hub has been encouraged to have a particular focus on working with children and adults with a Background Eastleigh Borough Council outsources the disability. management of two leisure facilities: The Eastleigh’s sport and active lifestyles team Hub, a sports hall and pavilion used for sports has a long-standing community school groups, clubs and community facilities; and network in place and works with secondary Places Leisure Eastleigh, a brand new, £28 schools to provide facilities that local million leisure centre, which opened in 2017 communities can use. It also works with local to replace an outdated facility. sports clubs to understand their needs and The in-house sport and active lifestyles team develop new facilities. For example, work delivers an extensive range of opportunities is underway with the Football Association, for people to take up active and sporting Football Foundation and Premier League to habits. Eastleigh’s Corporate Plan 2015-25 develop ‘Parklife’ football hubs in the borough, has a key aim of promoting thriving and which could attract up to £6 million in external healthy communities. The council is working funding if successful. to achieve this by improving the places in Looking to the future which people live and work, meeting the Eastleigh’s former leisure centre was an challenge of the ageing population and outdated 40-year-old facility. Options to promoting cultural and physical activity. update it were fully explored, with extensive Eastleigh’s sport and active lifestyle strategy community consultation. It was funded through identifies four strategic aims: a combination of prudential borrowing (funded by additional revenue savings generated by • to increase and sustain regular the new facility), the New Homes Bonus, a participation in sport and physical activity £90,000 grant from Netball England (reflecting • to support and develop a quality delivery strong partnership working) and a £2 million structure of clubs, coaches, volunteers and Sport England grant. The outsourced provider officials has a 20-year contract which guarantees significant revenue savings for the council • to promote a healthy lifestyle by making through a large surplus annual management the case for sport and physical activity, fee, to repay the capital borrowing and enable building an evidence base and advocating ongoing council budget savings.

27 Active people, healthy places The council raised additional income by The opening of the fantastic selling the naming rights of the new leisure centre, following two years of discussions new leisure centre will help the with interested commercial organisations. people of Eastleigh become The additional income from this 10-year more active, healthier and agreement will be used to deliver the council’s HealthWorks exercise referral happier through excellent scheme. facilities, new technology and a better understanding of user Councillor Alan Broadhurst, Eastleigh’s Cabinet Member for Wellbeing, said: “The trends and their needs.” work that is done by our sport and active Key learning points lifestyles team is fantastic. We have a great story to tell about how many women and • Having strong councillor advocates for inactive adults we have interacted with over health and wellbeing is important to the last few years through a range of projects, ensure that political backing is achieved and more importantly how we have kept them and maintained. active over time. • Councils should be open to challenge and willing to challenge back when “Officers will inform and consult working with partners to deliver with me and other councillors outcomes. If all parties listen to and learn about any new proposed from each other, initiatives are more likely activities on the horizon. to maximise their potential. Members can input where For further information contact these activities could best take Ross McClean place and help to promote Strategic Lead (Health and Wellbeing), Eastleigh Borough Council them in their communities. [email protected]

A kayak group in Eastleigh

Active people, healthy places 28 COUNCILS DELIVERING SPORT AND PHYSICAL ACTIVITY FACILITIES AND SERVICES IN PARTNERSHIP WITH OUTSOURCED PROVIDERS Mendip Impact and outcomes There were four key objectives at the heart of the partnership. Mendip District Council’s sport and leisure services are delivered in 1. Capital investment: the first two years focused on Fusion’s planned capital partnership with Fusion Lifestyle. investments – principally to address Since the contract began in the maintenance liabilities and make 2015, participation has increased improvements. To date there has been £3.2 million of capital investment in the significantly, facilities have been facilities, with significant improvement improved and the long-term projects at two leisure centres. sustainability of the service is now 2. Participation: community participation is a secure. mutual agreed objective. Almost 800,000 visits were recorded in 2016/17, up from Background about 490,000 in 2015/16. In 2014, Mendip District Council advertised an opportunity to enter into a long-term 3. Customer satisfaction: each of the nine leasehold agreement on its five leisure customer satisfaction areas has shown facilities. The decision to go out to tender was significant increases since the start of the driven by a desire to ensure the sustainability partnership. of good-quality facilities for local communities 4. Target-group participation: there is a and increase participation. At the time, the specific focus on increasing participation facilities received an annual subsidy of more among six demographic groups, aligned than £850,000. There was a backlog of with the council’s priorities and Fusion’s maintenance liabilities of around £5 million. charitable objectives: The council established a leisure ◦◦ under 16s (participation increased by transformation board with the objective of 158 per cent in two years) finding a financially sustainable future for the facilities. There was strong cross-political ◦◦ 16-19 year olds (increased 112 per cent) support from the start, both for the ambition ◦◦ older adults aged 60-plus (increased and the approach. Tender applications were 34 per cent) received from a range of operators. In June 2015, Fusion, an experienced charitable ◦◦ black, Asian and minority ethnic leisure trust, entered into a 50-year lease for communities (increased 225 per cent) each of the five facilities. ◦◦ disabled people (increased 225 per cent) The contract included all repair and maintenance liabilities being passed to ◦◦ women (increased 78 per cent). Fusion at that point. The annual subsidy Fusion has listened to local communities from Mendip District Council was reduced and, as a result, has been able to provide significantly in the first year and will be zero successful new activities. Examples include by 2018/19. From then on, Fusion will pay ‘Parkour’ at Wells Leisure Centre, which a small rental fee to the council for the five targets 12-19 year olds in engaging sessions leisure facilities. of high-intensity activity on Saturday afternoons, with 20-40 young people attending each week.

29 Active people, healthy places For older adults, their timed swimming sessions • significant risks and liabilities have been are now protected during the school holidays. transferred to Fusion, both in terms of In the past, these sessions were cancelled as operational and capital investment they had become impractical to operate. • the leisure offer to local communities, Simple attention to detail during the particularly those from the target groups, refurbishments has also helped to increase has been materially improved. participation, such as adding hand rails to Key learning points assist the less mobile and lower-level hand weights in the gym to suit the less able. • Be innovative and enable creative- Fusion maintains discounts on fees and thinking. charges for certain demographic groups as • Ensure there is a close-knit team part of the partnership arrangements. committed to working hard to overcome obstacles and pursuing the project to a Looking to the future successful conclusion. Two years into the contract, the delivery outcomes are strengthening and the facilities • Listen to the needs of your community. improving. A solid working relationship has • Legal advice from a lawyer who been established between Fusion and Mendip understood the drivers and embraced District Council. Crucial to this has been the ambition of the project was the positive engagement and support of important. councillors, with regular strategic management board meetings taking place between Fusion, • Commit to a long-term vision for the councillors and senior officers. These meetings partnership. underpin the council’s ongoing role as a local For further information contact leader in improving the health and wellbeing of residents, as well as fostering a service of Tim Mills community. Director of Business Development, Fusion Lifestyle From the council’s perspective, there have [email protected] been three key achievements: or • the financial outcome, in terms of Donna Nolan supporting long-term sustainable leisure Deputy Chief Executive, Mendip District services while reducing subsidies, has Council been achieved [email protected]

A personal training session in Mendip

Active people, healthy places 30 COUNCILS DELIVERING SPORT AND PHYSICAL ACTIVITY FACILITIES AND SERVICES IN PARTNERSHIP WITH OUTSOURCED PROVIDERS

Kirklees Impact and outcomes The partnership has yielded strong outcomes. KAL has invested in providing, maintaining and Kirklees Active Leisure was improving leisure provision across the borough, established by Kirklees Council leading to significant growth in customer in 2002. Both organisations work numbers – from two million annual visits in 2008/09 to over three million in 2016/17. together to provide, develop and protect good quality leisure services Financially, there has been a significant reduction in the funding subsidy provided for local people. The leisure trust is by Kirklees Council whilst KAL’s turnover committed to social and community has increased. The ratio of funding to development and contributes overall turnover has fallen from 35 per cent significantly to the local partnership in 2009/10 to a projected eight per cent in 2017/18. The facilities have benefitted from agenda. capital investment from KAL, paid for through a combination of the trust’s own reserves and Background prudential borrowing. These capital projects Kirklees Active Leisure (KAL) was include invest-to-save schemes such as established by Kirklees Council in 2002 as an energy saving programmes, invest-to-grow independent charitable leisure trust. This was projects and general facility maintenance. seen as the best way to secure investment in the council’s leisure facilities and ensure that The trust contributes significantly to the local communities could access sustainable and partnership agenda, working with the council good quality provision. The original 10-year on a range of strategic matters which are far agreement has since been extended to 2032. broader than straightforward leisure provision. This includes involvement with the Kirklees KAL manages 12 leisure facilities owned by Third Sector Leaders group, the Healthy Child Kirklees Council. In broad terms, the council integrated commission, a collaborative youth owns the assets and is responsible for offer, the local children and young people’s most of the development and maintenance; partnership, Kirklees Active Schools and other KAL manages each site and develops and initiatives benefitting local people. These have delivers the services and activities. Both are been delivered as part of KAL’s commitment committed to partnership working in order to social and community development, at no to provide, develop and protect good quality additional cost to the council – but providing leisure services for local communities. The lots of added value. partnership is based on a statement of understanding, which outlines the overall Looking to the future outcomes and partnership approach, along The partnership is moving from ‘council with a funding agreement and facility leases. outcomes’ towards ‘partnership outcomes’, with partners across the public, private and Kirklees Council has an in-house sport voluntary sectors looking at how they can and physical activity team which leads on collectively contribute. A commissioning strategic and spatial planning, supports the agreement is being developed which will set voluntary and community sports sector and out the outcomes KAL is being commissioned delivers targeted physical activity schemes to deliver, with clear performance measures. for people with long-term conditions, many There is regular contact between KAL’s chief of which are delivered in KAL centres and executive and Kirklees Council’s client officer. subsidised by KAL (for example through Quarterly liaison meetings take place which discounted membership and free use of focus on finance, partnership performance space). and capital matters.

31 Active people, healthy places Councillor Viv Kendrick, Cabinet Member Key learning points for Adults and Public Health, said: “We at • Having an outcomes-based approach is Kirklees Council still take a local leadership key. Both partners need to commit to the role in relation to sport and leisure. KAL same outcomes and support their joint operates the facilities and, in so doing, delivery. provides universal access to sport and physical activity opportunities for the people • Achieving a balanced skills and of Kirklees. It is being proactive in ensuring personality mix is essential. It works that facilities and services reflect changing best if there are councillors, trustees public demands and trends. and senior managers who are prepared to invest time and effort in a long-term “Sport and physical activity partnership approach. impacts on multiple agendas • Enable the trust to have flexibility to and so four Cabinet members engage with a range of partners as they see fit – making collaborative oversee this area. KAL links, adding and receiving value and engages us in discussion connecting programmes and services. about proposals to develop the leisure centres and provides For further details please contact Alasdair Brown regular performance updates. Chief Executive, Kirklees Active Leisure Our partnership is going [email protected] from strength to strength and or we have confidence in KAL Adele Poppleton being able to contribute to the Head of Active and Creative Communities, Kirklees Council outcomes we want to achieve [email protected] and look after our stock of leisure facilities.”

Swimmers ready to race in Kirklees

Active people, healthy places 32 COUNCILS DELIVERING SPORT AND PHYSICAL ACTIVITY FACILITIES AND SERVICES IN PARTNERSHIP WITH OUTSOURCED PROVIDERS Hackney services and activities, particularly targeting people most in need. The improvements in service standards have been evidenced GLL, a charitable social enterprise, by a 68 per cent reduction in complaints, manages sport and leisure facilities achievement of the Quest Plus standard and and services for the London the Customer Service Excellence award. Borough of Hackney under a Examples of how the partnership work is contract which runs to 2029. The supporting council priority objectives include: partners are working together to • Free family swimming lessons: in partnership raise participation rates and improve with Hackney Council, GLL delivers free swimming lessons at Kings Hall Leisure the health of local people, while Centre during school holidays. In 2017 there reducing the cost to the council over were 1,386 visits to the programme, from time. all ages, with many teenagers and adults progressing from being non-swimmers to Background being able to swim 25 metres. Hackney has a growing, diverse and young • Dementia swimming: GLL delivers a population, with a quarter of residents dementia swimming programme, which has aged under 20. GLL has been working had 30 individual participants in the first with Hackney Council for over 12 years, two years. managing facilities and services including leisure centres, a water sports centre, a lido • Activities for older people: March 2017, with and the famous Hackney Marshes, with 82 funding from Hackney Council, a project football, rugby and cricket pitches. GLL and began aimed at developing community- the council work closely together to raise based opportunities for older people. To participation rates, improve the condition of date, four chair-based exercise sessions the leisure facilities, target key community have been set up with housing and care groups and generate increased income. providers. An average of 26 participants attend per week. All the participants have The partnership employs over 160 permanent housing, support and care needs, with staff and more than 300 sessional staff, around 50 per cent living with dementia. mainly from local communities, and pays • Hackney Cup for Health: in 2016 GLL’s the London Living Wage. GLL has an Community Foundation supported Hackney apprenticeship programme based in Hackney Wick Football Club to deliver a seven- offering young people paid employment, a-side football tournament. The event training and career opportunities. was attended by 487 people, with 170 Impact and outcomes becoming engaged with grassroots football GLL has made significant improvements to for the first time. It was repeated in 2017. the services provided to communities and in Hackney Council and GLL work with terms of participation. Total participation rates a range of local and national partners have increased from 1.1 million visits in 2009 to deliver programmes and projects, to 1.9 million in 2016. including local voluntary and community The relationship has also yielded increased sector organisations, Age UK, Alzheimer’s revenue and service standards. GLL reported Society, Sport England, Amateur Swimming a £4 million increase in revenue generated Association, England Netball, England up to 2015 over a six-year period. As a Squash, Lawn Tennis Association, Homerton leisure trust it utilises a cross-subsidy model, University Hospital NHS Trust and the South using this revenue to subsidise investments, East Commissioning Unit.

33 Active people, healthy places Looking to the future Key learning points Given the successful performance of the • Ongoing discussions and reviews partnership and the context of financial are important. This includes monthly pressure on local authorities, GLL and operational meetings with facility Hackney Council entered into discussions on managers, quarterly meetings at head- the future management of the facilities. The of-service level and strategic review aim was to achieve: meetings every six months. This continual • continued delivery of health and social relationship at all levels allows for a outcomes and priorities consistent and positive partnership. • the provision of planned investment and • A joint, proactive approach to improved performance of the existing implementing national policy and good centres practice. For example, both organisations are committed to being London Living • financial savings for the council. Wage employers. As a result of these discussions, the key • A culture of proactivity across the whole changes included a five-year contract contract has been important in delivering extension for GLL to 2029; a reduced cost the outcomes. to Hackney Council through decreasing subsidies towards a zero-based management For further information contact fee; the council investing capital to redevelop Adrian Ballington two existing facilities during the contract Head of Development and Partnerships, GLL term; and a capital investment of £3.5 million [email protected] by GLL in two other centres, to complement the council’s investment plan and ensure or continued increases in participation. Ian Holland Head of Libraries, Leisure and Green Spaces, London Borough of Hackney [email protected]

Open water swimming in Hackney

Active people, healthy places 34 COUNCILS DELIVERING SPORT AND PHYSICAL ACTIVITY FACILITIES AND SERVICES IN PARTNERSHIP WITH OUTSOURCED PROVIDERS Tameside local leadership, and both organisations are involved in the Greater Manchester devolution of health and social care. Active Tameside manages leisure facilities for Tameside Metropolitan Impact and outcomes Active Tameside developed a strategy for Borough Council. It provides a 2016-24 setting out how it would deliver the range of community services with outcomes within the partnership agreement. the aim of engaging people in active The trust now runs 18 services that span the life course, including services for schools, lifestyles. The trust has been re- people with disabilities and older people. Many modelled in recent years, with a of these services reach into the community shift to co-production and a new and to areas of disadvantage. For example, outcomes-based agreement. the trust supports 1,500 people with long-term conditions into an active lifestyle each year, helping to reduce their dependence on the Background health and social care system. Tameside Sports Trust was formed in 1999 as a single-contract trust serving Tameside In parallel to the service development, Metropolitan Borough Council, with a contract Active Tameside’s revenue has grown from to manage 10 facilities and provide a range of a turnover of circa £6 million (2011) to an community services involving voluntary and anticipated £10 million (2018). A joint trust/ community sector partners. A re-modelling council capital investment programme is of the trust began in 2011, led by the council underway. The trust has delivered efficiencies and in partnership with the trust, with the twin leading to a 20 per cent reduction in the aims of: management fee relative to turnover, with aspirations for further reductions in the future. • maximising the role of sport and leisure in The new relationship and charitable service reducing demand on the health and social model have enabled leverage of a range of care system external grants. • reducing the leisure contract management fee in order to meet spending reduction Looking to the future targets. The outcomes-based partnership agreement will continue to evolve in order to maximise The trust was re-branded as Active Tameside opportunities to improve healthy life and a top-to-bottom business redesign took expectancy. The partners are looking at place, which led to the co-production of other opportunities, such as voluntary sector a new outcomes-based contract in 2017. partnerships, to ensure that the trust can Progress is shared and reviewed at quarterly thrive in the longer term as the provider management meetings which involve the lead of high-quality sustainable services. Both executive member and senior officers from partners are committed developing the the council and trust. evidence base to demonstrate broader social value, economic impact and social return on This partnership work has positioned Active investment. Tameside as a prime provider under new locality health and social care integrated Councillor Ged Cooney, Executive Member commissioning arrangements. It is heavily for ‘Healthy and Working’, said: “I’m proud involved in ‘GM Active’, which brings together that Tameside commissioners, providers and 13 Greater Manchester leisure providers stakeholders are working so closely together with a focus on working together to improve to ensure we can provide leading leisure, healthy life expectancy through physical sport, physical activity and wellbeing services activity. Tameside Council provides proactive for our residents.

35 Active people, healthy places “Together we are co-designing younger people, and should and investing in services to continue to make a difference respond to the challenge of for years to come.” increased demands in health Key learning points and social care, much of which • Build consensus with stakeholders is down to an increasingly around the need for capital investment inactive society, in a climate of to reduce costs, gain efficiencies and reduced government spending. develop/sustain assets and services. This response includes radical • Create a joint understanding of the value of preventative services and new approaches to upgrade delivery by leisure, including among and sustain early intervention health and social care stakeholders and and preventative services to commissioners. help get people more active • Don’t be afraid to advocate a bold vision and lead healthier lives. in what is a challenging time for public services in order to take advantage of the “This work is an absolute opportunities for progressive, dynamic priority and we meet regularly and agile leisure trusts, working with their voluntary sector and council partners. to share and review Active Tameside’s progress. Some of For further details contact this work also feeds through to, Mark Tweedie and is monitored by, the Health Chief Executive, Active Tameside [email protected] and Wellbeing Board. Our or offer is now one of the most Angela Hardman diverse and inspirational across Director of Population Health, Tameside Greater Manchester, with both Metropolitan Borough Council traditional venues and cutting- [email protected] edge facilities that appeal to

A young resident in Tameside takes on an aerial challenge

Active people, healthy places 36 COUNCILS DELIVERING SPORT AND PHYSICAL ACTIVITY FACILITIES AND SERVICES IN PARTNERSHIP WITH OUTSOURCED PROVIDERS Stockton-on-Tees Both of these investments are seen by councillors and officers as evidence of the positive impact of the trust model. Tees Active is a charitable leisure trust established by Stockton-on- Maintaining positive working relationships between officers, councillors and Tees Active Tees Borough Council in 2004. has been critical to the partnership’s success. As well as providing cost-efficient This has been underpinned by Tees Active’s management of council facilities, it commitment to inform and involve people, consult on developments, listen to feedback delivers a range of commissioned and liaise with councillors and community services that contribute to the local groups. When Tees Active was successful health strategy. in gaining an external contract, it kept the council informed and assured that the focus Background on Stockton would not be affected. In fact, Tees Active was formed in 2004 with the this contract has enabled additional revenue transfer of services in leased buildings from to be invested in services and facilities for Stockton-on-Tees Borough Council. The Stockton-on-Tees communities. core contract includes four leisure facilities, To support the long-term objectives of the a theatre, gym facilities, an indoor bowling partnership, Tees Active proposed an option venue, childcare services, a climbing wall and to progressively reduce the need for subsidy. an ice arena. The initial contract has been In order to meet the twin aims of saving costs extended by 20 years to 2039. and service development, it provided options From the outset, there was a strong alignment based on investment, service expansion and of the trust objectives to those of the council, consequent revenue savings: in essence, particularly on social impact. Tees Active has a series of invest-to-save options and a seven strategic aims: reduction in the management fee paid by the council. • to deliver a high-quality, innovative, customer-focused service Impact and outcomes The partnership has led to positive impacts • to maintain a high-quality, sustainable stock financially, to service quality and community of facilities participation. Due to the strong partnership • to ensure the service appeals to all aspects and clear achievement of the original of its communities objectives, the council was happy to use • to maintain a motivated, well-trained, prudential borrowing to invest £14 million in focused and engaged workforce facility development, repaid by Tees Active through increased revenue. The council also • to reduce the cost to client authorities of invested capital to complement the trust’s operating the service contributions, leading to a total of almost £30 • to expand the company reach million to transform the original facilities. • to achieve year-on-year increases in visitor The council’s subsidy to Tees Active is numbers. gradually being reduced. The approach has been to take a long-term view of Within a year, both organisations had made service development, investment and capital investment into the facilities. Tees subsidy reduction while expanding the Active has also invested in services over and range of services. By 2018 the subsidy will above the contract with the council, such as have reduced by almost 60 per cent while the exercise on prescription scheme and local participation has increased by 45 per cent sports academy. (since 2004).

37 Active people, healthy places Tees Active has developed a strong Key learning points relationship with colleagues in public health, • A close working relationship is essential delivering a range of commissioned services in order to align priorities, maintain a to contribute to the local health strategy. focus on development/improvement and Looking to the future ensure colleagues and communities feel Both organisations have a strong sense that the trust ’belongs’. of partnership, shared ownership and • Good personal relationships help to responsibility for growth and efficiency in the maintain a positive partnership. Tees sports and leisure sector. When the contract Active is succession planning to ensure extension was being considered, the council this continues into the future. commissioned an external assessment which concluded that Tees Active provides good • Maintain and develop a culture and ethos value for money and that its culture, ethos and which has social impact at its heart. values align with those of the council. • Identify issues early and provide solutions: there is an evidenced link The trust’s new business plan sees a sharper between being solution-focussed and focus on community engagement and long-term sustainability. health interventions, both of which make key contributions to council objectives, prioritising those people most in need. This will see For further details contact Tees Active working more closely with other Steven Chaytor local services and organisations, including Managing Director, Tees Active the voluntary and community sector, further [email protected] cementing its role in supporting the delivery or of local strategies. Neil Russell Leisure and Sports Development Manager, Stockton-on-Tees Borough Council [email protected]

White water rafting in Stockton-on-Tees

Active people, healthy places 38 COUNCILS DELIVERING SPORT AND PHYSICAL ACTIVITY FACILITIES AND SERVICES IN PARTNERSHIP WITH OUTSOURCED PROVIDERS Oldham By opting for a contract specification which separated the design and build elements from the operation and management Oldham Community Leisure elements, Oldham was more likely to receive was formed as an industrial and tender submissions from charitable trusts. provident society in 2002. Its OCL provided a financially competitive bid that was equally strong in terms of wider partnership with Oldham Council is social impact and community benefit. This successfully delivering on a range commitment to community-based provision of community outcomes. The leisure was key to securing the contract. As a trust delivers health interventions charitable trust, OCL can balance commercial viability and efficiency with community and and services as well as running social outcomes. It is actively involved in leisure centres and sports facilities. collaboration and partnerships to improve the health, wellbeing and activity levels of local Background residents. Oldham Community Leisure (OCL) formed as OCL is a single-contract operator, meaning an industrial and provident society and moved that decisions are made locally, purely to out from Oldham Council in 2002. During the benefit the Oldham community and economy. initial 10-year contract it was supported by a Surpluses are reinvested into initiatives which subsidy of around £1.7 million a year. When benefit local people. To date, it has secured the contract was up for renewal in 2012, over £2 million in external funding for capital Oldham Council was looking for invest-to-save investments into facilities and the delivery options in order to deliver a fit-for-purpose of health interventions and services, such portfolio of facilities and services. as programmes/interventions on healthy The council opted to invest £23 million cooking, long-term conditions, drug and of capital into building two new facilities alcohol dependency and childhood obesity. to replace four that were outdated and Neil Consterdine, Oldham Council’s Head of operationally inefficient. Much of that Service for Public Health, Youth and Leisure, capital investment was to be repaid through said: “As a leisure trust, OCL supports the a significant reduction in future subsidy council’s and Oldham’s wider outcomes payments, from about £1.7 million a year around delivery of the health and wellbeing to an average of less than £400,000. OCL agenda and corporate priorities. This is remained keen to bid for the new contract. also supported through the delivery of a To meet the council’s priority of providing performance framework that is monitored attractive, efficient and financially sustainable by the council. The trust has a position on public facilities, its business plan included the Health and Wellbeing Board and the a streamlined delivery model and a focus borough’s Leadership Board.” on maximising community engagement and participation. Looking to the future Future priorities are based on partnership Impact and outcomes and mutual benefit, with the ambition of a The partnership is achieving record healthier Oldham population. Examples of attendances in most areas, including overall this work include: admissions and membership. Critical to this success has been Oldham Council’s • Oldham Council recently ran a health recognition that investment was key to project focused on the wellbeing of its raising participation levels, increasing own workforce, delivered in partnership efficiency and subsequently reducing the with OCL operational subsidy.

39 Active people, healthy places • OCL is supporting the local priority of reducing worklessness, for example by hosting engagement sessions in leisure centres for unemployed people, providing an opportunity to encourage people to become more active and improve their physical and mental wellbeing • OCL is progressing partnership work to support several of Oldham Council’s community centres to make them more resilient, efficient and ready for asset transfer into their own independent organisation.

Key learning points • Separating the design and build components of a contract from the operation and management components increases the likelihood of bids from charitable trusts, meaning a focus on community and social outcomes, rather than profit generation. • The criteria for assessing tenders in a procurement process is critical. If the driver is to achieve the lowest price, the outcome will be a ‘caretaker’ operator with little interest in community outcomes. Ask prospective operators how they plan to engage priority community groups in activities and services. • Contracts for leisure services should allow for a modest profit to be made. The trust model is based on cross-subsidy: surpluses provide financial resilience and the ability to re-invest in facilities, services and activities. • Local councillors sit on the trust board, strengthening the partnership and the alignment of objectives and outcomes.

For further information contact Stuart Lockwood Chief Executive, Oldham Community Leisure [email protected] or Neil Consterdine Head of Service – Public Health, Youth and Leisure, Oldham Council [email protected]

Active people, healthy places 40 Further reading and contacts

Sporting Future – A New Strategy for an The LGA also offers free ‘Leadership Active Nation, HM Government, 2015: Essentials’ training for councillors with www.gov.uk/government/publications/ responsibility for sport and physical activity: sporting-future-a-new-strategy-for-an-active- www.local.gov.uk/our-support/highlighting- nation political-leadership/leadership-essentials

Towards an Active Nation Strategy 2016-21, Leisure management options guidance, Sport England, 2016: Sport England, 2017: www.sportengland.org/media/10629/sport- www.sportengland.org/facilities-planning/ england-towards-an-active-nation.pdf further-guidance/leisure-management- options-guidance A suite of LGA resources and tools on sport, physical activity and leisure can be found at National Procurement Strategy for Local www.local.gov.uk/our-support/our- Government, LGA, 2014: improvement-offer/culture-and-sport- www.local.gov.uk/national-procurement- improvement and includes: strategy

• a guide to developing a local outcomes A councillor’s guide to procurement, LGA, framework for culture and sport 2013: • culture, tourism and sport improvement www.local.gov.uk/sites/default/files/documents/ toolkit councillors-guide-procure-4b2.pdf • Engaging in commissioning: a practical LGA: culture, tourism, leisure and sport news resource pack for the culture and sport and resources: sector www.local.gov.uk/topics/culture-tourism- • Putting culture and sport at the heart leisure-and-sport of commissioning: the role of political cCLOA: leadership http://cloa.org.uk/current-issues • Putting culture and sport at the heart of Sporta’s resources on engaging in strategic commissioning: councillor briefing commissioning for sport and physical activity note can be found at: • Understanding commissioning: a practical www.sporta.org guide for the culture, tourism and sport sector. Procurement toolkit, Sport England: www.sportengland.org/facilities-planning/ further-guidance/procurement-toolkit

41 Active people, healthy places Everybody Active, Every Day - a framework Contact details: to embed physical activity into daily life, PHE, 2014: Local Government Association www.gov.uk/government/publications/ www.local.gov.uk everybody-active-every-day-a-framework-to- [email protected] embed-physical-activity-into-daily-life Sporta Childhood obesity: a plan for action, HM www.sporta.org Government, 2016: [email protected] www.gov.uk/government/publications/ c childhood-obesity-a-plan-for-action CLOA www.cloa.org.uk Cycling and Walking Investment Strategy, HM [email protected] Government, 2017: www.gov.uk/government/publications/cycling- and-walking-investment-strategy

Sport England resources at www.sportengland.org/research/resources/

• understanding how to target under- represented population groups through insight (eg disabled people, inactive people, youth, women) • evaluation of funding streams and projects • to interrogate data sets and undertake economic modelling.

The Public Health England Physical Activity Fingertips tool brings together local data on physical activity and associated health and wellbeing outcomes to help support benchmarking, commissioning and service improvement: https://fingertips.phe.org.uk/profile/physical- activity

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