Appendix 4 Greater Authority Green Spaces Investigative Committee

Paper submitted by England (London Region)

Introduction 1 Sport England is the “brand name” of the English Council. The latter began operating under Royal Charter in January 1997. Before then, responsibility for the development of sport in England lay with the GB Sports Council, established by Royal Charter in 1972. Sport England’s objective is to lead the development of sport in England by influencing and serving the public, private and voluntary sectors. Its broad aims are: more people involved in sport, more places to play sport and more medals through higher standards of performance in sport.

2 Our work is jointly funded by the Exchequer and the National Lottery. Grand-in-aid from the Exchequer goes primarily towards maintaining England’s sports infrastructure. Sport England is also responsible for the distribution of National Lottery funds earmarked for the development of sport in England. Sport England is accountable to Parliament through the Secretary of State for Culture, Media and Sport. Its work is scrutinised by the House of Commons through the DCMS Select Committee and the Public Accounts Committee.

3 Staff at our HQ in central London work closely with those at its nine regional offices across England. Together, Sport England staff work hand-in-hand with an extensive network of partners and contacts across the private and public sectors including: local authorities, sports governing bodies, and national and regional organisations concerned with sport, recreation, education and the environment.

Statutory Consultee on Playing Fields 4 Sport England is a statutory consultee on proposals for development which affect playing fields, land used as playing fields at any time in the previous five years which remains undeveloped, or land which is identified for use as a playing field in a development plan. The consultation requirement was introduced by SI 1996/1817, which defines “playing field” as “the whole of a site which encompasses at least one playing pitch” and “playing pitch” means “a delineated area which together with any run off area, is of 0.4 ha or more, and is used for association , , rugby, , , , , , , Australian football, , , , or cycle polo”.

5 Although Sport England does not have the power to prevent development, local planning authorities take into account our views and recommendations in determining applications. However, under DETR Circular 9/98 (The Town and Country Planning (Playing Fields)(England) Direction 1998, local planning authorities are required to refer certain planning applications to the Secretary of State (DETR), via the Regional Government Office, for a decision on whether it should be called in. This is where the local planning authority is minded to grant planning permission but Sport England has objected on the grounds of existing or resulting deficiency in provision of playing fields in the local authority area, or where the proposed development involves a loss of a playing field and an alternative or replacement playing field is proposed, but the alternative provision would not be equivalent in terms of quantity, quality or accessibility to that which is lost. The Direction applies to any proposal for development of any playing field owned by a local authority or used by an educational institution. Land owned by a local authority which falls within the definition of “playing field” includes parkland, open space used for informal recreation, or land leased to sports clubs.

6 By opposing inappropriate development of playing fields, Sport England aims to ensure that there is no further reduction in the supply of conveniently located, quality playing fields to satisfy the current and likely future demand. However, we also

1 recognise the importance of local planning authorities including appropriate policies to protect playing fields in their development plans and we make appropriate representations on development plans during their preparation.

Sport England’s Planning Policy Statement on Playing Fields 7 Our policy on planning applications for development on playing fields is set out in the Planning Policy Statement: A Sporting Future for the Playing Fields of England (1997). This is consistent with both PPG17 (Sport and Recreation) and the Government’s strategy for creating sporting opportunities for all, set out in the Department for Culture, Media and Sport publication: A Sporting Future for All (April 2000). Sport England’s planning policy stresses: “Playing fields are one of the most important resources for sport in England. They provide the space which is required for the playing of team sports on outdoor pitches. Yet, as open land, particularly in urban areas, becomes an increasingly scarce resource, they often seem to offer a tempting opportunity for other forms of development. Sport England opposes such development in all but exceptional cases, whether the land is in public, private or educational use. It does so because the loss of any part of a playing field may represent the irretrievable loss of an opportunity for participation in pitch sports, and with it the many benefits which sports brings.”

8 Our playing fields policy states: “Sport England will oppose the granting of planning permission for any development which would lead to the loss of, or would prejudice the use of, all or any part of a playing field, or land last used as a playing field or land allocated for use as a playing field in an adopted or draft deposit local plan, unless, in the judgement of Sport England, one of the specific circumstances applies.

The specific circumstances are: E1 A carefully quantified and documented assessment of current and future needs has demonstrated to the satisfaction of Sport England that there is an excess of playing field provision in the catchment, and the site has no special significance to the interests of sport.

E2 The proposed development is ancillary to the principle use of the site as a playing field or playing fields, and does not affect the quantity or quality of pitches or adversely affect their use.

E3 The proposed development affects only land incapable of forming, or forming part of, a playing pitch, and does not result in the loss of or inability to make use of any playing pitch (including the maintenance of adequate safety margins), a reduction in the size of the playing area of any playing pitch or the loss of any other sporting/ancillary facilities on the site.

E4 The playing field or playing fields which would be lost as a result of the proposed development would be replaced by a playing field or playing fields of an equivalent or better quality and of equivalent or greater quantity, in a suitable location and subject to equivalent or better management arrangements, prior to the commencement of development.

E5 The proposed development is for an indoor or outdoor sports facility, the provision of which would be of sufficient benefit to the development of sport as to outweigh the detriment caused by the loss of the playing field or playing fields.”

Protecting Green Spaces in London 9 In relation to green spaces, Sport England’s principle role and experience lies in encouraging the protection and improvement of playing fields, whether they are in public parks, educational use or in private ownership. There is continual pressure for development of such land, primarily for residential development, for which there is a high demand in London. However, as indicated by our planning policy statement above, Sport England does not seek to impose a blanket restriction on development

2 on playing field sites but planning applications must meet the requirements of our exceptions if we are to be justified in not objecting.

10 There are many threats to playing fields in London. Public playing fields frequently suffer from cutbacks in local authority expenditure in recreation and leisure departments, which are not seen as a priority and are not a statutory requirement. This has an inevitable impact on maintenance and useage. Pavilions and other essential buildings often suffer from vandalism. Given the five year limit on the need for local planning authorities to consult Sport England on disused playing fields, there is also a continuing risk of playing field sites being lost through closure and being allocated for development in Unitary Development Plans.

11 London also has many private sports grounds that were established by major employers for their staff. These include banks, insurance companies, major retailers, transport and statutory undertakers. Membership of staff sports clubs has declined reflecting reduced employee numbers and changing patterns of participation. In addition, the ownership of sports grounds has changed through corporate mergers and takeovers. Consequently, many owners of private sports clubs are looking for opportunities to redevelop part of their playing fields. In some cases, owners have forced the closed of the and locked the ground to await the opportunity for a favourable planning decision. Sport England is concerned that if closure of a sports ground and the disuse and neglect of its pitches and facilities were accepted as sufficient grounds for allowing development, unacceptable at a sports ground still in use, this would send the wrong message to owners of other sports grounds. We wish to secure greater community use of such playing fields and prevent their loss to development.

12 School playing fields are also under continuing pressure for development, usually for housing. Where a school considers it has more playing fields that it needs, such development can fund major improvements to school facilities. This is a form of cross subsidy for education provision, but Sport England objects to planning applications that do not meet the requirements of our playing fields policy and show a net gain for sport. Where possible, we also encourage dual use of sports facilities by the school and local community.

13 Greater protection could be provided for playing fields by an increased use of call in powers by the Secretary of State when Sport England objects. The importance of strengthening the protection for playing fields and securing increased community use should also be reflected in the forthcoming revision of PPG17. Increasing the five year period during which local planning authorities are required to consult Sport England would also increase our ability to protect playing fields. The Spatial Development Strategy should also play an important role in strengthening the protection given to playing fields in the London boroughs’ UDPs. The retention of playing fields and open spaces would also be encouraged by UDP planning policies that required evidence of any disused sports ground having been actively marketed for alternative sports or recreation use before any consideration is given to alternative development proposals. This should discourage owners locking up sports grounds and neglecting them when other operators may be willing to take them on.

Enhancing and creating new green spaces 14 The New Opportunities Fund (NOF) is part of the Government’s strategy for creating sporting opportunities for all, set out in the DCMS publication A Sporting Future for All (April 2000) and updated in The Government’s Plan for Sport (March 2001). Through its Green Spaces and Sustainable Communities Programme, it intends that NOF will commit a national total of £125 million, by 2002, to projects designed inter alia to help urban and rural communities to create new, or enhance existing areas of open space. NOF has set aside £22.3 million for its Playing Fields and Community Green Spaces programme and a further £9.2 million for children’s play. Sport England has been made an ‘award partner’ by NOF, with delegated authority to manage funds and make decisions, reporting back to NOF.

3 15 NOF’s Playing Fields and Community Green Spaces programme has three strands: • To protect, provide and improve playing fields and green spaces for the benefit of local communities, especially those in deprived areas. • To work in partnership with Learning Through Landscapes and other organisations to deliver a programme of improvements to school playgrounds. • To work in partnership with other organisations to deliver ten pilot projects for children’s play in the community.

16 Playing field improvement and protection is regarded as a priority with the outcome of a legacy of long lasting protection of playing fields. To help deliver the NOF programme, Sport England will be appointing a Development Officer in London to encourage or solicit projects that meet the defined criteria. It is expected that 50 per cent of funding will be targeted at areas of urban deprivation and the remainder on a per capita basis. London is likely to be allocated about £6 million over a three year period. The types of projects likely to be eligible for funding include: • Purchase of land for new playing fields identified through the adopted UDP or playing pitch strategy in an area of deficiency. • Purchase of playing fields under threat through a planning application or the expiry of a lease. • Purchase of playing fields and green spaces fallen into disuse, to bring them back into community recreational use.

17 The purchase of land and playing fields will be at open space valuation. Funds will be available to local education authorities and schools wishing to provide new playing fields or hard surface team play areas in order to establish a club/school link.

18 Another potential source of funding to restore playing fields is the London Marathon Trust. This has provided grant aid for the acquisition and maintenance of sports pitches e.g. the London Marathon Playing Fields in Greenwich, which are managed by the London Playing Fields Society.

[Sport England, London Region/PD]

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