Memorandum submitted by The Football Association
SECTION 1
Summary and introduction
1.1 The FA is the governing body in England
for football—the nation's most popular sport in terms of
both spectators and players. It is our task to promote and develop
the game at all levels. As the governing body, it is our role
to set out the standards for all who want to play the game, and
uphold those standards. The FA brings together football's many
constituent parts, at all levels of the game; this includes clubs,
players, officials, administrators, managers, coaches and supporters.
1.2 In view of our duty to promote the sport
of football in every possible way, The FA welcomes this inquiry
and the opportunity to contribute. In addition to this evidence,
we would be pleased to give oral evidence and answer any further
questions the Committee might have.
1.3 The remit of this inquiry, "Drugs
and Role Models in Sport", addresses one of our priority
subject areas. As the following evidence will demonstrate, the
subject is treated with the utmost importance by football, both
in terms of testing and prosecution procedures, and just as importantly
in terms of education of players and officials, and our wider
role in society.
1.4 The FA is totally committed to preventing
doping in professional football. Our policy in this area is built
on the following core principles:
— To prevent cheating; taking
performance-enhancing drugs is cheating and is contrary to the
standards the game has set through the rules, and that all participants
should meet.
— To educate players of the
dangers of drugs to their health.
— To protect players from injury
caused by other players who may be taking drugs.
1.5 As a separate but related issue, The
FA is fully aware of the role it can play in promoting awareness
of issues in society as a whole. We have a fourth core principle,
— To use the power of football to
grip the hearts and minds of large parts of the wider community.
We are of course aware of the part we can play in promoting healthy
living, and in this case explaining the risks of drug use. We
can help provide the means for people to build communities around
sport, which can combat the social ills that are connected to
recreational drug problems.
The Anti-Doping Framework in world and English
professional football
1.6 In implementing anti-doping in English
professional football, The FA follows the Doping Regulations of
FIFA, the World Governing Body. Football's worldwide anti-doping
policy and procedures are set by FIFA, and are aligned with those
of the International Olympic Committee. FIFA have been conducting
football's discussions with the World Anti-Doping Agency (WADA)
in preparation for the new, worldwide system that will be adopted
prior to the Athens Olympics. The FA has been working with FIFA
to ensure that we have the best possible system in the future.
Keeping English football free of drug-cheats
1.7 In English professional football, The
FA works closely with The FA Premier League, the Football League
and the Professional Footballers' Association—use of the
terms "FA" and "football" are in many respects
interchangeable in this report. The FA is the governing body,
and therefore carries out much of the work itself—but in
this area it is doing so for and on behalf of all in the professional
game.
1.8 Taking drugs to improve performance
is cheating, and will not be tolerated by the game itself, or
by its stakeholders. The FA has an extensive education and testing
programme, and will remove proven cheats from the game. However,
it is very important to note that English football does not have
a performance enhancing drug culture. Out of thousands of tests,
there has only been one positive find for a performance enhancing
substance.
1.9 Other sports, where the "benefits"
of performance enhancing drug use can more easily be seen to contribute
to success, do have a much greater issue to contend with. To be
an elite performer in football requires a combination of skill,
agility, speed, strength and more: the link between particular
performance enhancing substance abuse and achieving success in
football is much more difficult to identify.
1.10 The FA will remain vigilant on this
issue, but would draw to the Committee's attention that in our
sport, the positive tests are not for those substances that enhance
performance, but those commonly referred to as recreational or
social drugs.
Recreational or social drug use
1.11 In common with society as a whole,
professional football has to deal with social or recreational
drug use. Those who use, and particularly those with addictions
to, social drugs may be causing themselves harm, and possibly
risking harm to fellow professionals, who make their living from
the game, if they go on to the field of play in an intoxicated
state.
1.12 The game wants to help those individuals
to beat their addiction, if at all possible. What we have created
is a system, which looks at each case on its individual circumstances.
This means focusing on treatment and rehabilitation whenever a
player has an addiction, but also retaining the sanction based
approach where it is felt necessary. Recreational drug use amongst
professional sportsmen is a complex issue, as recent debates within
sport and other areas of society have shown. Just as an example,
part of the World Anti-Doping Code debate has been about social
drug use—with WADA considering the removal of out-of-competition
social drug use from the prohibited substance list.
1.13 Our strategy involves testing programmes
at the professional game level and punitive measures where appropriate.
But even more importantly, we run a comprehensive education programme.
We try to instil the message, in conjunction with The PFA and
professional clubs, from a very young age, that professional footballers
must take responsibility for what they eat and drink, seek advice
if necessary, and stay clear of drugs, whether recreational or
performance enhancing.
1.14 There is also an important distinction
between the professional game, and the amateur or "national"
game. The testing programme applies at the professional game level,
as that is where the "cheating" issue lies. Whilst football
plays its parts in promoting education and awareness to the wider
community, it is not part of football's role to test the millions
who play for fun, leisure and exercise.
1.15 The FA has always been at the forefront
of drug testing programmes, and this is exemplified by a testing
programme of over 1,200 random unannounced tests per season, involving
over 450 doping "visits" to all professional clubs in
the country, on a seven-day-a-week basis.
1.16 The FA's drug testing programme makes
up approximately one-fifth of the whole of the testing programme
in UK Sport. Not only does The FA buy more tests than any other
sport in the UK, we also, in the words of former UK Sport Chief
Executive Richard Callicott, The FA
"use those tests to the greatest effect,
targeting well, and handling cases extremely effectively".
The FA is determined to maintain the professional
standards and integrity that have made its programme an industry
leader.
Role of Government
1.17 The FA welcomes the interest and support
of Government in tackling doping in professional football in England.
It is important for Government to provide strong support to enable
sports governing bodies to run effective antidoping policies.
1.18 However, we strongly believe that sports
governing bodies must take the lead in drug testing and doping
policy in their own sports. Each sport needs to own the
issue, to take it seriously on behalf of its sport. These bodies
will each know the best means of educating, rehabilitating, deterring
and punishing offenders in their own sport. Each sport will decide
what is or is not acceptable behaviour, will set the standards
and enforce them—led by their international federation.
Football in England is governed in this respect by FIFA's anti-doping
code. This is being rewritten at the moment to reflect FIFA's
agreement with WADA as to how the principles in the WADA code
will operate in football. This amended code for football is not
likely to be published until May 2004.
1.19 There has been a strong historical
association between The FA's Doping Control Department and UK
Sport's Drug-Free Directorate. The FA has supported UK Sport as
its retained collection and testing agency for many years. UK
Sport provides 250 free tests out of the 1,200 that we have decided
to carry out—The FA purchases the rest.
1.20 Whilst we see great strengths in UK
Sport carrying out the independent collection and testing role,
and taking a lead in the education field, we do not see any need
for it to have any wider role. We are aware of discussion of an
independent, statutory agency to fulfil a wider role, for instance
to take on the prosecution and determination of any disciplinary
cases. The FA has existing rules, regulations and procedures—and
resources—to deal with these matters. FIFA sets out the
framework, and The FA carries it out.
1.21 There is much talk of "independent
doping agencies", but without any clarity as to what is meant
by this. Our fundamental concern is to ensure that the applicable
rules, regulations and procedures are clear. The introduction
of another agency, on a national level, would not help. We would,
however, welcome the Government considering running an accreditation
scheme—perhaps through UK Sport—for agencies that
wish to collect and test samples, and the various processes that
follow a positive find. There may be other ways in which UK Sport
could play an advisory and assistance role to sports bodies, in
the area of rules, regulations, prosecution resource and tribunal
appointments. Consideration could also be given to some form of
insurance support for governing bodies. However, any such considerations
should not alter the fundamental point that the sport itself must
retain control, ownership, responsibility and accountability.
1.22 Drug testing is expensive; The FA finances
the majority of its drug testing and education programmes and
will spend many hundreds of thousands of pounds on this each season.
However, we are aware that other sports may not have this funding
available. The Government may well have a vital role to play,
and The FA believes that Government could ensure that funding
is in place to enable drug testing to be widely and effectively
utilised across sport.
Football's wider contribution
1.23 We are well aware of the power of football.
A significant proportion of the population follows professional
football and/or participates in football at lower levels. There
are a great many avenues through which football can help to promote
healthy living—by both promoting the message and providing
the facilities and sporting infrastructure. The Committee's inquiry
highlights an area where football, the Government and the private
sector can and do create meaningful partnerships to deliver real
benefits.
1.24 Football is working in a number of
areas to ensure that as many young people as possible are presented
with an environment that is not conducive to recreational drug
use. These are successful partnerships between football and Government;
football wants to use its power to build communities, and a better
future. This is a key focus for football and we call for full
Government backing in this area.
1.25 One of these initiatives is the Home
Office's "Positive Futures" campaign, which is working
with a number of sporting agencies, and plays a key role in helping
young people address the many issues associated with substance
abuse, supporting them into education, training and employment.
The Football Foundation, equally funded by The FA, The FA Premier
League and the Government, facilitates and finances a number of
targeted sporting initiatives for socially excluded young people
and those deemed at risk of offending throughout the UK. The last
section of this report shows great results can be achieved when
sport and the Government work together.
SECTION 2
Background—The FA, English football and
the world structure
Worldwide Governance of Football
2.1 Football is a sport played according
to the "Laws of the Game". The sport is governed and
organised throughout the world in a hierarchy. At the top of the
hierarchy, the worldwide regulation of football takes place under
the auspices of the Fédération Internationale de
Football Association ("FIFA").
2.2 FIFA consists of member national football
associations (approximately 200 in recent years) which agree to
conform to the statutes, regulations and decisions of FIFA and
each of which, in turn, is recognised by FIFA as governing the
sport of football in their respective countries. FIFA is the organisation
ultimately responsible for the "Laws of the Game", which
are applied by referees on the field of play. FIFA also operates
an anti-doping code, binding on its members.
2.3 National associations situated on the
same continent may form confederations that are recognised by
FIFA. In Europe, the confederation of FIFA's member national associations
is the Union des Associations Europe«enes de Football ("UEFA").
2.4 In England, the national association
recognised by FIFA is The FA, which is also a member of UEFA.
The FA
2.5 The FA was founded in 1863 as the governing
body of the game in England. The FA is responsible for all regulatory
(including disciplinary) aspects of the game of football in England.
Its activities are many and varied and include the following:
2.5.1 Regulating the game on and off the
field of play through the "Laws of the Game" and the
"Rules of The Association" including antidoping rules.
2.5.2 Sanctioning, either directly or indirectly,
all matches, leagues and competitions played in England.
2.5.3 Overseeing the administration of the
disciplinary system, which is applicable to all participants in
the game (each club, player, competition, match official and any
other person involved in the game in England is bound by the Rules)
and the administration of refereeing throughout the game.
2.5.4 Organising a number of senior men's,
youth and women's national competitions (including most notably
The FA Challenge Cup) and the participation of England national
representative teams (again, senior men's, youth and women's teams)
in international matches, most notably the men's senior team in
the FIFA World Championships and the UEFA European Championships
and friendly fixtures.
2.6 The FA's other key role is promoting
the development of the game amongst all ages, but most notably
children, in terms of participation and quality. This also involves
promoting the availability of the sport to the greatest possible
number of people.
2.7 The rules and regulations—including
disciplinary proceedings in the event of any suspected rule breach,
such as a suspected doping offence—are a contract between
all those in organised football in England and The FA. This contract
is what gives The FA the authority to act on behalf of the game
to punish any breaches of the rules.
Football is the Nation's Game
2.8 Football is as healthy and successful
as it has ever been. The game has more spectators, participants,
revenues and media interest than at any time in its history:
— FA Cup Final 2003 viewed live in
154 countries.
— 28 million UK TV audience for England
v Argentina, World Cup 1998.
— FAPL average match attendance 34,324
in 2002, highest in Europe.
— The Football League is the largest,
most successful and watched "second" league in Europe.
— Seven of top 10 UK TV sport broadcasts
2003 (including Rugby World Cup) were football matches.
2.9 Football is the nation's game in more
than the spectator sense; the scope and reach of the game across
various levels of participation is considerable:
— Seven million participants, plus
five million in schools.
— 37,500 clubs, including 9,000 youth
clubs.
— 32,000 schools (17,000 primary).
— 30,000 FA-qualified coaches.
— 27,000 FA-qualified referees.
— 45,000 pitches (21,000 facilities).
2.10 The FA acts as the link between the
professional game and the amateur game beneath, what we call the
"National Game". There are tremendous links between
the two sides of the game, not least of these is that the volunteers
and players in the National Game are substantially football fans,
who are therefore the customers of the professional game.
2.11 A strong professional game is fundamental
to creating interest in football at the grass roots. The FA has
a strong relationship with The FA Premier League and the Football
League and, particularly in the area of this report, the players'
union, The Professional Footballers' Association (PFA). Football
is well aware that it needs to show its stakeholders, at the professional
game level, that it takes issues of cheating extremely seriously,
and that it adopts a proper and responsible approach to social
drug use. The issue of doping control is one where the twin roles
of The FA as governing the game, and developing the game, come
together.
SECTION 3
The FA Doping Control Programme
History
3.1 Voluntary testing of professional players
began in 1978. Compulsory testing was introduced in 1989. This
involved only professional players "postmatch", and
the testing was originally set up to test for only performance
enhancing substances. This reflects the primary policy objective
of preventing "cheating".
3.2 During the 1993-94 season, The FA and
The Professional Footballers' Association were alerted by a number
of clubs to the possibility that drug dealers may be attempting
to approach youth players. This, combined with the more general
concern about social drug use, together with specific concerns
of clubs, led to major changes in The FA's Doping Control Programme.
3.3 For the 1994-95 season new, innovative
and proactive measures were introduced in the form of:
— The issue to every professional player,
from young Centre of Excellence attendees to England internationals,
of a credit card size "yellow card" which lists all
the prohibited substances he should not purchase as over the counter
medications at chemists.
— Instructions to all professional
club medical staff, managers, coaches and Football Academy/Centre
of Excellence Directors of the need to regularly brief and warn
their players regarding drug abuse, and fully support The FA's
Education and Awareness Programme.
— The introduction of a comprehensive
drug and health education/awareness programme for professional,
and youth players in the form of football specific video productions,
and drug awareness pamphlets aimed at different age groups.
— The testing of youth players (16-19).
— The testing of female players representing
teams in The FA Women's National League.
— The provision to test young players
aged from nine years old up to 17 years old attending 97 FA Centres
of Excellence having gained Parent/Guardian consent to do so (over
20,000 young players attended the Centres of Excellence).
— The addition of a full list of social/recreational
drugs to the list of prohibited substances.
— Testing "Out Of Competition"
at training grounds as well as "Post-Match" at stadia.
— The number of players to be tested
increased from 80 to 272, and was further raised to 500 for Season
1996-97. This served to increase the monitoring, policing and
deterrent factors.
Testing in football—the last nine seasons
3.4 The results of the testing programme
for the last nine seasons are shown
Season
|
Summary | % Positive
Finds
|
| 1994-95 | 272 tests—12 positives (8 cannabis, 2 amphetamine, 2 prohibited common cold cures)
| 5% |
|
| |
3.5 Each of the raised testosterone level finds was investigated
through repeat tests over a period of many months and was found
to be naturally occurring.
The Current FA Drug Testing Programme
3.6 The FA continues to take Doping Control very seriously.
The number of post-game and out-of-competition tests conducted
each season reflects this. The FA conducted 1,253 tests in Season
2002-03. More tests will be conducted in Season 2003-04 and we
will be in a position to provide an update to the Committee when
we give oral evidence.
3.7 We do not disclose the mix of these tests as between
out-of-competition and post-match—but can confirm that of
the 57 positive finds, only one positive has been gleaned from
post-match testing. The FA sees out-of-competition testing as
the more important element of the programme.
3.8 In addition to this substantial domestic programme,
our leading clubs and players are also subjected to regular FIFA
and UEFA post-match tests at international and European club competition
matches. Players playing for other national teams, but who play
club football in England, are therefore tested as well by FIFA
and UEFA. The deterrent effect at the highest levels is therefore
considerable.
3.9 All 92 professional clubs in the Football League
and The FA Premier League receive unannounced drug-testing visits
to matches or training grounds. Over 400 individual testing visits
are conducted each season. Out-of-competition tests take place
at club training grounds. Again, as a team sport, players are
generally at the training ground.
3.10 All tests are carried out randomly and are unannounced.
However, there is also the ability for The FA to "target"
a player if this is requested by his club or The PFA, and where
there is evidence to justify this.
3.11 The FA works to a comprehensive set of Doping Control
Regulations, which set out the testing processes, and the disciplinary
process that applies in the case of any suspected misconduct.
These have been developed to comply with FIFA's regulations.
3.12 The FA's regulations are constantly held under review
to ensure they represent best practice, and this year we have
undertaken a fundamental review to reflect the debate and policy
changes that have been led by WADA and FIFA at an international
level. We have included in our review team external expertise,
including Lord Coe. The review will be presenting its findings
in the near future—and we would anticipate being able to
share these with the Committee at the oral evidence stage. However,
until FIFA has published its Regulations in May, The FA will not
be able to finally settle its new procedures.
3.13 The FA retains UK Sport's Drug-Free Directorate
as an independent agency for urine sample collection and result
reporting service. They in turn retain Kings College London to
carry out the analysis.
3.14 All matches, training sessions and players for testing
are randomly selected. At each visit an FA Supervising Officer,
who is either a Doctor or Physiotherapist approved by The FA,
accompanies two Independent Sampling Officers from UK Sport. The
role of The FA representative is to ensure full co-operation from
the player and club involved, to explain the rules and procedures
to players and officials where necessary, and to check all the
paperwork completed by the Sampling Officers is in order. A further
role is to excuse a player from a testing event on medical grounds,
where a significant injury requires a player to attend hospital
immediately.
Post Match Testing
3.15 For post-match testing at a match, the drug testing
team arrive unannounced at the club. Two players are selected
from each side at random during the half time interval. The Club
will be informed at half time and a club official will be present
to witness the random selection of players. After the game, the
players are directed to a sample collection area (a room with
toilet facilities). The sample collection procedure is explained
to the players and carried out in accordance with the drug testing
guidelines.
3.16 The Sampling Officer(s) will collect the urine samples
and organise the despatch of these samples to the IOC/WADA Accredited
Laboratory at Kings College London for analysis.
Out of Competition Testing
3.17 Prior to the commencement of the season, The FA
collects from all 92 professional clubs the details, maps and
travel directions of their training ground(s). Some clubs have
three or four training venues. In addition, The FA also requests
the additional training times for youth players and 37 Academies
of Football and 54 Centres of Excellence, thus knowing when youth
players are available for unannounced random testing.
3.18 Events are planned on a seven-day per week system—the
events are randomly selected. Three or four more players are randomly
selected by the lead DCO covering the event. The testing team
arrives at the training ground unannounced at or around 11.30am
and inform the doctor, physiotherapist and head coach that the
event has been selected for random testing. The players selected
are informed of the need to give urine samples immediately following
training. It is compulsory. The samples are collected and despatched
in exactly the same way as given for post-match tests.
3.19 The results of the comprehensive analysis of samples
are forwarded to the Administrator of The FA Doping Control Programme
privately and confidentially. The results are in turn relayed
in written form to both the player and his/her Club Secretary.
In the case of a positive find, a separate procedure is followed.
The FA Anti-Doping Regulations and Procedures—positive
finds
3.20 The FA's current Anti-Doping Regulations are set
out in The FA Handbook, and incorporate the Procedural Guidelines
for the Conduct of Drug Testing. The complete regulations are
included as an appendix to this document. These regulations specify
that the following matters are to be regarded as doping offences:
— The detection of a prohibited substance in a sample
provided by a player.
— The use of a prohibited technique by a player
or by a Member.
— The failure or refusal by a player to submit to
drug testing as required by a competent official.
— Inciting or assisting a player to use a prohibited
substance or technique.
— Wilful failure to comply with the testing procedures
set out in the Procedural Guidelines for the Conduct of Drug Testing.
— Interference with the conduct of a drug test or
the Doping Control Programme.
— Possession or trafficking in a prohibited substance.
3.21 A full list of prohibited substances, which include
performance enhancing and social drugs, is set out in a schedule
to the regulations, whilst prohibited techniques (eg blood doping)
are similarly set out in a schedule.
3.22 Positive finds are dealt with as strict liability
offences.
3.23 The Procedural Guidelines contain the provisions
governing the collection of the urine sample from the player and
the division into a main "A" sample and a reserve "B"
sample, together with the subsequent chain of custody considerations
(the sealing, storage and dispatch of the samples to an IOC Accredited
Laboratory for analysis).
3.24 In the event that analysis of the "A"
sample results in a positive finding, the player may opt to have
the "B" sample analysed at a different laboratory from
that which analysed the "A" sample.
3.25 When the laboratory notifies The FA that a sample
has tested positive for a prohibited substance, The FA informs
the player in question, asking him to provide a written explanation.
In addition, a senior representative of the player's club and
the Professional Footballers' Association are informed of the
result. The FA will also request that the player attends a personal
interview regarding the alleged breach.
Sanctions against offenders
3.26 Alleged breaches of the Doping Control Regulations
are investigated by The FA's Compliance Department. Where appropriate,
this department will also prosecute such cases through The FA's
usual disciplinary systems.
3.27 The FA guidelines provide for an interview with
the player after a positive find. This is an important part of
the process; the player is entitled to be accompanied at the interview
by one representative of his club and a legal adviser. If the
player is a member of the Professional Footballers' Association,
a representative of that Association must also be present. The
interview allows an opportunity for The FA, the player, and the
player's representatives to discuss the facts, seek to agree them,
explain the procedures that will follow, and identify if the case
is more to do with social drug use/addiction than cheating.
3.28 Depending on the outcome of the interview the player
may be charged with misconduct and ordered to appear before an
FA Disciplinary Commission, but there is an ability to take an
assessment and rehabilitation route as opposed to a disciplinary
route for any addiction to recreational drugs. Rehabilitation
will invariably mean removal from the game, and therefore acts
as a form of suspension.
3.29 The Disciplinary Commission that hears the case
has a range of sanctions at its disposal:
— A warning as to future conduct.
— Punitive sanctions against the player—suspensions
and fines.
— Request for a clinical assessment of the player.
— Decide that the player will receive:
— Treatment and/or rehabilitation for the condition
— Probationary target testing following treatment
or rehabilitation (if required).
3.30 Where the prohibited substance detected is one that
is generally available over the counter without prescription,
the penalties are:
— For a first offence—up to three months suspension.
— For a second offence—up to two years suspension.
— For a third offence—permanent suspension.
3.31 In all other cases, the penalties are:
— For a first offence—up to two years suspension.
— For a second offence—permanent suspension.
3.32 There is an appeal available to a further tribunal,
chaired by a senior lawyer appointed by the Sports Dispute Resolution
Panel (SDRP). Next season, the SDRP will also appoint a second
member to the appeal tribunal of three, with a Member of The FA
Council being the third member.
3.33 As noted elsewhere in this document, The FA does
not take a purely punitive approach when dealing with such matters;
consideration is also given to requiring the player to undergo
a period of assessment, treatment or rehabilitation. This reflects
the fact that there is a history of social/recreational drug use,
and the game has therefore developed procedures to deal with them
accordingly.
3.34 The player would have to fully comply with the exact
wishes of The FA. This includes agreement to a clinical assessment
by The FA's chosen specialist at a centre selected by The FA,
and probationary target testing for a period between 12 and 36
months following The FA's decision to allow him to resume playing,
once considered "fit" to represent football again.
SECTION 4
The Importance of Educational Initiatives and Processes
The FA Education Awareness Programme
4.1 The FA sees education as the real focus. Over the
last eight seasons, The FA has been delivering a comprehensive
Drug Education and Health Awareness Programme. All of the relevant
documents have been attached as appendices:
— 9-12 years of age "Fit For Football".
— 13-18 years of age "Skin Up and You're
Off".
— Parents/Coaches—"A Factual Guide
to Drugs in Football".
— Anti-Smoking Awareness Pamphlets.
— A Parents Guide to Alcohol and Drugs Awareness
Pamphlet.
— "Think Drink!"—Alcohol Awareness
Pamphlet.
— General Hygiene Awareness Pamphlet.
4.2 Over 20,000 Health Education packs are delivered
to youth players (nine to 18 years of age) each season, backed
up by lectures and educational video presentations and support
from Education and Welfare Officers employed by professional clubs.
4.3 All professional players receive credit card size
"Yellow Cards", detailing banned substances. Laminated
posters are produced for dressing room and shower room walls of
professional clubs alerting players to:
— The use, abuse and dangers of food supplements.
4.5 Recently, The FA commissioned an educational Supplementary
Directory in CD Rom form. This will appear on both The FA.com
and The Professional Footballers' Association website for medics,
coaches or players to consult. A CD Rom with accompanying educational
pamphlets will be forwarded to all professional club medical staff.
SECTION 5
Drug testing agencies—WADA, UK Sport etc
The World Anti-Doping Agency (WADA) debate
5.1 The FA has welcomed the debate created by the WADA
initiative. The FA supports any initiative to promote drug-free
sport. The WADA code has an impact on The FA in two ways:
5.1.1 through our international body, FIFA: in particular
through the FIFA Anti-Doping regulations;
5.1.2 through its relationship and contact with UK Government.
FIFA
5.2 FIFA's regulations are binding on The FA and all
other national associations. FIFA have therefore taken the lead
with WADA to create football's anti-doping code. The FA has, according
to FIFA, been the most active national football association, in
terms of raising issues with FIFA to ensure that the world football
system that we will be part of, and will operate in England, is
the best it can be.
5.3 We also want all other associations and agencies
to take these issues as seriously as we do, and to invest accordingly.
For instance, we have contributed directly to the WADA drafting
process and held several meetings with senior FIFA officials.
5.4 FIFA discussions with WADA are ongoing, but we understand
that FIFA's regulations, to be launched in May, will be endorsed
by WADA with the following features:
— a case by case approach;
— no fixed penalties, but a discretionary approach;
— assessment and rehabilitation where appropriate;
— FIFA and national associations to be the relevant
anti-doping agencies in football;
— no requirement for daily whereabouts information;
— no WADA appeals, but FIFA to continue to have
overall review role.
5.5 This reflects the views and approach of The FA. On
this basis, we believe that we are the anti-doping agency for
football in England.
Government
5.6 The FA welcomes the interest and support of Government
in tackling doping in professional football in England. It is
important for Government to take a clear stance and to provide
an infrastructure that enables all sports governing bodies to
run effective anti-doping policies.
5.7 However we strongly believe that sports governing
bodies must take the lead in drug testing and doping policy in
their own sports. We have therefore consulted with FIFA as set
out above. In contrast, Government has not engaged us in any consultation
over the WADA process specifically, and we have not sought this.
We have contributed to the recent review of the role of UK Sport,
which touched on WADA-related issues.
5.8 The FA and FIFA therefore set out the policy and
procedure for anti-doping in football. With regards to UK Sport,
The FA retains them as our agents to collect and analyse samples,
and report findings. We also support any UK Sport education initiatives.
5.9 Our view is that there needs to be clarity in the
Government policy, and then a clear implementation plan. For football,
as a purchaser of tests from UK Sport, our relationship is largely
one of a buyer of services. Although there are some 250 "public
interest" tests carried out by UK Sport in football, we are
very much of the view that it is football's code, regulations
and procedures that apply, and no one else's.
5.10 It has been suggested that there is a statutory
anti-doping in sport regime, particularly through the UK being
a signatory to international conventions. However, as we have
set out above, we see our policy as being set by FIFA (as agreed
with WADA) and not through any other route.
5.11 The Government commitment to helping the work against
drug-cheats is clear, but we feel that this should be through
providing assistance to governing bodies in carrying out accredited
anti-doping policies and procedures. We also consider that education
can be a key role. There is a great danger in any lack of clarity
on which rules and regulations apply in any regulatory environment,
and we are very concerned to ensure that this does not happen
in English football.
5.12 The Government, through UK Sport, could help by
assisting the individual competitors through the process after
a positive find, or through sourcing experts in the field of prosecution
of cases and sitting on tribunals. Government could also consider
providing a form of insurance to back up the accredited processes,
to ensure that sports are not threatened by legal proceedings
and the inevitable high costs. However, each sport must remain
in control, and therefore be responsible, accountable and "own"
the issue.
5.13 We have supported UK Sport's anti-doping directorate,
and continue to do so. It has been an important initiative. However,
we see The FA as the national anti-doping directorate for football
in England.
SECTION 6
Role models
6.1 As the nation's game, football has an enormous reach
and impact on our society. It touches hearts and minds within
every constituency. Football has a great ability to assist in
key Government policy areas, not least because sport as a whole
can be a great inspiration to individuals and communities. We
welcome the Select Committee's recognition of sport's ability
to help people achieve goals.
6.2 Almost every Government department applies policies
and measures that touch the game. The FA welcomes, and looks for,
national, regional and local government involvement in and support
for the health of football.
6.3 Seven million adults and five million children play
football. A huge number of volunteers make football happen, a
contribution that we estimate has an economic value of £500
million per annum. 30 million follow the fortunes of the England
team and according to Game Plan, 36% of people view winning the
FIFA World Cup as the top sporting priority for the country. Football
contributes approximately half a billion pounds in taxation revenues
to the Treasury each year. Football clubs are often the focal
point of their local communities, being the most recognised symbol
of that area and attracting more visitors than any other local
attraction. The game's popularity enables it to make a major contribution
to projects that tackle priority policy issues.
6.4 For all of these reasons, it is both necessary and
appropriate that Government and football work closely together.
There are many issues where the Government and its agencies and
football, together with all of sport, can work in close partnership
to promote the wider interests of the game and public policy benefits.
These can relate either directly or indirectly to drugs issues,
and related social issues.
6.5 The popularity and media coverage of football make
the discussion about role models inevitable. The FA is confident
that in the context of this inquiry, football can be seen as a
real leader. Role models is one issue, but this is only one part
of a much wider agenda as we will seek to outline below with some
examples of the contribution that football is making to young
people, their communities and the fight against drugs.
The Football Foundation
6.6 The Football Foundation was established as a partnership
between The FA, The FA Premier League, and Government in 2000.
It is dedicated to revitalising the grass roots of the game, and
harnessing the power of football as a force for good within society.
6.7 The Foundation is committed to using the benefits
of the game to deliver against the Government's social agenda
in our communities. It is a clear example of football's view that
the sport can offer much more than 90 minutes enjoyment; it can
be used as a catalyst for the promotion of health and education
as well as a delivery vehicle for anti-crime initiatives and drugs
awareness projects.
6.8 The use of role models in this programme can be a
feature, with clubs assigning players to represent the work of
football, the Foundation and their clubs in their locality. Many
Foundation projects encourage the use of mentors to provide encouragement,
tutoring and improvements to participants' self esteem.
Positive Futures
6.9 The Foundation's partnership with the Home Office
in the Positive Futures programme is a real success. Positive
Futures aims to identify, engage and support young people by creating
opportunities to steer them away from crime, drugs or anti-social
behaviour and helping them into education, training and employment.
6.10 The project utilises the expertise of local authorities,
charities, sports clubs and crime reduction agencies and is funded
by the Foundation, which has provided £4 million for the
programme, to complement the £15 million given by the Home
Office.
6.11 Since it began in 2000, the Positive Futures Programme
has helped almost 35,000 young people, in some of the most deprived
areas in the country, get involved in sport and on track to a
better future. There are now 107 projects nationwide and a recent
report on the programme demonstrated that the scheme really is
making a difference to thousands of lives. Football's input accounts
for 60% of the Programme.
6.12 The results that Positive Futures has generated
reveal the possibilities of football's contribution to society:
— 85% of young people involved develop "a meaningful
relationship" with the project.
— 14,000 young people have benefited in the past
year, by getting a job, volunteering, getting into training or
improving their educational performance.
— 49% of participants are referred from statutory
or voluntary agencies, Youth Offending Teams, the police, schools,
social services and substance misuse prevention agencies.
Middlesbrough FC
6.13 The Foundation has joined with the Middlesbrough
FC Football in the Community Programme to launch the "Fit
Through Football" programme. The Foundation has provided
a £148,920 grant to deliver a comprehensive healthy lifestyle
programme, embracing positive lifestyle messages, drug awareness
information, citizenship classes, physical activities, literacy
and numeracy education as well as after school coaching clubs.
6.14 The "Football in the Community" programme
is operated through a joint venture vehicle called the Footballers
Further Education and Vocational Training Society. This is a link
programme including the PFA, The FA Premier League and The FA,
and is designed to use the power of football clubs in their local
community.
6.15 In Middlesbrough, coaches and project workers will
visit local primary and secondary schools in addition to youth
and after school clubs throughout Redcar and Cleveland, using
football as a vehicle for motivation in some of the most disadvantaged
areas in the region.
6.16 By providing positive messages, alongside regular
football sessions, the club hopes to promote health, as well as
encourage and stimulate future football participation. The scheme
will offer additional community benefits by addressing such issues
as crime reduction and anti social behaviour.
Tranmere Rovers FC
6.17 Following a successful pilot of the Tranmere Rovers
Football in the Community Scheme "Kick It/Kick Off"
initiative, the Foundation has awarded the Club £81,794 to
extend the programme for a further three years. The initiative,
initially backed with a £5,000 Foundation grant, has proved
a huge success in raising drug awareness to over 200 local school
children.
6.18 The next stage is to provide coaching activities
and healthy lifestyle sessions to school children, which will
be delivered by Tranmere Rovers coaches and local police, focusing
on health and fitness, substance abuse, crime, truancy, racism,
violence, whilst also providing sports careers advice.
6.19 In addition, the club will deliver girls-only soccer
activities, organising coaching sessions for girls in the Birkenhead
area both during lesson times and in after school clubs. The scheme
will be offered to over 450 girls in the area, establishing mini-soccer
leagues and tournaments for primary and secondary schools.
Dads Against Drugs
6.20 Hull group "Dads Against Drugs" (DADs)
has received £95,000 from the Foundation. The organisation
currently runs activities throughout the year as well as organising
regular annual football events and drugs education. DADs has been
particularly effective in targeting youngsters at risk, undertaking
innovative approaches to combating drug abuse such as primary
school five a side tournament and drug awareness project and sponsoring
a tour around primary schools talking to children aged seven to
11 to increase drug awareness. The money will enable the organisation
to fund a project coordinator over the next five years to continue
their expanding work and to assist the group with fund raising
and further drug awareness schemes.
Kidderminster Harriers FC
6.21 The Foundation has awarded a £72,396 grant
to the Kidderminster Harriers Football in the Community Scheme
to establish a healthy lifestyle football project for local children.
Working in association with the Worcestershire Health Authority,
County Council, Local Education Authority and the British Heart
Foundation, Kidderminster Harriers FITC will establish a healthy
living programme in schools, using the power of the game as a
motivational tool. The three-year project will target 80 primary
schools situated in rural regions and areas of deprivation, involving
up to 6,000 local children. Coaches from the Harriers will visit
schools and provide football coaching sessions, passing on the
benefits of regular exercise, healthy living and good diet.
Street League
6.22 Street League uses the power of sport to transform
the lives of individuals from underprivileged and socially excluded
communities, and builds on the principles of inclusiveness, sustainability
and diversity. It aims to promote non-formal education, social
integration, crime reduction and health.
6.23 The Street League has received grants from the Foundation
totalling £551,243. This allows Street League to provide
football opportunities which engage both males and females with
the average age between 16 and 30. Players are traditionally excluded
from mainstream activities and the primary target groups are:
— Homeless and Rough Sleepers.
— Drug and alcohol dependent individuals in rehabilitation.
— Long-term unemployed with identified learning
difficulties and individuals with learning disabilities.
— Refugees and asylum seekers.
Football's wider contribution
6.24 All of these examples highlight the strength of
our wider campaign to create meaningful partnerships with Government
and others to make a positive contribution to society. They are
specific programmes, which show our more outward looking approach.
However, we believe that there is a massive benefit from promoting
active participation on a wider basis.
6.25 Football as a sport, and through its professional
players, can make a huge contribution. The Committee specifically
asked about the role of football to help make young people more
physically active and lead a healthy lifestyle. The FA believes
it can do this, but the scale of the task is so great it can only
do this with Government support in the following areas:
— Investment in the grassroots, promoting participation
and securing international success.
— Providing policy leadership.
6.26 The FA is contributing to the Department of Health/NHS
"Choosing Health?" Task Group consultation, which will
lead to the White Paper later in the year, and raising all of
these issues. We are also working closely with the DCMS, Sport
England and other leading sports governing bodies to get our message
across.
Investing in the grassroots—football's development
6.27 The FA's primary objective is to maximise participation
in the game. To meet this objective we face the on-going financial
challenge of maintaining and improving the quality of football
facilities such as pitches and changing rooms, particularly those
in public ownership. We also need to support and develop the network
of volunteers, the hundreds of thousands of people who give their
time as managers, coaches, organisers, officials and ground staff,
without whom the game would not happen. We rely on a great number
of partners to ensure that this can happen, including of course
national Government.
6.28 During their recent inquiry, the All Party Football
Group (chaired by Alan Keen MP) visited Upton Park. This visit
included a presentation covering the many football in the community
projects the game supports. The Group also held an evidence session
with Trevor Brooking that concentrated on the development side
of the game, which we understand the Group found very useful.
Since that session, Trevor has joined The FA as its Director of
Football Development.
6.29 Trevor highlighted the need for far greater Government
investment in our sporting and football infrastructure. The following
extract from Trevor's evidence is most relevant and addresses
the subject of the extent of investment needed in football, and
that only so much of this can be met by football itself:
"When I was younger, football clubs did not provide
the parks and pitches on which we played football. They were actually
contributed by local authorities and communities. Professional
football clubs had never put in place the grass roots that we
all experienced. The only reason that people are now hammering
away at football (to fund the grass roots) is because of the perception
that it has the money to provide the funding for anything and
everything that needs to be done. You have to look at the overall
picture. What is needed in this country at the moment? It is not
just football's fault. The actual investment in sport over the
past 20 years has shrivelled up to a negligible amount. Most funding
was provided by local authorities but that was not a statutory
requirement, so over the past 15 to 20 years investment has dwindled
because local authorities do not have to provide any facilities
and as there are so many other services that they need to provide,
they duck out of it—other than the very good local authorities
that recognise the wider contribution that sport can make. Are
you saying that football should solve that problem? That would
be impossible."
6.30 It is sometimes suggested that football itself should
take care of all the redistribution needed within the game from
its own revenues. But the scale of the problem makes this impossible.
There are 37,500 clubs and 45,000 pitches in England. Over 75%
of football is played on pitches in public ownership.
6.31 With The FA's support, The Football Foundation completed
the Register of English Football Facilities (REFF) in 2002; a
"domesday book" of the country's playing fields and
changing rooms. This survey found a need for an investment of
£2 billion in existing facilities alone, to bring them up
to a reasonable standard for existing levels of participation
not even considering any changes in participation rates or trends
which are currently taking place in the game. This level of investment
cannot solely come from the football industry, in the same way
that the "elite" of other entertainment industries,
such as cinema or music, are not expected to fund the grass roots
of their trade.
6.32 The contribution that football itself makes to the
grass roots is very significant. Both The FA Premier League and
The FA have donated £20 million per annum to the Football
Foundation in the last three years, and we are currently discussing
the next cycle of funding. This is by far the most redistributive
structure applied by football in any European country.
6.33 While the football industry itself makes the largest
contribution to grass roots of any football sector in Europe,
the contribution by central Government is the amongst the lowest.
Figures produced by the CCPR demonstrate that central Government
investment in sporting infrastructure is the lowest per capita
of the major countries in Europe. In 2003-04 the DCMS allocation
of funding for all sport will be £103 million. This
equates to only £2 per head of population; less than half
that invested by France.
6.34 The next few months see the spending review process
conducted by Government. There is now a tremendous amount of evidence
to demonstrate the need for greater investment in football, and
also the cost benefits it brings for the Government through making
and keeping people healthier, cutting crime and supporting educational
attainment.
6.35 The FA is working with Sport England and colleagues
from other governing bodies to present a strong case for sport
as a force for good in society. We firmly believe that providing
quality facilities and availability of a support infrastructure
will help deliver many key Government targets; and specifically,
targets in areas relevant to this enquiry. We hope that the Select
Committee will therefore endorse our bid to this year's Comprehensive
Spending Review to secure a step-change in the level of funding
for sport and football.
6.36 We also urge the Select Committee to support any
initiative that promotes greater use of local authority facilities,
and greater investment in them. We also believe that taxation
policy could be changed to promote investment into community football
teams and facilities.
Providing policy leadership
6.37 Football can be a vehicle for important messages;
including those involving "healthy living". It can also
contribute potential solutions: from using local club facilities
for healthy living centres or Primary Care Trust walk-in clinics,
to providing coaching and support for local five-a-side leagues
in deprived areas.
6.38 The FA therefore looks to Government to provide
support for the game, and make sure that policies that come from
every Government department take account of the impact on the
game. We look for leadership, support and partnerships, particularly
from the Department for Culture, Media and Sport.
6.39 We are also keen to offer our help to all parts
of Government to do what we can to act as a resource to achieve
Government objectives. Football can make a huge contribution to
tackling social exclusion issues such as crime prevention, education,
health promotion and community cohesion. Social drug use is of
course a key part of this debate. We need to continue to build
a co-ordinated approach across Government, to ensure that we can
harness the power of football to build a better future in the
most effective ways.
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