APPENDIX 19
Memorandum by Sport England (OB 32)
1. INTRODUCTION
Sport England is the country's leading strategic
sports development agency, accountable to parliament through the
Department for Culture, Media & Sport. We are the largest
distributor of Lottery and Exchequer funding for sport in England
and have allocated over £1.8 billion to sporting good causes
since 1994.
Our role is to:
— Be the strategic lead for sport in
England.
— Make focused investments through
partners.
— Provide advice, support and knowledge
to partners and customers.
— Influence public opinion on sport
and the makers of public policy for sport.
While promoting sport and sporting opportunities
is a major focus of our work, we are also committed to promoting
the more general concept of "physical activity" which,
according to the WHO, "is a key factor in determining
the amount of energy spent each day and is fundamental to energy
balance and weight control." [72]
Given Sport England's role in promoting sport
and physical activity—and the positive effect these can
have on controlling weight gain—we welcome this inquiry
and have sought to offer constructive comments covering each of
the six areas raised by the Committee.
In particular, in section 5 and 7, we outline
a number of policy recommendations that we believe would help
deliver the Government's physical activity targets and which,
in turn, would help tackle the rising trend in obesity.
The Government & Sport/Physical Activity
The Government now recognises the debilitating
economic and social consequences of physical inactivity. In "Game
Plan"—its long-term vision for sport and physical activity—the
cost of physical inactivity in England is put, conservatively,
at £2 billion a year, representing at least 54,000 lives
lost prematurely[73]
Game Plan sets a very welcome, but extremely
challenging target that by 2020 "70% of the population to
be reasonably active (for example 30 minutes of moderate exercise
five times a week)[74]."
Currently only about 30% of the English population is meeting
this target. This presents Government—and key partners—with
an exacting challenge. To put it bluntly, 100,000 inactive people
will have to be converted to physical activity every single month
for the next 17 years if the Government's targets are to be met.
This is a significant challenge in itself. But
it becomes a mammoth—perhaps unobtainable target—without
significant resources and clear and consistent political support.
It is worth noting that the Government currently spends £1,135
per person on health per year[75],
compared to just £23 per head on sport[76].
Some signs of progress
In Scotland it has been noted that "Physical
activity has been everyone's and no-one's responsibility."[77]
This quote is equally true of the situation in England. However,
there are some positive developments that suggest things are changing.
The formation of a cross-departmental sport
& physical activity board (SPAB) is a welcome development
arising out of Game Plan. It will help to harness the resources
of key government departments such as the Department of Health
and ODPM which have, traditionally, not been active in embracing
physical activity within their own agendas. SPAB will also be
specifically responsible for: commissioning pilots, establishing
an innovation fund for external proposals, developing a national
methodology for data collection on fitness and commission a series
of bi-annual surveys on participation.
Sport England has had regular and positive contact
with SPAB's lead official, Simon Morys, with regard to the constructive
role we can play within the group. Sport England will sit on SPAB
and we very much look forward to playing an active role within
it.
It is crucial, however, that SPAB has genuine
"buy-in" from across key government departments, notably
DoH. We note that at present SPAB has no allocated budget. This
situation must be addressed as soon as possible in order that
it can achieve the targets laid out in Game Plan.
As recommended in Game Plan, Sport England is
leading the work to develop a Framework for Community Sport in
England. The Henley Centre and partners from across sport, health,
local government and academia are involved in a detailed consultation
process to be completed in mid summer.
2. THE HEALTH
IMPLICATIONS OF
OBESITY
Other specialist organisations and individuals
are better placed to comment specifically on this area. However,
the general consensus is that the health implications of obesity
are serious and wide-ranging: "Obesity poses a major risk
for serious diet-related noncommunicable diseases, including diabetes
mellitus, cardiovascular disease, hypertension and stroke, and
certain forms of cancer. Its health consequences range from increased
risk of premature death to serious chronic conditions that reduce
the overall quality of life"[78]
3. TRENDS IN
OBESITY
In 1980, 6% of men and 8% of women in the UK
were obese. By 2000, the figures had increased to 21% and 21.4%.
Today a staggering 55% of the UK population is either obese or
overweight.[79]
Should the trends in the levels of obesity experienced in England
since 1980 continue unabated, we will by 2020 have exceeded obesity
levels currently seen in the USA.
4. CAUSES OF
THE RISE
IN OBESITY
IN RECENT
DECADES
Although the amount of food people say they
eat has not changed in 20 years, more of their energy intake comes
from fatty foods rather than carbohydrates and they are getting
far less exercise.[80]
Trends in physical activity
With specific regard to levels of physical activity
in England, we would make the following observations:
Figure 1 shows physical activity levels for
the population as a whole and by gender. The "high"
category are those achieving health guidelines, the "medium"
category are those taking part in moderate activity of sufficient
duration at least one day a week but less than five days and the
"low" category are those who do not do one occasion
of activity of sufficient intensity and duration (defined as "sedentary").
Figure 1
Thirty per cent of the adult population does
enough activity to meet health guidelines but there are significant
differences between men and women with 37% of men meeting guidelines
compared with 25% of women. At the other end of the spectrum nearly
four in 10 adults (38%) may be classified as sedentary. There
is again a difference between men and women with more women (41%)
classified as sedentary compared with men (35%).
Figure 2 shows the changes in activity levels
between 1994 and 1998. Over this four year period there was no
change in the percentage of men who were achieving activity for
health guidelines but there was a reduction in the "`medium"
category and an increase in the percentage of men who were "sedentary"
(from 30% to 35%). For women there was an increase in the percentage
"active for health" from 22% to 25%. However, there
was a contraction in those doing "some activity but not enough
for health benefits" (from 43% to 34%), and an increase in
those who were sedentary (from 35% to 41%).
Figure 2
Essentially, both males and females are showing
a rising trend in being sedentary. This must be reversed if the
government's fight against obesity is to be successful.
PE and school sport
Given the positive impact physical activity
can have in helping to control weight gain, we advocate that PE
and school sport should form a key element of any anti-obesity
strategy.
Sport England recently published its 3rd national
survey of young people in sport in England[81]—the
most authoritative information on trends in young people's involvement
in sport. Within the context of the Health Select Committee inquiry,
it is worth noting two statistics in particular from that survey:
— There has been a consistent increase
in the percentage of young people who do not take part in any
sport in school time on a regular basis (at least one sport, at
least 10 times in the past year) from 15% in 1994 to 18% in 2002.
— The percentage of young people receiving
two hours or more of PE a week has increased dramatically from
33% in 1999 to 49% in 2002. However, when compared with 1994,
the increase is just 3% (46% in 1994).
The last statistic is positive in that the downward
trend in the amount of PE in schools appears to be reversing.
However, the fact is that one in every two children does not receive
at least two hours of PE in the curriculum. The inactive young
people of today, with negative attitudes towards sport and physical
activity, are likely to become the sedentary obese of tomorrow.
This situation needs to be addressed if the government's challenging
targets on physical activity are to be achieved.
5. WHAT CAN
BE DONE
ABOUT OBESITY
Clearly interventions focused on diet are a
key element in tackling obesity. We will defer to other specialist
organisations to comment on what actions are required in this
area. We shall, instead, focus on policy recommendations required
to achieve increased levels of physical activity and sport and
which would, in turn, help the fight against obesity.
Role of Department of Health
The Department of Health has historically placed
significantly less emphasis on physical activity as a public health
tool than it has on anti-smoking or nutrition initiatives, for
example. This must change if Government is to combat rising obesity
and achieve its physical activity targets outlined in Game Plan.
Given the significant economic and health costs
of physical inactivity, the case for targeted funding to promote
physical activity, direct from the DoH's substantial budget (almost
£82 billion by 2006-07), is compelling. We urge DoH to begin
substantial investment in physical activity as soon as possible.
Aside from the crucial issue of funding, we
would recommend the following initiatives and policy ideas also
be considered by the DoH:
— physical activity should be included
among the key performance indicators for Primary Care Trusts (PCTs);
— specific national physical activity
targets should be set by DoH to underpin the Government's 2020
vision of 70% activity. Specific interim targets should also be
set by DoH so that progress can be measured;
— Game Plan states that "health
focused local PSA targets relating to sport and physical activity"
should be implemented. We urge government to do this as soon as
possible;
— the Scottish Executive has recruited
a national physical activity co-ordinator. We urge Government
here to create a similar post. It is crucial the individual is
a "heavy hitter", housed in DoH, has the full support
of Ministers, is linked to SPAB, has a designated budget and is
under-pinned by a team of high calibre officials;
— PCTs should be encouraged to develop
local physical activity strategies in conjunction with key local
and regional agencies and partnerships;
— "healthy lifestyle advisers"
should be available in PCTs, whom GPs can refer patients for advice
on exercise and physical activity and the opportunities available
to them in their local area;
— integrate physical activity into
the core training and Continued Professional Development of all
health, fitness and leisure professionals. For example, a physical
activity module should be introduced into training for nurses,
nutritionists and GPs.
6. ARE THE
INSTITUTIONAL STRUCTURES
IN PLACE
TO DELIVER
AN IMPROVEMENT
As the policy recommendations outlined below
(7) demonstrate, sport and physical activity are crosscutting
issues that require cross-governmental attention. Sport and physical
activity should be woven into the departmental agendas right across
Whitehall: notably DoH, ODPM, Home Office, DfES and Transport.
Their policies need to embrace physical activity and sport, not
ignore them or, at times, work against them.
Game Plan rightly recommended "sport &
physical activity issues be co-ordinated by a Cabinet Committee,
supported by a Cabinet Office chaired senior officials group as
necessary." This was scheduled to be set up by March 2003.
However, no progress appears to have been made to date.
Moreover, at national, regional and local level
there are very few comprehensive strategies, policies or programmes
that have long-term funding to effectively address the problem
of inactivity.
7. RECOMMENDATIONS
FOR NATIONAL
AND LOCAL
STRATEGY
If the government is to achieve its 2020 physical
activity targets, a real step change in government and public
policy is required to create an environment where participation
can grow at the levels required. We believe the following macro
policies will help achieve this and, in so doing, help tackle
the growing problem of obesity:
— A minimum of two hours of high quality
PE for every child should be taught in the national curriculum.
— All primary schoolteachers should
have at least 25 hours set aside for PE in their Initial Teacher
Training to bring them into line with arts & science training
(newly qualified primary teachers report doing as little as six
PE hours training).
— Sport and leisure provision should
be designated a statutory duty for all local authorities.
— Tax incentives should be provided
to employers that provide gym membership to their staff, and that
membership should be a non-taxable employment benefit to the employee.
— Reduce VAT on gym membership and
sports equipment.
— Mandatory rate relief for community
and amateur sports clubs (CASCs) should be increased to 80% to
achieve parity with charitable status, thereby supporting England's
sporting infrastructure in the community.
— Section 106 agreements should be
made with developers of new houses to ensure that they pay a levy
on each new house built and the money raised is then spent on
local sports and green spaces provision. For example, a levy of
£500 per house would raise £100 million for sports/green
space facilities for the South West of England from the 20,000
houses scheduled to be built there between 2001-11. A higher levy
could be applied in the south east, for example, to take account
of regional economic variations.
— Changes to the rule over the amount
of time before a playing field is considered "not in use"—and
can therefore be developed—is currently five years. This
should be extended to 10 years in order to place the onus on the
developer to prove abandonment of playing fields.
8. CONCLUSION
Significant new investment in sport and physical
activity, underpinned by a step change in public policy, can help
to create a culture where many more people are much more physically
active. Stemming obesity levels would be one of many positive
bi-products of this. However, without proper investment and radical
changes in public policy, conditions such as obesity will continue
to grow—as will their debilitating social and economic consequences.
9. ABOUT SPORT
ENGLAND
We are the largest distributor of lottery and
exchequer funding for sport in England, having invested some £1.8
billion since 1994. Our mission is: to work with others to create
opportunities for people to get involved in sport, to stay in
sport, and to excel and succeed in sport at every level.
Our investment and work is guided by the strategic
priorities of boosting participation in sport—particularly
in disadvantaged areas—promoting equity in sport; and providing
the infrastructure for developing world class sporting performers.
In addition to distributing and investing Lottery income, we also
have a core Exchequer budget—currently £35 million
per year—allocated from the DCMS.
Working through nine regional offices in tandem
with their Regional Sports Boards, our knowledge base and expertise
in sports development drives our work with Government, local authorities,
health professionals, national governing bodies, teachers, the
voluntary sector and others. We share best practice, set standards,
build partnerships and promote the benefits of sport, which include
healthier living, social inclusion and crime prevention.
10. ACHIEVEMENTS
OF THE
SPORT ENGLAND
LOTTERY FUND
The National Lottery has become a valuable source
of funding for sport at all levels, supporting everything from
community facilities to projects that enable our world-class sportsmen
and women—able-bodied and disabled—to compete on the
international stage.
Every parliamentary constituency has benefited
from the Sport England Lottery Fund, as have sixty-three different
sports. So far, over 3,000 Lottery-funded capital projects have
been completed and opened, the majority of which are local facilities
specifically earmarked for community use. Around 82% of the total
funding awarded has been allocated to community-based projects.
Sport for All
— Lottery funding aims to create sporting
opportunities for all sections of the community. The Sport England
Lottery Fund, together with partnership funding has already facilitated
over 3,590 Community Capital projects. The lottery has provided
funding of over £1.3 billion towards total project costs
of £2.5 billion—an average contribution of 55%. Funding
has supported a diverse range of schemes, from village halls and
school sites, to voluntary clubs, through to local authority leisure
centres and national stadia.
— We have awarded Community Capital
grants to 356 local authorities and 63 sports, with over £252
million awarded to local authorities designated as rural local
authorities.
— The Priority Area Initiative (PAI)
started in 1996, with the aim of supporting projects meeting the
needs of people in areas of greatest socio-economic deprivation.
Since its inception 613 schemes have been awarded grants in PAI
areas, receiving £365 million towards a total project cost
of £480 million (76% lottery contribution).
— Figures from over 1,650 Lottery-funded
capital projects that we have monitored show that substantial
increases in facility usage have been generated by Lottery investment—visits
increased from 10.8 to 23.9 million a year. If these figures are
extrapolated out to cover all Community Capital schemes this would
suggest a usage increase in the order of 28 million.
— Trends to date indicate almost a
tripling of usage rates by females, a six-fold increase in usage
by people with disabilities and more than a doubling of usage
by black and ethnic minority communities.
— Sport Action Zones aim to create
an effective sporting infrastructure and contribute towards local
regeneration in some of the most deprived areas of the country.
The twelve zones currently in place are seeking to achieve a more
equitable participation in sport. A total of £7.5m of Lottery
funding has been awarded to fund the first 12 SAZs over a five-year
period. This includes "magnet funding" designed to attract
funding from other partners. To date, £2.7 million of magnet
funds has attracted further investment of £4.8 million.
— Awards for All provides grants from
£500 to £5000, aimed at small groups with a community
focus, with priority being given to organisations with an annual
income of less than £20,000 (schools and health bodies are
exempt from this criteria). To date over 14,700 grants totalling
£51.5 million have been awarded. Of these 8,350 awards totalling
£30 million have been made to under-represented groups. 11%
of awards will significantly benefit disabled people, 17% will
significantly benefit people from black and ethnic minority communities,
25% will significantly increase the participation of women and
girls, and 16% will significantly benefit schools (note percentages
will not equal 100, awards may benefit multiple target groups).
Sport and Young People
— The School Sport Coordinators programme
aims to increase sports opportunities for young people through
coordinated PE, school sport and out of school learning activities.
To date, £84 million has been invested in the programme,
of which £24 million has come from the Sport England Lottery
Fund. There are already 765 Co-ordinators in place, 1,000 Co-ordinators
will be in place by 2004 and, owing to further investment announced
in the 2002 Spending Review, the number will increase to 3000
by the end of 2006.
— 484,000 pupils are benefiting from
the enhanced PE and sport opportunities being provided by schools
in the 48 School Sport Coordinator partnerships.
— Across the 48 School Sport Coordinator
partnerships, almost one in three pupils (148,000) are involved
in out of school hours sports activities.
— Sport England has awarded more than
£60 million to the Active Sports programme for better quality
clubs, coaches and competitions. A five-year development programme,
it focuses on ten of England's most popular sports, including
rugby union and basketball, enabling young people to participate
in sport more frequently, improve their skills and compete at
various levels. There are 45 Active Sports Partnerships, covering
the whole of England. To date, in the region of 120,000 young
people, approximately 8,000 coaches and more than 1,500 clubs
have benefited from Active Sports.
Supporting Elite Performers
— Lottery funding is playing a key
role in developing major sporting facilities in this country—such
as the facilities for the 2002 Commonwealth Games. The City of
Manchester Stadium was awarded £92 million of Lottery money,
and the Manchester Aquatics Centre received £22 million.
These awards have ensured that a sporting legacy will remain in
some of the most deprived areas of Manchester long after the games
have finished.
— The World Class performance programme,
delivered by both UK Sport and Sport England, directs Lottery
money towards the country's top athletes and governing bodies
of sport to help fund the large and diverse costs of competing
at the highest level. Since 1997, over £210 million has helped
the nation's top athletes. In Sydney 2000 the performance of our
Olympians, who won 28 medals, and Paralympians, who won 131, highlighted
the positive effect that Lottery funding is having on the performances
of our elite athletes. At the Commonwealth Games in Manchester,
England won 54 gold, 51 silver and 60 bronze, an increase of 18
gold and 29 in total over Kuala Lumpur in 1998. £3.5 million
of Sport England funding that was specifically targeted at individual
sports and athletes for the Games contributed to 19 of the Gold
medal performances and 57 of the overall medals won.
— £120 million of capital investment
has been committed for the English Institute of Sport (EIS), which
will provide our elite athletes with the facilities they need
to become winners. Examples include the new Commonwealth pool
in Manchester, the 50-metre pool at Loughborough University and
the sailing facilities at Hayling Island Sailing Club.
April 2003
72 WHO Expert Report on Diet, Nutrition & Prevention
of Chronic Diseases (23 April 2003). Back
73
Game Plan: a strategy for delivering government's sport &
physical activity objectives, DCMS/Strategy Unit (December 2002). Back
74
Game Plan: a strategy for delivering government's sport &
physical activity objectives, DCMS/Strategy Unit (December 2002). Back
75
CCPR, Everybody Wins (October 2002). Back
76
Game Plan: a strategy for delivering government's sport &
physical activity objectives, DCMS/Strategy Unit (December 2002). Back
77
Physical Activity Task Force, Scottish Executive, February 2003). Back
78
WHO Controlling the Global Obesity Epidemic (updated 9 April 2003). Back
79
Royal College of Physicians-Anti-Obesity Drugs (24 April 2003). Back
80
Royal College of Physicians-Anti-Obesity Drugs (24 April 2003). Back
81
Young People and Sport National Survey 2002 / MORI (February 2003). Back
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