Best Value through sport
case
studies
59
Best Value through sport
foreword
Central Government’s modernising agenda for local
but they fit within a Best Value framework and illustrate
authorities, with its duty of Best Value, emphasises the
that past good practice can be applicable to the new
importance of the public benefitting from the shared
local government social policy agenda.
experiences of good practice.
Sport England is indebted to those who gave their time
Much of the thinking behind Best Value centres on the
willingly to this work and shared their experiences openly
need for local authorities to share experiences and
for the benefit of others. We are also grateful to those
compare themselves with other organisations across all
who contributed to the consultation exercise through
sectors. This requires a radical shift in local government
Sport England’s Best Value Sounding Board Group.
culture generally, and particularly in the sport and
leisure service which, for the last ten years, has been
The publication of the case studies is part of the ‘Best
shaped by the nature of Compulsory Competitive
Value Toolkit for Sport’ being developed by Sport
Tendering (CCT).
England in close consultation with the sport and
recreation industry. It follows the publication in June
Best Value through sport: Case studies shares examples
1999 of The Value of Sport which advocates why local
of approaches being taken by local authorities to the
authorities should continue to invest in sport and sets
implementation and delivery of Best Value through sport
out the significant contribution of sport to improving the
and recreation. The publication is the result of a wide-
lives of local communities. This document takes The
ranging investigation and consultation exercise with
Value of Sport to the next stage and highlights the issues
those authorities that characterise innovation in sport. It
and innovations in using sport to deliver Best Value.
sets the case studies within the context of Best Value,
and explores the challenges made by the new duty to
We hope you find it useful in your organisation’s pursuit
the future of local authority sport and recreation services.
of continuous improvement.
Aimed at those in local authorities with responsibility for
addressing and implementing Best Value throughout the
sport and recreation service, it uses examples from over
20 local authorities across England. Not all the initiatives
Trevor Brooking
have been introduced as a direct result of Best Value,
Chair, Sport England
1
Best Value through sport
contents
Introduction and context
3-5
Setting the scene
Best Value: A new culture
7-8
Best Value: A working definition
8-9
Best Value: The process
Best Value: Key issues for sport
9-13
14-17
Case studies
Introduction
19
Challenge
19-27
Consult
27-32
Compare
32-34
Compete
35-37
Continuous improvement
37-39
Conclusions
40-43
Appendices
1 DETR Best Value pilot authorities in England
44
2 Best Value checklist of basic principles
45
3 London Borough of Newham Best Value
46-50
Toolkit (extract)
4 Lincolnshire County Council, Cultural Services 51-52
Acknowledgement
Best Value Proforma
5 Best Value case studies contact list
6 References and further reading
10 Addresses
The consultants Strategic Leisure Ltd
53-54
were commissioned by Sport England to
55
undertake, research and prepare this
56
document to the final draft stage.
2
Best Value through sport
introduction
Sport England is the lead agency responsible for the
authorities wishing to pilot Best Value. Thirty-seven local
promotion and development of sport in England. This is
authorities were selected as Best Value pilots, 15 of
achieved by working in partnership with organisations in
which are addressing sport and recreation issues (see
the public, private and voluntary sectors. Sport England
Appendix 1). In addition, many other local authorities
has long recognised the vital contribution to sport made
that are not pilots are actively preparing for Best Value.
by local authorities, which are key partners in delivering
Given that the legislation is imminent, it is essential that
Sport England’s stated aims: More people, More places,
all local authorities are in the process of planning for its
More medals.
implementation.
Local authorities and Sport England have worked in
The introduction of Best Value does not imply an
partnership to improve the cause of sport through facility
increase in resources for local government. Indeed it
development, raising standards of management, sports
may well be the catalyst for a reduction in spending,
development initiatives, events and campaigns. It is a
particularly in discretionary services. It is critical
relationship that balances national objectives and
therefore for the voice of sport, and the real and lasting
priorities with those at a local level.
benefits it brings to wider community issues, to be
heard loud and clear at all levels of government.
The Labour Government has introduced a number of
measures to help modernise and improve local
Strategic Leisure Limited was commissioned by Sport
government, as set out in the Department of
England to define, identify, consult and investigate case
Environment, Transport and the Regions’ (DETR) White
studies of Best Value in sport. In particular the study was
Paper Modern Local Government, In Touch with the
aimed at identifying links between sport and what has
People . Central to this is ‘Best Value’. The Local
quickly become known as the ‘cross-cutting agenda’ of
Government Act 1999 places a duty on local authorities
modern local authorities. This means a new focus on the
to provide Best Value services and comes into force on
contribution of each local government service across a
1 April 2000. Compulsory Competitive Tendering (CCT)
number of social policy aims, such as community safety,
legislation will be repealed on 2 January 2000.
social and economic regeneration, lifelong learning and
In 1997 the Government received applications from local
health promotion.
1
2
3
Best Value through sport
This document is the result of a wide-ranging
consultation exercise and deeper investigative work into
●
The Value of Sport 3, an advocacy document
those authorities (including some Best Value pilots) that
responding to the challenge: ‘Why invest in
characterise innovation in sport. In some cases the
sport?’ Drawing on the best scientific evidence
initiatives and examples of progressive practice
available combined with local examples of good
highlighted are not specific to, or have not necessarily
practice, the document demonstrates that sport
been introduced as a direct result of Best Value.
can, and does, make a difference to people’s
Nevertheless, they demonstrate innovation in
lives and to the communitiesinwhichtheylive.It
management and sport, and provide useful lessons and
showsthatforevery pound invested in sport there
ideas for other local authorities to learn from, use or
are multiple returns in terms of, for example,
modify within their response to Best Value.
improved health for the individual and less
demand on the health service by those of middle
Context
and older age, reduced criminal behaviour
among young people, and economic
regeneration and employment opportunities
While Best Value aims to put people and local
communities first. Sharing current practice and
innovation in the delivery of sport and leisure provides
●
Planning Across Boundaries, a guidance
valuable guidance in the processes that underpin Best
document that will complement the Department
Value. Sport England supports this approach and has
of Culture, Media and Sport’s (DCMS) advice on
put together a ‘Toolkit’ of seven ‘products’ aimed at
the preparation of Local Cultural Strategies 4 to
helping authorities achieve Best Value. Collectively,
ensure that sport features prominently within the
these products or tools are designed to assist local
broader definition of culture. Planning Across
authorities in demonstrating the value and benefits of
Boundaries will focus on providing guidance
sport and provide guidance, good practice information
on the content of local strategies for the
and practical advice to help to continuously improve
development of sport including the translation
sports services. The seven products within the Sport
and interpretation of national programmes and
England Toolkit are as follows:
targets at the local level
4
Introduction
●
Best Value through sport: Case studies (this
●
Quest: Facilities6, the UK Quality Scheme for
document) has been designed to illustrate
Sport and Leisure that has now been operational
examples of progressive practice within local
in facility management for three years. Over
government, to complement The Value of Sport
90 sites have achieved external accreditation.
and to provide guidance on how to enhance
Quest provides standards of good practice and
sports services within a Best Value context
a framework for continuous improvement that
are endorsed by the Local Government
●
Performance Indicators, an inter-centre
Association and the sport and leisure industry
comparison framework on key performance
indicators developed through a combination of
●
Quest: Sports Development. This scheme is
secondary data analysis of the use of
now being extended to the sports development
Management of sport halls and swimming pools
sector following a successful feasibility study.
in England 1997 and primary research
The work has now reached its piloting stage and
12
will take account of the demands of Best Value.
●
Model Survey Package , a series of ‘standard’
It is expected that the scheme will be launched
questionnaires to be used as part of the
in early 2000.
5
consultation process for both user and non-user
surveys. Information obtained via this standard
approach could be used as part of a
benchmarking initiative. The Model Survey
Package is currently being updated to better
reflect the demands of Best Value
5
‘ A modern council - or authority which puts people first will seek to
provide services which bear
comparison with the best...
Continuous improvements in both
the quality and cost of services will
therefore be the hallmark of a
modern council and the test of
Best Value.’
(Department of the Environment,
Transport and the Regions 1998)1
Best Value through sport
setting the scene
Best Value: A new culture
• monitor and evaluate the success of initiatives
The DETR White Paper Modern Local Government, In
Touch with the People introduces the need for a radical
1
• utilise output-based performance indicators.
cultural shift in the way local authorities organise
themselves and deliver services. It talks of the rebirth of
democratic local government, by reconnecting local
Best Value is a key part of this cultural shift and, unlike
people to local democracy. It is concerned with
CCT, encompasses all local authority services. Put
delivering a national agenda locally and seeking new
simply, it is about:
methods and partnerships for delivering local services.
• finding out what people want and expect
The White Paper states that in order to improve services
through Best Value a local authority must:
• setting standards that match expectations
• set clear service standards
• delivering services to these standards
• have targets for continuous improvement
• measuring and demonstrating successful service
delivery
• encourage service users to have a greater say
• reviewing expectations, standards, delivery
• be independently inspected and audited
and success.
• bear comparison with the best in both public and
Many of the disciplines involved in Best Value have been
private sectors
in existence for some time and have been implemented
in a number of progressive local authorities. This is
• address cross-cutting issues facing communities and
particularly true for sports services, which have had to
citizens
fight hard for their share of resources and in some cases
• share inputs and outputs with other agencies
have been subjected to competition.
7
Best Value through sport
Best Value disciplines
●
community consultation
- user, non-user, household and street surveys
- focus groups and facility user forums
●
strategic planning and service definition
- district sports strategies
●
working in partnership
- voluntary sector clubs, governing bodies of
sport, regional sports councils
- private sector partnerships
Each local authority will need to demonstrate Best Value.
●
performance standards and comparison
A working definition for the purposes of this publication
- quality systems (ISO, Investors in People,
is as follows:
Quest), etc
- benchmarking
‘Achieving continuous improvement in the cost and
- performance indicators
quality of services through adherence to the four Cs:
challenge, consult, compare and compete.’
●
competition
- CCT
Challenge
- procurement and management options.
It will be necessary to justify how and why services are
provided and to assess how community needs have
Many local authorities already have some of these
changed and will continue to do so. New methods of
disciplines in place. Best Value for them will involve
meeting needs should be evaluated, taking into account
integrating these into a systematic and holistic approach.
best practice in service delivery from elsewhere. All
For others it will require embracing new disciplines.
partnership opportunities should be explored.
The challenge to all authorities in relation to sport is the
cultural shift away from a service-led approach to a
Consult
more inclusive cross-cutting agenda that seeks to solve
A Best Value authority will engage with the members of
significant social policy issues through integration.
its community and involve them in the decision-making
process. Each authority must decide its own method,
timing and scope for community consultation. It is
Best Value: A working definition
expected that these will differ from service to service.
The Local Government Bill 7 published in November
A local authority will need to demonstrate how results
1998 states:
of community consultation have influenced decisions
and levels of service.
‘A Best Value authority must make arrangements to
secure continuous improvement in the way in which
Compare
its functions are exercised, having regard to a
National and locally determined performance measures
combination of economy, efficiency and effectiveness.’
should be used to demonstrate how well a service is
8
Setting the scene
Best Value: The process
Best Value Performance Plans
All local authorities will be required to publish their first
Best Value Performance Plans by 31 March 2000 and
thereafter will be required to produce them annually.
They will be the key document to measure the
performance of a local authority and will be used by
both the local community and external inspectors to
judge progress. Guidance from the DETR 8 states that
the plans will need to:
• set out a programme of Best Value reviews
being provided. The Government has stated that, as a
minimum, local authorities should set quality targets
• include an assessment of the previous year’s
over five years that are consistent with the performance
performance
of the top 25% of all authorities at the time the targets
are set. However, comparison should not be limited to
• set out measurable targets for the years ahead,
other local authorities but should encompass other
together with a statement of actions proposed to
public, private and voluntary organisations.
achieve those targets.
Compete
To date, Government guidance is unclear on the extent
Performance Plans should be based on the local
to which competition is to form part of the Best Value
authority’s corporate objectives and statutory plans.
process. Unlike CCT, the legislation is not prescriptive
They should reflect priorities in relation to cross-cutting
about which services should be subjected to
issues, such as equity, sustainable development,
competition or the timing and method of doing so.
community safety, lifelong learning and social inclusion.
Authorities will be expected to prove that they have
embraced the principle of fair competition and that they
Performance Plans for individual service areas should
are delivering services in the most advantageous way.
feed into the overall corporate Performance Plan.
Performance management systems (either existing or
Effective partnerships will be encouraged, with
new) should be used to ensure that this ‘cascade’
employees playing a key role in ensuring cost-effective
approach functions effectively. Cross-departmental and
service delivery. Fairness in the labour market will be an
multi-agency plans will be encouraged where there is a
important feature of Best Value. An evaluation of
shared responsibility for ‘thematic’ priorities, such as
procurement methods should be made where realistic
health improvement programmes, community safety and
options exist. Services should only be provided in-house
crime reduction.
where this can be justified on grounds of efficiency,
effectiveness and economy. The Government will use its
Performance Plans should facilitate and complement the
sanction to enforce competition in circumstances where
‘comparison’ and ‘consultation’ components of Best
insufficient justification is given for choosing the in-
Value. This will enable longitudinal monitoring of
house option.
continuous improvement.
9
Best Value through sport
Principles of public inspection
1 Inform the public about the current
performance of local services and their likely
performance in the future, and so enhance
local accountability.
2 Focus on public services as experienced by users.
3 Take into account the use of money, people and
assets and promote economy, efficiency and
effectiveness.
4 Act as a catalyst to help public bodies to
Best Value Reviews
improve.
The timetable for the Best Value Reviews will be set out
in the authority’s Performance Plan. Government advice
5 Identify what works, to inform policy nationally
to date states that Best Value Reviews (BVRs) should
and practice locally.
initially concentrate on perceived areas of weakness.
6 Scale the inspection in proportion to the risk.
The reviews will be focused around the four Cs:
challenge, consult, compare and compete. All services
7 Ensure that the methodology and criteria on
will have to have had a review within a five-year period
which judgements are based is explicit and
starting from April 2000.
based on evidence of what works in improving
services.
The BVR will no doubt be a demanding process but also
potentially a rewarding one. If carried out properly it
8 Carry out inspection without fear or favour.
should ultimately lead to improved levels of performance
and better services for customers.
Source: Developing Principles for Public Inspection
(Audit Commission 1999)9
Audit and inspection
To validate the rigour and challenging nature of the BVR
undertaken by each authority, the Audit Commission will
It is clear from these principles that the inspection
appoint auditors and inspectors to carry out an audit of
process is as much to do with acting as a catalyst for
the published Best Value Performance Plan and an
improvement and identifying successful practices as
inspection of the review process for individual services.
it is about imposing sanctions in response to perceived
failure. The Audit Commission considers that the
inspectorate should be as prepared to celebrate and
praise as it should be to criticise and judge. The
Commission’s subsequent consultation paper From
Principles to Practice 10 suggests a structure for the
audit and inspection process which aims to put these
principles into practice (See Figure 1).
10
Setting the scene
Figure 1: Suggested structure for the audit and inspection process
STAGE
CONTENT
PROCESS
CONTEXT
Assessment of local needs
Assessment of local
authority’s approach to
Best Value
Previous inspectorate reports
PERFORMANCE
REVIEW
Assessment of current
performance
New targets for future
performance
Survey of users and
stakeholders
REALITY CHECK
‘Mystery shopping’
Analysis of service details
INTERIM
CHALLENGE
COMPREHENSIVE
EVALUATION
Preliminary challenge to
councils based upon
assessment of processes
and proposals in the BVR
Assessment of council’s
approach to Best Value
Previous inspectorate
reports
Summary report
REPORTING
Overall inspection report
Application of the four Cs to
review local authority
performance
Documentation
in the local
authority’s BVR
Assessment of management
capability
Assessment of resource
availability
Definition of local hypothesis
for further testing
Further local measurement,
professional experience
and comparison with other
settings
Marshalling of components
of judgement and synthesis
into overall judgement
Inspection
of the
setting
Source: From Principles to Practice (Audit Commission 1999) 10
11
Best Value through sport
Currently the Audit Commission is considering precisely
The format for reporting on the outcomes of the
how the inspection will be carried out but the current
inspections is still to be decided. Two broad
proposal is that two inspectors, one a generic auditor and
mechanisms are under consideration:
the other a sector-specific inspector, will together carry
out the inspection process. For sport this means that at
• a numerical or ‘five-star’ system assessing each
least one of the inspectors will be an individual with
element of a service, eg strategy, financial systems,
experience and knowledge of delivering leisure services.
percentage of capacity take-up, against each of the
It has been suggested that the scope of the inspection
four Cs, or
will be rigorous, with the inspectors spending anything
up to two weeks examining an individual service review.
• a form of words approach presenting a range of verbal
conclusions.
Self-assessment will be a fundamental part of the
inspection process. A number of ‘quality’ models may
Best Value performance management framework
be used to verify continuous improvement including:
Best Value applies to all local authority service areas
and activities, unlike CCT that applied to certain ‘defined
• Business Excellence Model
activities’. The process is illustrated in Figure 2 opposite.
• ISO 9000
• Charter Mark
• Investors in People
• Quest
Feedback from service users will also be a key
component of the monitoring process.
12
Setting the scene
Figure 2: The Best Value performance management framework
National focus
Local focus
General health Pls
Establish authority-wide objectives
and performance measures
Local aspirations
Service or cross-service Pls and
some rational targets
Agree programme of Best Value
Reviews and set out in local
Performance Plan
4-5 year cycle for all services
Service or cross-service Pls
Undertake Best Value Review of
selected areas of expenditure
Challenge purpose
Consult community
Compare performance
Compete with others
Year-on-year improvement
Set and publish performance and
efficiency targets in local
Performance Plan
Follow-up action
• Report on achievement of
targets in local Performance
Test of robustness for local people
and central Government
Independent audit inspection
and certification
Plan
• Address shortcomings
• Deal with failure
Last resort powers to
protect public
Areas requiring intervention
referred to Secretary of State
Source: Modern Local Government, In Touch with the People (DETR 1999)1
13
Best Value through sport
Best Value:
Key issues for sport
An opportunity or a threat?
The introduction of Best Value is a challenge that must
be addressed in a positive way. The early days of CCT
were characterised by negativity and by some authorities
seeking to circumvent the legislation. Undoubtedly, Best
Value, like all new initiatives, will require interpretation and
evolution. Those responsible for the delivery of sports
services must embrace it, otherwise the place of sport in
the portfolio of local authority services will be in jeopardy.
Local authorities must remain the most important enabler
and catalyst for the provision of sport at the local level.
Areas of sporting impact
The value of a local sports strategy
Local authorities find it difficult to keep sport at the top of
• sustainable communities
their agenda because of the challenge of deciding
which sports to provide for, which participants to target,
• anti-poverty
and what level of the sports development continuum to
focus on. Current good practice involves balancing
• equity and equality
direct service provision with the enabling role, and social
objectives with financial ones. Where objectives and
• community safety
targets for all providers are written down in a coherent
• social and economic regeneration
strategy – either specifically for sports services or for a
wider social theme in which sport plays a key role – the
• inward investment
transition to Best Value should be less problematic.
• lifelong learning
Sport and corporate objectives
This in essence is the ‘Challenge’ component of Best
• job creation
Value. The Value of Sport 3 demonstrates the intrinsic
and valuable contribution that sport makes to the
• environmental protection
quality of life of individuals, communities and society
as a whole. The case for local government sports
• crime prevention
services, and other cultural services, is also well made
in the Local Government Association’s advocacy paper
• healthy lifestyles
Enriching People’s Lives 11. Local authority sports
• social cohesion
services contribute positively to the new social agenda
and to corporate objectives. Sport can be demonstrated
• community development.
to impact on a whole range of corporate policy issues
facing local authorities today (see right). The challenge for
sport is to demonstrate this in visible and tangible ways.
14
Setting the scene
leisure services. For example, the use of sports halls
and swimming pools is dominated by the non-manual
socio-economic groups, with 72% of use coming from
groups ABC112.
Best Value will undoubtedly be the catalyst for further
targeting of scarce resources as well as more rigorous
measuring of the success of such policy initiatives in
achieving their intended objectives.
Integration through Best Value
The pace of change in local authority sports
management is relentless. The challenge of modernising
local government and achieving Best Value is far greater
Prioritisation of resources
Each authority will need to determine its sports priorities
in the light of corporate objectives and the new crosscutting agenda. For many years, Sport England and
many local authorities have advocated the prioritisation
of resources, by targeting one or more of the following
groups in society:
than the challenge of CCT ever was. The introduction of
Best Value coincides with the advent of Cultural
Strategies and Cabinet-style governance, as well as the
new social agenda. A radical and holistic review of
services will be necessary, linking in with crossboundary working and multi-agency partnerships. For
those authorities that have had internal reorganisation or
become unitary or changed political persuasion, even
• young people
more new dimensions are brought into play.
• the elderly
In this context, it is also important to recognise the issue
of funding the Best Value process, given that no new
• ethnic minority communities
money will be made available. Many authorities have
been downsized in recent years and therefore have to
• people with disabilities
cope with the changes with fewer resources, whilst at
• those on low income.
the same time continuing to provide services to
customers on a day-to-day basis.
A number of the case studies in this document bear
witness to the success of individual local authorities in
To make the challenge a little less daunting, an
increasing take-up and participation in sport by people
integrated approach is required. For sport to
within these ‘target groups’. However, in the case of the
continue to be important within local government,
‘low income’ group, it is salutary to note the results of
it needs to be positioned at the core of the local
recent findings from the national survey on The Use and
authority’s activities. This is sport’s rightful place
Management of Sports Halls and Swimming Pools in
since it, contributes to most, if not all, of the new
England , which focuses purely on the public sector.
themes of local government. Best Value must not be
The findings show that, despite attempts to target
considered in isolation but should be part of a joined-up
subsidies, it is still those people who are better off who
approach, as advocated in the DCMS guidance on local
tend to make most use of local authority sports and
strategies 4 (see Figure 3).
12
15
Best Value through sport
Figure 3: Links between strategies
STRATEGIES OF NATIONAL AND REGIONAL AGENCIES
eg Regional Cultural Consortium’s Regional Cultural Strategy, Regional Arts Board Plan,
Regional Sports Council Plan
OTHER STATUTORY PLANS
eg Land-Use Plan, Community Safety
Strategy, Local Transport Plan, Health
Improvement Programme, Education
Development Plan
OTHER NON-STATUTORY PLANS
eg Local Agenda 21 Strategy,
Economic Development Strategy
LOCAL CULTURAL STRATEGY
• deals with cultural well-being of
area
• includes local authority services,
services of other agencies, other
activities
• sets objectives, prioritised
targets
• key questions: why? what?
LOCAL AUTHORITY
CORPORATE STRATEGY/BEST
VALUE PERFORMANCE PLAN
• sets out corporate objectives
• reports on performance of
services
• identifies targets for all services
• sets out means for achieving all
targets
• key questions: how? how well?
INDIVIDUAL SERVICE STRATEGIES AND PLANS
eg Annual Library Plans (statutory); Arts, Sports, Parks, Tourism Plans; Best Value Reviews
Source: Local Cultural Strategies – Draft Guidance for Local Authorities in England (DCMS 1999)4
A crossroads for sports development?
reliant on costly buildings and infrastructure. It is
Best Value marks a crossroads for sports development
peripatetic, seeking out its client base and ensuring it
from which the service will either grow or retrench. Often
‘hits’ the target groups as well as delivering
regarded as the ‘Cinderella’ service within a local
development opportunities within sports centres and
authority’s portfolio of activities, sports development has
swimming pools. The emerging national sports
always been notoriously difficult to measure in terms
development model of ‘Active Schools’, ‘Active
of its effectiveness and value. Authorities may have
Communities’, ‘Active Sports’ and ‘World Class’
been tempted to undertake unsustainable activities,
programmes, developed by Sport England, provides an
reacting to short-term political pressures by providing
ideal framework for defining roles and responsibilities for
‘one-off’ courses and schemes. Given this context, the
the delivery of sustainable sports development
temptation to reduce sports development activities
structures across a given area.
within any Best Value Review is clear. Whilst the threat of
the future of sports development is evident, the catalyst
Sport England’s Lottery Fund strategy Investing for our
of Best Value also provides a wonderful opportunity to
Sporting Future 13 clearly sets out its priorities for Lottery
position sports development as a central, as opposed
funding over the next ten years. These include new
to peripheral, element of a local authority’s service.
funding initiatives to improve the targeting of resources
to those individuals and groups in the community who
Many would argue that sports development services
are currently socially excluded. It is an important
represent the most efficient and cost-effective way of
document and should be used by local authorities
improving sporting opportunity for target groups. A
when planning and developing new strategies for
good, integrated sports development service is not
sports development.
16
Setting the scene
• the benefits of sport are quantified
Local factors
It is important to recognise that no two authorities are
• resources are prioritised across the diversity of sport
alike. Best Value approaches will need to be tailored to
reflect differences in:
• community consultation is carried out cost-effectively
• population characteristics
• performance measures are quantified for each
• spatial and geographical issues
service area
• capital and revenue resources
• benchmarks compare like with like
• proximity to ‘competitor’ authorities
• the energy of the whole sporting community is
harnessed through effective and long-lasting
• values, culture and priorities
partnerships
• existing partnership and management arrangements
• client and contractor roles are re-designated
and integrated
• historical investment in sports services
• facility managers and sports development
• political philosophy.
officers work together
Challenges arising from Best Value
• competitiveness is demonstrable.
Best Value is a never-ending journey with inherent
challenges. Through Best Value local authorities will
These issues need to be addressed conclusively and
need to ensure that:
rigorously if sport is to remain a key component of the
• the rationale for enabling and/or providing sporting
local authority service portfolio. It is crucial for the future
opportunities is clearly articulated and is part of an
of sport in this country that they are. As a result it will be
overall strategic plan
evident to all that Best Value is being achieved.
17
‘Best value will help councils to
address the cross cutting issues
facing their citizens and
communities, such as community
safety or sustainable development,
which are beyond the reach of a
single service or service provider.
These issues can only be tackled
successfully with the co-operation
between partners and a shared
understanding of the outcomes that
need to be achieved.’
(Department of the Environment,
Transport and the Regions 1998)1
Best Value through sport
case studies
Collectively the examples show that sport can be used
Introduction
positively as a vehicle to help improve the quality of life
and well-being of local communities.
This section considers the four Cs – challenge, consult,
compare and compete – in turn. Some of the alternative
Challenge
approaches open to local authorities are identified and
illustrated through case studies. In addition a ‘fifth C’ is
introduced, that of continuous improvement, the ultimate
The starting point for any service review is a ‘first
aim of the Best Value process.
principles’ consideration of how and why the service
is provided. A best practice authority will be expected
The case studies include some of the local authorities
to have addressed the following questions:
chosen by the DETR to ‘pilot’ Best Value and others that
have been identified for their innovative approach to
• What are the authority’s overall corporate policies,
sports and leisure management services. Particular
principles, priorities and targets?
examples have been selected where sports initiatives
• How does sport contribute to these?
have contributed to the new ‘cross-cutting’ agenda of
local government in areas such as social exclusion,
• What tangible benefits are there (scope and cost)?
lifelong learning, community safety, healthy lifestyles
and economic regeneration.
• What is the extent of the existing service?
Approaches to Best Value are currently evolving, in
• Does it represent value for money?
advance of its launch. Some of the progressive practice
examples here may not have been introduced as a
• Is the service being delivered in the most effective and
direct result of Best Value, but we have included them
efficient way?
because the initiative ‘fits’ within a Best Value framework
and makes a good example for other authorities to
• What would be the consequences of not providing the
consider and learn from. The case studies do not
service?
necessarily represent ‘best practice’, but they aim to
• Have service standards been set?
show progressive approaches that local authorities have
taken in facing up to the challenge of Best Value.
19
Best Value through sport
This section looks at a number of approaches taken by
local authorities when challenging why sport is provided
as a service to the community.
Corporate (top-down) approach
A number of local authorities have used a standard
framework to assess all their services and the rationale
for including them within their portfolio. This has involved
the use of a corporately produced ‘checklist of basic
principles’ (see Appendix 2). While the contents of these
proformas differ according to local circumstance, the
principles are usually the same. They provide a basis
for comparing the contribution services make to the
attainment of corporate objectives, and the level of
resources necessary to provide an effective service.
rigorously, and that the reviews are completed on time.
From the perspective of Newham’s Leisure Centre Service
The London Borough of Newham included all its
Review Team, the corporate ‘toolkit’ approach was found
services within its bid to be chosen as a pilot authority
to lack flexibility in its early stages when applied to
and adopted the following corporate targets as the
‘quasi-commercial’ services such as leisure centres, but
cornerstone of its bid:
ultimately was considered very worthwhile. The fact that
Newham had a clear vision and objectives really helped
• 5% reduction in costs over five years
in determining the future of the service. The question
asked repeatedly of the Leisure Centre Service Review
• 10% improvement in quality over three years
Team by the Best Value Sub-Committee was: ‘How can
you demonstrate that your service contributes to the
• a move over five years from 10% to 35% of services
Council’s overall vision and objectives, such as social
being provided externally.
inclusion, sustainable communities, regeneration and
lifelong learning?’ An example linked to regeneration is
Once chosen as a pilot authority, it recruited a corporate
the new £15 million East Ham Leisure Centre currently
Best Value team (both internally and externally) under
taking shape on the site of the former East Ham Baths
the leadership of the Chief Executive and, at member
and supported by the Sport England Lottery Fund.
level, a Best Value Sub-Committee was established,
chaired by the Leader of the Council. The core officer
A key lesson learned by Newham through applying the
team was charged with developing a Best Value Review
corporate toolkit was that it was a mistake to consider
‘toolkit’ (see Appendix 3). This document was then used
leisure centres in isolation. With hindsight a themed
as a template for small teams of officers, in each area of
approach to ‘sport and physical activity’ would have
service under review, to work to. A member of the core
been a better option, as this could have included
team was assigned to each service review team, to act
sports development. Newham has now adopted a
as both guide and to ensure objectivity and rigour in the
themed approach which is flexible enough to
‘challenge’ phase. A key advantage of this approach,
incorporate the views of the voluntary and private
from the Newham experience, is that it helps ensure that
sectors, and capable of embodying relevant sports
each of the four Cs is reviewed systematically and
development issues.
20
Case studies
Corporately, the approach has been to establish five key
themes as the focus for future leisure services in context
of a city-wide Leisure Plan. These are:
• health and active lifestyles
• lifelong learning
• natural environment
• cultural and creative expression
• thriving local economy.
Lincolnshire County Council is also a Best Value pilot. In
Sports and leisure services are charged with identifying
this case the County Council’s sports development
and quantifying the contributions of each service area
service is included in the initial group of services under
against these themes.
review. Again, a corporate (top-down) approach has
been adopted to the BVR process. The County Council’s
The Leisure Services Department’s approach has been
Policy Unit is guiding the service review teams and
to establish a review team to assess the performance of
challenging any ‘comfort zones’ within a service area.
each service against the five key themes as well as
Again, a ‘template’ is being used to provide the teams
against:
with a clear structure to the process. Under ‘challenge’
the Lincolnshire County Council template includes a list
• participation
of questions to help service managers identify
objectively what they do and how they do it (see
• funding
Appendix 4). A particularly innovative approach here
was the setting up of a Sports Development
• subsidy distribution
‘Stakeholder Jury’ to scrutinise the service and its value.
• access
Service-led (bottom-up) reviews
An alternative approach is to delegate the ‘challenge’
• alternative provision available.
process to the service itself. This is still usually done
within the context of new corporate priorities but the
In parallel an external review was undertaken leading to
onus is on the service itself to make its case for
the production of a consultation document Towards a
continued resource allocation.
Leisure Plan for York which has been disseminated to
over 1,000 local leisure organisations and businesses,
City of York Council, a new unitary authority, was
and promoted at a range of focus groups and public
selected as a Best Value pilot. The City Council has
meetings across the city. The document clearly sets out
adopted the ‘challenge’ element of the Best Value
the corporate themes and the need for new ways of
Review process to prioritise future service provision
delivering sports and leisure services through multi-
and achieve necessary budget savings.
agency partnerships, in order to reduce costs and
21
Best Value through sport
improve effectiveness. Once the consultation process is
complete, the Leisure Plan will be considered for
approval by the City Council.
Multi-agency/departmental partnership
(horizontal) approach
Challenging the need to provide services gives an ideal
opportunity to engage with other agencies involved in
service provision at a local level, to identify service
areas that complement or, perhaps, duplicate each
other. These agencies can be either ‘internal’ departments
of the authority (eg education, social services) or
‘external’ (eg the health authority or the police). By
challenging the role of sport with reference to other
agencies, a stronger rationale can be provided and new
services. For example, a bowls centre and athletics
partnerships created that will eventually lead to a more
venue are now managed on behalf of the community
structured, coordinated and effective use of resources.
by the voluntary sector, and five dual-use partnerships
have been established between the Borough Council
Tamworth Borough Council in Staffordshire is a good
and local schools. Other facilities including a leisure
example of an authority that has taken a cross-
centre are operated by the private sector under a variety
departmental and multi-agency approach to its BVR of
of partnerships and lease agreements, while a golf
leisure services available across the borough. From the
course is operated by an in-house DSO.
outset, a corporate policy direction was provided,
strongly advocating a mixed, multi-economy approach
Challenge and structural reform
to the future delivery of Council services.
It is difficult to say whether Best Value has been the
catalyst for change or the result of it. However, there
Having recognised weaknesses in some services,
is no doubt that it is an opportunity for a local authority
including sport and leisure, together with a need to
to fundamentally review its structure in an attempt to
reduce the overall budget, the Council launched a
ensure cost-effective service delivery. Sports services
project called ‘Tamworth 2000’. Two thousand people
must be considered as part of any reform and remain at
across the borough, representing all types of local
the heart of the democratic process. Reviews are usually
interest groups and a number of the major agencies
at two levels: the political/democratic structure and
(eg the police, the health authority and social services),
process at member level, and the officer/departmental
were contacted and invited to sit on ‘Customer Panels’.
level. As part of the Government’s plans to modernise
The Panels are used as sounding boards for officers
local government, ‘Cabinet-style’ leadership has
and elected members to gauge priorities and to identify
emerged.
how the priorities can be best addressed and by which
Council department, external agency or voluntary group.
Leeds City Council and the London Borough of
Lewisham are examples of local authorities where
In the sport and leisure service, a key outcome of the
Cabinets have already been established. This has
project has been the implementation of a mixed-
significantly reduced the number of committees
economy approach to the delivery of facility-based
and speeded up the decision-making.
22
Case studies
‘Thematic’ departments
Many local authorities are restructuring or at least
defining services around key themes, such as economic
regeneration, social exclusion, lifelong learning, healthy
living and community safety.
Sport must demonstrate its contribution to these themes
and may need to be prepared to ‘sit’ within a thematic
department.
Norwich City Council, North West Leicestershire District
Council and the London Borough of Lewisham are all
examples of local authorities that are well on the way to
reorganisation along thematic lines. At the time of writing
Redcar and Cleveland Borough Council is another
it is too early to establish any clear pattern in the
authority that intends to move to a Cabinet structure in
treatment of sport within this organisational approach. In
the future. A Cabinet structure can be good or bad news
Norwich, for example, sports development looks likely to
for sport. A Cabinet member for whom sport is a key
align most strongly with those officer/member groups
part of their portfolio will help to ensure that sport plays a
responsible for social inclusion and lifelong learning. In
significant part in meeting corporate policy objectives.
Lewisham, the same service looks likely to sit within an
However, if no Cabinet member has this role, there is a
‘active lifestyles/health’ structural group, while leisure
danger of sport being marginalised within the local
centres are likely to fall within a regeneration department.
authority.
At this stage it is impossible to draw conclusions as to
In some cases, but not all, the move to Cabinet-style
the effectiveness of this approach in delivering
governance has also led to a review of the
continuous improvement. We need to be mindful that,
officer/departmental structure of the authority. Over the
where elements of a sports service are split across a
last ten years sport has been placed within a variety of
number of thematic departments, without good internal
departments. In some cases it has had a stand-alone
communication and cross-service working, the delivery
function, in others it has been a constituent of other
of an effective, holistic sports service becomes more
services such as education, technical services,
problematic.
planning or community services. CCT had the often
negative effect of ‘splitting’ the service into client and
Contribution to cross-cutting agenda
contractor roles which were often placed within
Once an authority has decided how it is going to
separate departments.
‘challenge’ service provision and organise itself
according to its new priorities, it must direct resources
The challenge component of Best Value provides an
and introduce initiatives that will have tangible benefits.
opportunity to redefine the shape and scope of sports
There are many examples of how sport is used to make
and leisure services and review where they best fit
a real difference to people’s lives. Three examples
within the corporate structure.
focusing on the benefits of sport in relation to the theme
of youth crime and community safety are illustrated in
the case studies that follow.
23
Best Value through sport
Kirklees Metropolitan Borough Council
The Podium Project
The Podium Project is a partnership between Kirklees
Metropolitan Borough Council and the West Yorkshire
Probation Services. It provides a sports counselling
service for young offenders aged 16 and over. The
majority of participants in the scheme are presently
under a supervision order, but recently the project
coordinators have extended the scheme to accept
referrals for people who are on a formal police caution.
The Podium Project is funded by West Yorkshire
Probation Services (£12,000) and over the past two
years it has received additional financial support from
Since the scheme began, several young offenders have
Kirklees Metropolitan Borough Council (£14,000). The
had their sentences reduced by the court in response to
Council’s Leisure and Recreation Services Department
their successful involvement in the Podium Project. In
also provides the leisure facilities, the project management
the year 1998-1999 around 80 referrals were made, with
and free access to facilities to support the project.
approximately 42 successfully completed Podium Project
programmes. Although it is still too early in the life of the
The project works on the basis that a young offender on
project to draw any conclusions about its value in reducing
a supervision order meets informally with a probation
incidences of re-offending among participants, the
officer to establish whether they are interested in getting
outputs are being monitored. Therefore, in time, it will
involved in sport. If they are, a meeting is set up
be possible to assess the value of the £14,000
between the young person, the probation officer and a
committed by Kirklees MBC in a Best Value context.
project coordinator to agree an action plan with overall
objectives. The project funding and structure allow for
Bolton Metropolitan Borough Council
ten hours of personal contact time with the project
The Pathways 2000 Project
coordinator. These ten hours are sub-divided. On
successful completion of five hours, the scheme
The Pathways 2000 Project 14 is another excellent project
participant receives a bronze award. On completion of
seeking to address issues of community safety and youth
ten hours and demonstration that some skills have been
crime. The Pathways 2000 Project is a key contributor to
acquired, they get a silver award. Following completion
Bolton MBC’s strategic objective to promote safe, healthy
of the ten hours, there is potential to be re-referred, or to
and supportive communities. The project was set up
go on to achieve a gold award. This can be done by
specifically to tackle crime and community safety. The
undertaking a Community Sports Leaders award or
aim of the project is to create opportunities for young
voluntary involvement in coaching or other activity with a
people aged 8-24 years and to divert them from crime.
local sports club.
As part of the project an officer was appointed to
Each participant’s progress on the scheme is monitored
coordinate the work of an outreach and response team
by both the project coordinator and the young person
responsible for developing an active and responsive
and is fed back to the probation officer.
multi-agency approach. Services offered to young
24
Case studies
buildings. These developments have reduced reported
incidences of anti-social behaviour (eg graffiti and
vandalism) and improved perceptions of safety among
the older users of the park. The facilities have had a
positive effect on life in the park for previously polarised
user groups – young people and older local residents.
The Borough Council has achieved this by successfully
harnessing the enthusiasm of local people who have the
appropriate skills and commitment to manage and
operate the facilities. It is an instance of activities and
programmes being moulded around the people in the
community who can deliver, rather than external
agencies imposing initiatives on communities.
people through the project include the provision of an
The facility operators report incidences of vandalism
information and counselling service for young people
and other anti-social behaviour to the Borough Council
and their parents/carers and the development of
via the Ranger Service, which maintains the records.
drama/arts/music workshops, play schemes and
vocational training opportunities relating to youth work,
The dojo teaches martial arts and a sense of self-
community development and sports.
respect and respect for others. Every week tuition
is given to 12 young people who, in the opinion of the
The Pathways 2000 Project has been very successful in
operator, are at risk of being drawn into anti-social
engaging young people in the consultation process. A
behaviour. Martial arts was felt to bring special
consultation panel of 116 young people has identified a
qualities:
need for local facilities with local community ownership.
As a direct result, several under-used play areas have
• easy access irrespective of age, disability, gender,
now been converted into modern ‘recreation zones’
social class or ethnicity
with surfaces and equipment catering for formal
and informal sports. Young people were very much
• low skill requirement initially, allowing early initiation
involved in the consultation process to identify what
should go into these recreation zones and where
• low start-up costs
they should be located.
• spiritual discipline, about self-discipline and selfEpsom and Ewell Borough Council
respect
The Parks for All Project
• ideal gateway for young people who may not join any
Community safety and, specifically, efforts to reduce
other form of organised sport or group.
youth crime are high on the agenda of this Surrey
authority. A cross-agency Community Safety Strategy
The martial arts programme was grant-aided in its
has recently been published. The Parks for All Project
first year by Surrey Safer Partnerships, a multi-agency
seeks to build on the success of a pilot scheme that set
partnership involving the county council, borough
up a gym in the park and later a dojo in disused pavilion
and district councils and the Surrey Police. Monitoring
25
Best Value through sport
figures for park incidents show the following benefits:
• reduced incidences of anti-social behaviour
• reduced incidences of vandalism
• an improved perception of safety within the park
• less wasted police time
• individual benefits to young people taking part in
martial arts.
This example is being used as a working model to
demonstrate to residents’ associations close to other parks
in the borough, the tangible benefits of engaging positively
The decentralised approach raises further issues that
with disaffected young people through sport .
need to be addressed. For example, larger strategic
facilities, such as athletics tracks or competition pools,
Decentralisation of services and neighbourhood
clearly serve a wider than local catchment area and
approaches
decisions regarding their planning and management
Some local authorities, particularly those serving rural
often need to be made at a higher strategic level. South
areas, have developed ways of taking the democratic
Somerset District Council tackles this challenge via its
decision-making process closer to their communities.
district-wide leisure strategy.
South Somerset District Council, for example, has
Best Value challenge – an holistic and ongoing
adopted a decentralised structure with decisions taken
process
by four area committees. Budgets are also devolved to
The challenge process should not be reviewed in
area committees. There is a genuine emphasis on
isolation nor should it be seen as a one-off opportunity.
getting people involved in local democracy – a key
An effective authority should be constantly challenging
thrust of Best Value.
how and why it provides services. The process should
The District Council is not structured around traditional
be based on the Best Value continuum – consulting the
departments and committees but uses a system of topic
community on the results of its challenges, comparing
panels and strategy groups that are open to the public.
the effectiveness of its services with others, and
Topic panels aim to discuss issues rather than take
demonstrating that it is doing so competitively.
decisions. Areas covered by these panels include
Challenge sets the corporate agenda but there needs
recreation, arts, the environment and social welfare. By
to be a ‘performance management’ system in place to
using topic panels and area committees, the District
ensure that priorities are cascaded throughout the
Council can monitor success by using locally agreed
authority, that partners are engaged and that services
performance indicators. District-wide strategy and
are constantly re-challenging what they do.
policy are determined by the District Executive. A
devolved approach can lead to higher overall costs
This holistic and continuous aspect to the Best Value
through duplication, but these are often balanced by an
challenge process has been recognised by Kent County
improved rate and frequency of use.
Council’s Sports Development Unit in its approach, the
26
Case studies
organisations for delivery of services. It is the catalyst for
change in local authority structures and decisionmaking processes.
A thematic approach is emerging as a consistent trend
and this reflects national government priorities. Sport
contributes directly to the social policy agenda of local
authorities, and should be well placed to take advantage
of the challenge process.
Consult
Engaging the community in the democratic process is a
fundamental part of Best Value and at the heart of the
key elements of which are set out in a Best Value
agenda for modernising local government. Most local
Statement produced by the Unit. The statement pledges
authorities have a tradition of conducting surveys of
the Unit to raise the level of sports participation and
residents or service users. A Best Value authority is one
performance in Kent by aiming to:
that has a systematic and inclusive approach to
gathering quantitative and qualitative information from a
• support a culture of equal opportunity and access
representative sample of residents and stakeholders,
and uses that information to determine, evaluate and
• have consideration for environmental sustainability
improve service delivery.
• ensure that the best use is made of resources in Kent
There are numerous ways to consult the community
about sports services. The case studies illustrate
• enforce the quality standards as outlined in its Charter
different techniques grouped under a number of
for Sports Development.
themes.
The statement has proposed a number of actions to
Corporate approach and Citizens’ Panels
ensure that what the Unit does, and how it does it, is
There are many examples of how local authorities are
challenged regularly. The actions include audits of the
adopting a corporate approach to gathering information
Unit’s performance, reviewing procedures and external
from their residents about their needs and wants. A
service targets. These are undertaken every two years
coordinated approach prevents ‘survey overload’ and can
by the Kent County Council Best Practice Performance
link questions and survey techniques to the corporate
Review Team.
objectives determined through the challenge process.
Challenge – conclusions and lessons
A disadvantage of the corporate approach, if employing
Challenge is a fundamental component of Best Value
traditional questionnaire survey methods, is that, in
and also its starting point. There are a number of
addressing all the service areas of the authority, the
approaches, for example, corporate-led or service-led.
volume of questions may dictate that only superficial
Challenge should be used to determine the agenda and
responses will be obtained. To overcome this limitation,
priorities for services, as well as the most appropriate
a large number of authorities have established Citizens’
27
Best Value through sport
Panels or Community Forums where representative
samples of the community are questioned on a regular
basis about a range of service issues. Tamworth
Borough Council has its ‘Customer Panels’,Southampton
City Council a ‘Feedback Panel’ of 1,200 residents, and
Epsom and Ewell Borough Council a ‘Community Forum’.
These are only three of many local authorities now
adopting this approach in recognition of the need to reengage local people in the process of local democracy
and to secure a mandate for policy direction and
changes.
A more informal approach, called ‘Listening Days’,
has been adopted by the London Borough of Newham.
Shopping centres across the borough are the venues
Consultation through area committees
for Listening Days at which senior Council officers and
The consultation process can be ‘dovetailed’ with
elected members discuss issues of concern to residents
structural reform and priorities. For example, South
and visitors. These are run quarterly and reports
Somerset District Council has set up ‘neighbourhood’
produced on the findings are made widely available.
committees and local focus groups to work together to
consider issues and make decisions.
Project-specific consultation
In a case where feedback is required on an individual
Similarly, the area covered by Norwich City Council
issue as part of the challenge process, a more defined
is characterised by a series of quite well-defined
research brief can be formulated. Great Yarmouth
neighbourhoods, each possessing its own unique
Borough Council, a Best Value pilot, identified as part
identity. Following a clear corporate agenda of
of its Best Value Review of its ‘leisure and sport’ and
reawakening local democracy, whilst also reducing
‘recreation and amenities’ services, that meaningful
central bureaucracy and costs, the City Council, through
consultation has a significant resource implication
its Leisure and Community Services Section, is driving
where the geographical area is large and covers many
forward a process of devolution of decision-making on
small rural communities. The Borough Council therefore
local issues to neighbourhood committees – a process
decided to undertake consultation on a local, project-
promoted locally as ‘Community Power’.
specific basis. Initially this work has concentrated on
village and neighbourhood recreation grounds and
Interestingly, the first ‘live’ sport and recreation issue
open spaces prone to problems of anti-social behaviour
decided on by a neighbourhood committee was a vote
by young people. Great Yarmouth Borough Council
not to implement a skateboard park scheme promoted
initiated the formation of local consultative groups,
by the City Council in response to expressed demand
which facilitated the close involvement of the Youth
from young people living in the neighbourhood.
Service and the Community Police. Once established,
these groups have gone on to take control of the design,
This demonstrates that taking local consultation to the
implementation and management of local recreation
extent of local decision-making can result in tensions
development projects such as the installation of multi-
between different localised interest groups. Perhaps one
use games areas (MUGAs).
lesson to learn from this situation is the need to ensure
28
Case studies
are linked to the development of annual business plans
that in turn inform the budget planning process for
TRDC. This means that resources can be redirected to
areas that customers identify as in need of improvement.
Additionally this process allows comparisons of
performance in two areas. These are:
• comparison between TRDC’s directly managed sports
centres and those managed by the commercial sector,
ie Circa Leisure (now part of the Relaxion Group)
• direct comparison between different leisure venues.
TRDC is working towards direct comparison between
a mixture of facilities, including a golf course,
that those taking decisions truly represent the views of
swimming pool, theatre and community centre, the
the whole local community.
common link being the measurement of customer
expectation against the reality of the service actually
being offered.
Consultation in partnership
In a number of areas the partnerships created by
TRDC does not see this as creating competition
Best Value, whether ‘internal’ or ‘external’, are
between venues, rather as a way of providing a basis
responsible for joint consultation. This can be more
for continuous improvement for all leisure services. This
cost-effective and reinforces the partnership, not just
approach to consultation demonstrates the link between
between the partners but also in the minds of service
the ‘consult’ and ‘compare’ elements of the Best Value
users who for the first time may see the ‘joined-up’
process. The TRDC approach to consultation provides
approach to service delivery.
benchmarks. (For more detail on this aspect, see the
‘Compare’ section on pages 32-34.)
The following cases illustrate good practice in adopting
a partnership approach to consultation within a Best
Value context.
Redcar and Cleveland Borough Council
Service Improvement Panels
Three Rivers District Council (TRDC), Hertfordshire
This Best Value pilot initiated its consultation process by
Customer Service Questionnaires
means of a series of large-scale community questionnaire
Here, the District Council has developed ‘Customer
surveys. Through this process, a small number of cross-
Service Questionnaires’ in partnership with Sheffield
cutting themes were identified as priorities for future
University and Circa Leisure plc, the private leisure
allocation of resources – young people, community
management contractor that operates the District
safety, social inclusion and lifelong learning.
Council’s main leisure centre.
The next stage in the process was the setting up of
The purpose of this Customer Service Questionnaire
‘Service Improvement Panels’ (SIPS) to develop action
evaluation is to compare customer expectations with the
plans for each service against each theme. The
actual service being offered. The results of this process
development of the SIPs was driven by the Borough
29
Best Value through sport
Council but led by local communities and service users.
It involved extensive consultation with members of the
public, elected members, officers from other service
areas, trades union representatives and other local
stakeholders in a partnership approach.
As yet, there are no tangible outcomes. The first round
of action plans developed by the SIPS omitted built-in
monitoring and evaluation procedures. This is now being
addressed in recognition of the need to measure
improvement in performance to establish Best Value.
Lincolnshire County Council
Stakeholder juries
In direct response to the Best Value process,
and personal development. Additionally, the City Council
Lincolnshire’s partnership consultation takes the form
has created a Youth Offending Team as a national pilot
of a ‘stakeholder jury’. This process gives members of
aimed at steering young people away from crime. This
the jury the opportunity to challenge the County Council’s
pilot incorporates sport and leisure activities as a method
role and service delivery by responding to a draft action
of accessing and channelling disaffected young people.
plan of work, and to refocus the proposed direction of
Sunderland has also created a number of partnerships
the service to meet their needs, if appropriate. In this
with internal and external agencies including the police,
authority it is anticipated that, over time, there will be a
probation and careers services. A key partnership
greater involvement of stakeholder juries in assisting the
arrangement has also been formed with Relaxion plc
construction of work programmes for sports development.
with the outsourcing of four fitness suites in the city.
Sunderland City Council
The Best Value process in Sunderland has influenced
Consultation and appraisal
two broad appraisal systems in terms of performance
management:
The City of Sunderland is a Best Value pilot authority
that has also adopted a consultation-led approach. This
• Sunderland Service Improvement Model (SSIM) – an
has led to the development of an innovative nine-stage
internal appraisal carried out annually across the City
Best Value Model which evolved through extensive
Council, assessing performance and identifying areas
external consultation from a major youth review in the city
for improvement
and was supplemented by detailed sport and customer
• Best Value Service Review – an external appraisal
satisfaction data gathered by MORI.
carried out by the City Council and verified through
The Best Value model has a structured programme that
inspection, benchmarking, consultation, District Audit
aims to address issues facing 60 young people in the
and MORI. In relation to sport and leisure, this is currently
city. This involves a negotiated curriculum including
focusing on the delivery of ‘Community Services’ in the
accessing opportunities, citizenship and parenting
city, which also includes arts development, special
skills. Sport and leisure are used to help combat social
events, youth services, community development, adult
exclusion through work experience, vocational training
education and parks and open spaces.
30
Case studies
to clarify how sport contributes to the corporate vision
but also established a set of principles and a structure
which is ‘owned’ by the people ultimately responsible for
delivering services and contributing to service objectives.
Users and non-users
It is important to be objective in any consultation
exercise, particularly when it is part of a Best Value
Review. It is crucial therefore to seek the views of service
users about habits, usage patterns and perceptions of
quality, but equally important are the views of non-users.
These will reveal any barriers to participation and the
underlying socio-economic factors determining use.
Feedback from the performance management systems
Authorities undertaking wide-ranging consultation with
and an examination of the outcomes of the pilot scheme
different user groups may find it advantageous to use
will be used to redirect resources as appropriate. This
Sport England’s Model Survey Package 5 which provides
information will advise the Leisure Services Performance
the opportunity to standardise the survey approach and
Plan which will form part of the overall Best Value Local
can also be used as part of a benchmarking process.
Performance Plan for the city.
This Package is being updated to better reflect the
demands of Best Value, and it is being used as part of a
Internal consultation
project to develop performance indicators for sports
Traditional consultation has focused on those outside
halls and swimming pools.
the organisation. One example of an authority consulting
internally is North West Leicestershire Council. The leisure
Braintree District Council is an example of a Best Value
function, including sport, has recently been reorganised
pilot authority that has carried out extensive consultation
as a result of a Council-wide review and reorganisation.
with non-users of its existing sport and leisure services,
The catalysts for the corporate review were a change
in order to help shape and determine its corporate
of political leadership and Best Value. The review has
strategy. The approach was to conduct a series of
resulted in Cabinet-style governance and the change
surveys in the district, in three main centres of
from six service departments to three corporate
population (Braintree, Halstead and Bramston), and an
directorates. Sport and leisure is now in a generic
audit of services leading to the production in 1998 of a
community services department and has a new set
Quality of Life Issues Report.
of ‘thematic’ priorities to address.
A key priority emerging from non-users was the
An ‘away day’ was attended by most of the leisure and
inadequacy of the existing swimming pools, and the need
sport staff. The purpose of the day was to announce
for major modernisation of the service to attract use from
the new corporate priorities and to ensure that leisure
a higher proportion of the resident community. A Quality
contributed to this by reviewing its mission statement,
of Life Plan was published earlier this year setting out a
core values, internal structure, partnership
clear action plan for working with private sector partners
arrangements and internal management and
to address the failings of the current service, identified
communication systems. This approach not only helped
through the consultation with its non-users.
31
Best Value through sport
Consultation – Conclusions
Best Value is highlighting the importance of consultation
across all local authority service areas. For many
services this is new, whereas it has been custom and
practice within sport and leisure for some time.
There are different ways of conducting consultation and
the selection of the most effective method(s) will depend
on the authority’s approach to Best Value and on the
degree of detail required from respondents.
Consultation should be used to underpin the ‘challenge’
process of Best Value and to provide baseline and
longitudinal information for ‘comparative’ analysis. It
should also be used to gauge competitiveness through
Those in local authority sports facility management
the ongoing measurement of customer satisfaction.
have experience of stating quantifiable objectives and
Developing and commissioning consultation in
outputs, as a result of preparing CCT specifications.
partnership with other providers and agencies is both
However, the process of ‘benchmarking’ and the sharing
good practice and a way of reducing the cost to
of information between authorities are not established
authorities in what can be an expensive element of the
practices. Indeed they were alien to the culture of CCT
Best Value Review process.
where it was perceived that the protection of information
was paramount.
As the case studies in this section illustrate, consultation
is being developed beyond seeking views and
In relation to sports development, there has been even
satisfaction ratings to embrace local decision-making.
less activity in this area. As an exempt activity under
CCT there has not been the same pressure to produce
quantifiable objectives and outcomes. It is also
recognised as a notoriously difficult process, but one
Compare
that can no longer be ignored with the introduction of
Best Value. Sport England is addressing these issues
This component of Best Value requires an authority to
through the extension of the Quest quality scheme into
measure the outputs of a service and compare the
the area of sports development. This will provide quality
results against:
standards for service delivery, linked to performance
indicators and measures.
• predetermined targets to record attainment of stated
objectives
Measuring performance
As with the challenge component of Best Value, there
• historical performance to demonstrate continuous
are two main options for the approach to setting service
improvement
standards: corporate-led or service-led. Initially the
process is likely to be service-led since it is at this level
that detailed knowledge exists of not only what can be
• the performance of other providers (benchmarking)
measured but also how it can be measured. As the
from a range of sectors.
32
Case studies
process of comparison evolves, measures will
Equally important is the fact that Epsom and Ewell has
increasingly be set centrally to record the achievement
chosen to include qualitative measures of performance
of corporate and thematic objectives. A further trend is
in benchmarking its sport and leisure services. In
likely to be the linking of comparison activities to the
the case of its leisure centre, measures under
consultation process.
consideration include an analysis of concessions
offered and taken up, the percentage of the available
The ongoing measurement of customer satisfaction will
programme time allocated to sports development
be an important benefit of Best Value. There should be
courses and other initiatives, as well as measures
an effective balance of quantitative and qualitative
concerning customer survey feedback and complaints.
measures of performance.
Huntingdonshire District Council (HDC) has chosen its
The following cases give examples:
five dual-use recreation centres as one of three service
areas to pilot its approach to the Best Value process.
As part of its performance management and annual
reporting procedures, the District Council already
Epsom and Ewell Borough Council is attempting to
monitors the performance of the centres against seven
determine a range of quantitative and qualitative
locally determined indicators. This is in addition to the
measures for each division of its sports and leisure
Audit Commission’s national indicators for sports
service. For example, quantitative measures for the
centres and swimming pools, namely net expenditure
borough’s one leisure centre include consideration of
per head, number of swims, number of other visits,
core pricing levels, the age of the centre against
and net cost per swim/visit.
comparators and the level of capital reinvestment made
over the previous five years. In this way, the standard
Audit Commission performance indicators (PIs) for
As part of its BVR of this service, the District Council
leisure centres, such as ‘net cost per swim/visit’, can be
has engaged external consultants to work with the
interpreted more meaningfully across a number of
centre managers to review the value of existing
comparator leisure centres as part of a benchmarking
indicators and to identify additional indicators to
exercise.
monitor performance against corporate ‘key drivers’ of
33
Best Value through sport
‘health for all’ and tourism promotion. Standardised
customer exit surveys are to be introduced and a range
of draft qualitative indicators are under consideration
including the number of ‘contact hours’ by recreation
centre staff with primary school pupils, and the number
of conversions of GP referral customers to regular
exercise.
Benchmarking
Having determined measures, the next step is to identify
‘benchmark’ organisations and collect comparative
information. This can be done in partnership with known
high-quality comparators through some form of
benchmarking club.
not restricted itself geographically and is working
For there to be meaningful data for the process of
alongside local authorities in England and Northern
regularly challenging how a service is provided, it is
Ireland, as well as those in Wales.
clearly helpful if the chosen benchmark organisations
include some that use a different service delivery
Compare – Conclusions and lessons
mechanism. Examples are trusts or other forms of
Progress to date has been limited in the ‘compare’
voluntary organisation, private contractors or direct
discipline of the Best Value process. Despite attempts
service organisations (DSOs). It can be difficult to obtain
by local authorities to develop benchmarks across
information from private contractors, for reasons of
authority borders, all those consulted as part of this
commercial confidentiality, although recent mergers and
study highlighted the difficulty of obtaining consistent,
acquisitions in this sector may lead to a more open
comparable information. This problem was seen as far
approach to the sharing of trading information.
greater than any concerns regarding commercial
confidentiality. Close liaison and cooperation between
Some leisure officers are currently cooperating in
near-neighbour local authorities is therefore required to
benchmarking on an area or regional basis, through
agree common indicators and iron out inconsistencies.
organisations like the Chief Leisure Officers’ Association
(CLOA) and the Association of Direct Labour
It is important to avoid the temptation of having too many
Organisations (ADLO), and through other forums such
measures. By limiting the number and complexity of the
as sports development officer groups.
indicators, data collection will be more manageable.
The City and County of Swansea has adopted an
Measures should reflect corporate priorities and
innovative approach to Best Value and developed a
customer expectations and embrace both efficiency
model for performance review comparing its services
measures (eg cost per visit) and effectiveness measures
with those of other local authorities. Crucial to Swansea’s
relating to clearly stated service objectives and
approach is the willingness to learn from the practice
performance targets (eg the number of customers from
employed in a number of different authorities and then
key target groups). It is this latter area that is generally
develop key performance indicators and build upon
underdeveloped and in need of attention.
existing benchmarks. This has meant that Swansea has
34
Case studies
evaluation against alternative sports development
service delivery mechanisms used by private
contractors or the voluntary sector.
The benchmarking process under development by
Lincolnshire seeks to use surveys to monitor the level
of sports participation over time within a population. This
will help to gauge the success of sports development
programmes at the ‘foundation’ level. Similarly, the
ongoing progress of those attending sports
development courses and programmes would also be
monitored over time to evaluate the sports development
service at the ‘performance’ level.
Alternative forms of service delivery
Compete
There are three main options for the management of
local authority sports facilities and services:
Demonstrating competitiveness can be done in a
number of ways. Continuous service improvement
• in-house
against predetermined targets involving ‘consultation’
and ‘comparison’ is an effective way. In the case of sport
• voluntary sector partnership
and leisure the perennial question of balancing social
and financial objectives should be addressed as part of
• private sector partnership.
the ‘challenge’ process. Thus ‘compete’ completes the
joined-up approach.
As part of the Best Value process a number of
authorities are evaluating different approaches.
There is a history of demonstrating competitiveness in
the management of leisure facilities through the CCT
Voluntary sector partnership
process. Subjecting the management of facilities to
The London Borough of Greenwich was the first
competitive tendering will remain one of the most
example of a voluntary sector partnership across the full
demonstrable forms of Best Value. The Best Value
complement of an authority’s leisure centres. The lease
process allows greater flexibility and local determination
on the Borough Council’s leisure centres to Greenwich
of appropriate service specifications, as well as greater
Leisure Limited (GLL), a not-for-profit Industrial
freedom for innovation in approaches to service
Provident Society (IPS), was granted as long ago as
delivery . The demonstration of competitiveness in
1993, well before Best Value came into being. The
sports development is more problematic.
catalyst in this instance was financial necessity at a time
15
of stringent budget cuts forced on the authority by the
Lincolnshire County Council is currently pioneering work
threat of rate-capping. Through strong emphasis on
in this area, seeking to assess the competitiveness of its
quality management and customer service, allied to
sports development service through developing a
prudent investment of savings accruing from IPS status
process for benchmarking. The County Council intends
(ie rate relief and VAT savings), GLL has significantly
to use this in future, both internally to demonstrate
enhanced service levels and reduced the cost of the
continuous service improvement, and externally to allow
service to the Borough Council over the past six years.
35
Best Value through sport
Greenwich Council’s approach is widely regarded as
a model case of achieving Best Value for its community
and other models have been adopted in Bristol,
Tynedale, Chester and elsewhere. Over the coming two
years, the Council will expose its sport and leisure
service to a Best Value Review and GLL’s lease period
will come to an end. Following a comprehensive BVR,
the Council will have to assess whether maintaining this
type of service delivery will continue to represent Best
Value for the people of Greenwich Borough. This type of
trust or IPS voluntary sector partnership is not a
panacea for Best Value. Each authority will need to
assess the benefits and cost savings over time as part
of its BVR.
Brixton in the London Borough of Lambeth. In these
Another example of voluntary sector partnership is the
examples, the local authorities are seeking to transfer
involvement of the community in the management of
management of outdated facilities to volunteer groups
facilities.
and to create new sports facilities through capitalising the
savings to the revenue budget and using the capital as
In 1997 Swindon Borough Council was included in a
match funding for bids to the Sport England Lottery Fund.
study carried out by the Local Government Management
In Brixton the facility in question is a football development
Board. The study, Partnering for Service Delivery:
centre that will potentially be trust-managed.
Securing Best Value through New Forms of Procurement
and Service Agreements, included seven case studies.
Private sector partnership
One of these was the partnering agreement between
The commercial sector has been involved in the
Swindon Borough Council and the charities responsible
management of local authority-owned sport and leisure
for running two of its existing leisure facilities – Haydon
facilities since the introduction of CCT in 1988. There is
Wick Leisure Centre and Highworth Recreation Centre.
an established market. The Leisure Management
Contractors’ Association estimates that approximately
The principles and practices developed at Haydon and
23% of sport and leisure CCT contracts are with the
Highworth are now being further investigated to see if
private sector. Authorities will therefore need to
they can be extended across the provision of all the
demonstrate that in-house management is more
borough’s recreation services (13 centres). Swindon has
efficient, effective and economic than that in the private
been granted a one-year extension to the CCT contract
sector. As facilities age and reinvestment is required,
by the DETR to further explore this approach. Swindon
public-private partnerships (PPPs) will become more
Borough Council has also established a Steering Group
prevalent. This trend is likely to be further strengthened
to look at the issue across all services. The Steering
by the growing market capitalisation of the organisations
Group comprises a range of individuals involved with
involved, facilitating the funding of increasing numbers
voluntary sport in Swindon.
of large-scale developments. However, it must be
recognised that, for the most part, these types of
A further voluntary sector partnership approach is
partnerships will be easier to forge in the more affluent
illustrated by current projects in the City of Leeds and in
catchment areas where opportunities are greatest for
36
Case studies
are likely to come under the greatest scrutiny. The
financial pressures to secure either capital investment
in leisure centres, revenue cost savings, or both, are
encouraging most authorities to review options for
voluntary (non-profit-making distributing organisation –
NPDO) or private management, regardless of Best
Value. In this context, it is likely that independent
evaluations of competitiveness will be important in
making the case for continuing with in-house operation.
Continuous improvement
Continuous improvement should be the outcome of the
Best Value process rather than a component of it.
attracting secondary spend and membership growth
Nevertheless, building into the culture a philosophy
alongside pay-as-you-play.
and process of continuous improvement is one way of
ensuring that an organisation stays within the top 25%
On 1 May 1999, Wokingham District Council and Circa
of comparable authorities.
Leisure plc announced one of the largest investment
programmes for local authority leisure and a milestone
A number of initiatives can do this, ranging from a formal
in public-private sector partnership. The partnership will
performance management process to a quality standards
see Circa Leisure plc (now part of the Relaxion Group)
system. Such systems are currently being put in place by
investing £4.53 million to enhance and maintain the
local authorities examining their own internal Best Value
existing four leisure facilities in the district, including the
processes, as shown by the Local Government
development of a new swimming pool at Lodden Valley
Association paper Current Developments and Future
Leisure Centre. The contract was negotiated by
Changes 16. The competitive environment in which local
competitive tender within a Best Value framework.
authority sports facilities have operated has led to the use
The process employed is a model that other authorities
of Quest, ISO 9000, Investors in People (IIP), Charter
will certainly be able to benefit from.
Mark, and other standards such as the Business
Excellence Model.
Compete – Conclusions
While Best Value removes the compulsory element
Kent County Council’s Sports Development Unit (Kent
inherent within CCT in respect of leisure management
Sports Development Unit) regards validation of the
services, it places greater responsibility on local
elements of quality service as central to its adoption
authorities to demonstrate that a rigorous assessment
of Best Value and, in particular, its drive for continuous
of the options for delivery of its sport and leisure
improvement. The procedures adopted by the Unit are:
services – including sports development – has been
undertaken. As a consequence of CCT, the market is
• a commitment to maintain its Investors In People status
now very well established, with nearly a quarter of all
leisure management contracts now in the private sector.
• a process of regular self-assessment as an audit of its
Therefore, those local authorities that decide, following
operation, so establishing a basis for benchmarking
a BVR, to continue to operate in-house are the ones that
service targets and continuous improvement
37
Best Value through sport
• being reviewed under the County Council’s Best
• Business plans are available for public inspection
Practice Development Review every two years,
in full or summary form.
involving both internal and external consultation.
• Continuous consultation with partner and client
The Sports Development Unit also publishes a medium-
organisations throughout the year on progress
term Vision for Sport in Kent. It consults annually with all
and priorities.
partner organisations on the ‘vision’ so that all agencies
involved in the delivery of sport in Kent ‘head in the
Annual report
same direction’. The overall approach to Best Value is
• Produced and circulated widely.
supported by the following elements:
Best Value Statement
• The Unit has a Best Value Statement that outlines the
Annual business plan
• The Unit produces a detailed annual business plan
approach the Unit will take to continuous improvement,
following wide consultation with partner organisations.
consultation, performance measurement, comparison,
consideration of alternative delivery mechanisms and
• Each objective in the plan relates to a specified
to evaluating, reporting and reviewing the Unit’s
strategic target for the authority.
response to Best Value.
• Objectives are prioritised and staff have stated
Approach to quality
accountability. Each objective features within the work
• Charter – The Unit’s Charter states the standards of
programme of each member of staff.
performance and customer care that are pledged to
the public
• Monthly monitoring by staff, including three ‘Away
Days’ each year.
• IIP accreditation
• Business plans are printed and circulated widely to
• aim to secure Quest for sports development.
partner organisations.
38
Case studies
Great Yarmouth Borough Council’s Community Services
The BEM forms the foundation for annual service plans
Division has adopted the ‘Business Excellence Model’
with clear targets and a process of performance
(BEM) for its range of services accredited by the Quality
reporting and review.
Trained Assessor Group (QTAG) of the British Quality
Foundation. This model examines and documents
An holistic approach to continuous improvement will
current practice across the components of community
help to inculcate it into all activities. Continuously
services, including sport and leisure services, according
challenging not only why a service is provided, but
to the following criteria:
also how well, will also help to guarantee continuous
improvement.
• leadership
Lincolnshire County Council is developing customer
• policy and strategy
satisfaction monitoring mechanisms across all service
areas – including sports development. The intention is
that these customer satisfaction results will be reviewed
• people management
annually, along with achievements, against specific
• resources
targets set within the action plans for each service area.
• processes
Continuous improvement – Conclusions
The achievement of continuous improvement is the
core aim of Best Value and the rationale behind
• customer satisfaction
the requirement for a programme of five-yearly
• people satisfaction
service reviews. It is therefore vital that all local
authorities adopt a performance management system
• impact on society
for their sports and leisure services, regardless of
whether the services are delivered in-house or by
• business results.
external partner organisations.
39
Best Value through sport
conclusions
the authority. However, unless the case for sport is made
Position statement
at an early stage, it is unlikely to be viewed as a key
Local authority sport is at a watershed. The case studies
service that can help in addressing the wider corporate
have shown the complexity and urgency of the issues
agenda. It is therefore imperative that advocates of local
facing providers of public sector sports services. There
authority sports services embark on the road to Best
is now a need to address a number of policy initiatives
Value now.
including Best Value and Cultural Strategies. In this
climate of uncertainty and change a ‘joined-up’
Best Value: A non-prescriptive process
approach is essential.
The fact that the process of Best Value is largely left to
Sport is a non-statutory service and, as such, its
local interpretation, provided that the general framework
prominence within local government could be under
is adhered to, is both an advantage and a
threat from Best Value. Unless the case for sport is
disadvantage. Whereas CCT was a prescriptive
reinforced there is a danger of reduced service levels
process, black and white, Best Value includes a number
that will affect local sports development.
of grey areas. It is in these areas that the intellectual
challenge of Best Value lies.
Best Value in its infancy
The advantage of this is that the process can be refined
Best Value will become a statutory requirement in April
to take into account particular local circumstances. This
2000. While the principles are becoming well known, the
is to be welcomed, as long as sport is advocated at a
detail will take a while to emerge. The case studies
high level within the authority and the community itself
highlight different approaches to addressing Best Value.
recognises the value of sport. The disadvantage is that
The wide range of approaches is partly due to the
less enlightened authorities could pay lip service to the
infancy of Best Value, and partly deliberate. The
process, at least until forced to apply it. In these
legislation was drafted to allow interpretation at a local
authorities, unless sport has a voice at a high level it
level. The temptation for many in sport may be to wait
could be marginalised. Given the value of sport, this
until further guidance is forthcoming, provided either by
would be detrimental to the local communities
central Government or by a corporate policy unit within
concerned.
40
Conclusions
Sport’s response to the challenge
Many of the case studies give cause for optimism. There
are a number of reasons why Best Value should be seen
as an opportunity rather than a threat. These can be
summarised as follows:
●
The contribution that sport makes to enhancing
quality of life, and the achievement of the new
social cross-cutting agenda, is undeniable.
Sport England’s The Value of Sport 3 presents
firm and tangible evidence to this effect, and
highlights the benefits offered by sport in many
areas including education, health and social
issues. Local authorities should use Best Value
thinking and the need to find innovative solutions in the
as a means of proving the positive links between
light of diminishing capital and revenue funding for local
sport and the new agenda and equally they
government. Sports managers have always believed
should use sport as a means of achieving
in the value of sport and this public service ethos has
corporate objectives.
often resulted in the targeting of services to less
advantaged groups. The needs of disadvantaged
●
Many sports managers are experienced in using
groups are now being examined with renewed vigour
the principles of Best Value, eg community
under Best Value and it is no coincidence that those
consultation, setting service standards,
existing initiatives now coincide with the new priorities
performance indicators, performance
for local government.
management, quality standards and providing
opportunities for competition. As long as this
A Best Value model?
does not lead to complacency, sport should
have a head start on other functions and service
Because Best Value is new and open to interpretation,
areas. But Best Value is not simply about
it is doubtful that any one authority will serve as an
repackaging existing approaches. It will require
example to all. This is as it should be since all authorities
a philosophical shift from a service-led
will demonstrate some unique characteristics. Many
approach to a collective and concerted
good examples exist in relation to certain components
approach to working in partnership towards
of Best Value or specific thematic objectives that others
common goals and themes.
can learn from and adapt to suit local circumstances.
The experience gained in this study illustrates that there
is no one model or ‘right’ approach, nor is there likely
A history of innovation
to be one.
As the case studies demonstrate, many sports
Challenge
managers have instigated initiatives that could be said
to represent ‘Best Value’. These were introduced before
Challenge requires a full justification for providing the
Best Value was formulated and are the result of creative
service in the first place. Those responsible for
41
Best Value through sport
delivering a service may not be the best people to
consultation and its value in ensuring that the service is
challenge why it is provided, although clearly they need
continuously improving.
to contribute to the process. As well as having a vested
interest in promoting the significance of the service, they
Compare
may over-emphasise its importance in relation to other
functions with which they are less familiar. An objective
A number of attempts have been made in the past to
and independent assessment will add rigour and reality
provide national measures of performance for sport and
to the ‘challenge’ process.
leisure, with differing degrees of success. The Audit
Commission’s national performance indicators cover all
local authority services and therefore only a few relate to
Consult
sport. These are necessarily superficial as benchmarks
Local authorities, in comparison with other providers of
of performance and they tell us very little about the
sports services, are well used to the concept of
effectiveness and efficiency of the service. CCT created
consultation, recognising the need to compete for
a culture of secrecy about information and Best Value
customers. This is in contrast to many local government
requires a change of mindset. The sharing of
services where the element of choice is much less
meaningful measures of performance will be a
marked. While most authorities are familiar with
beneficial outcome of Best Value. Ensuring that the
consultation and the methods and techniques used, in
almost infinite differences in facilities and services are
some cases the consultation is very narrowly focused,
taken into account will be a major challenge. The
eg limited to existing ‘users’ or customers, and therefore
creation of benchmarking clubs and national databases
of minimal value in the context of Best Value. A small but
will greatly assist comparisons of like with like.
growing number of authorities are developing public
consultation at the local level into a more radical system
Compete
of community empowerment with devolved decisionmaking, eg community management of recreation
Since many authorities are still operating under the
centres and parks. Whilst approaches to the ‘consult’
auspices of CCT, it is a little early to embrace the
process vary widely, a common concern is the difficulty
concept of competition in the context of Best Value.
of striking an appropriate balance between the cost of
The lack of real examples within the case studies is
42
Conclusions
• creating a ‘board’ including a small number of
indicative of this. In the main, examples relate to the
assessment of different methods of service delivery,
members, a ‘free-standing’ chief executive and a small
eg in-house versus externalisation. The removal of the
number of executive directors
artificial CCT client/contractor split will also be a positive
• a performance management system to ensure that
benefit of Best Value.
corporate strategy is ‘cascaded down’ to individual
service teams
Different approaches
• the emergence of cross-departmental/multi-agency
Authorities are at present being left to their own devices
project teams to address common service priorities
to interpret Best Value as they see fit. The pilot
authorities will be scrutinised and further guidance will
• the creation of citizens’ panels/forums to create
be forthcoming on the most appropriate approach. We
effective mechanisms for community consultation
anticipate that a degree of flexibility will be retained within
an overall advisory framework and some statutory
• an appreciation of the role that sport plays in the
elements. There will inevitably be a degree of convergence
attainment of cross-cutting objectives.
that is not yet apparent, as the case studies illustrate.
In view of the magnitude of the cultural change required
Common themes
to move towards Best Value and its ‘grey areas’, much
has been achieved within a short space of time. A
Most authorities investigated displayed a degree of
unanimity. Principally this related to the acceptance of
the new social agenda and the need to introduce a
number of initiatives to ensure effective delivery. Some
common threads include:
number of weaknesses need to be addressed, and
difficult and complex areas tackled. However, the
authorities investigated in this study illustrate that, by
taking a proactive and positive approach to the new
challenges ahead, sport will continue to play an
• a move to Cabinet-style governance
important part in the lives of many local communities
and will make a positive contribution to wider local
• restructuring political and organisational structures
authority objectives.
around corporate themes
43
Best Value through sport
appendices
APPENDIX 1
11 Cumbria County Council
25 London Borough of Newham*
12 Exeter City Council
26 Northamptonshire County
DETR Best Value pilot
authorities in England
*Denotes pilot authorities that
encompass sport within a Best
Council
13 Gosport Borough Council
Value remit
27 Oldham Metropolitan Borough
14 Great Yarmouth Borough
1 Birmingham City Council
Council
Council*
28 Portsmouth City Council*
2 Bradford Borough Council
15 Greater Manchester Police
29 Reading Borough Council*
3 Braintree District Council*
16 London Borough of Greenwich
4 Brighton and Hove Council*
17 London Borough of Harrow
5 Brighton and Hove Council,
18 Ipswich Borough Council
31 Southampton City Council
19 Leeds City Council*
32 South Norfolk District Council*
6 London Borough of Brent
20 London Borough of Lewisham*
33 Sunderland Borough Council*
7 Bristol City Council
21 Lincolnshire County Council*
34 Surrey County Council
8 London Borough of Camden*
22 Manchester City Council
35 Warwickshire County Council*
9 Carrick District Council
23 Newark and Sherwood District
36 Watford Borough Council*
30 Redcar and Cleveland Borough
Council
Tandridge District Council and
Wealden District Council
Council
10 Cleveland Police Authority
37 York City Council
24 Newcastle upon Tyne City Council
44
Appendices
APPENDIX 2
Best Value checklist of basic principles
Implementation
Principles
• Local accountability: putting people first
• Systematic and inclusive consultation services
focused on and involving service users
• Strong financial management
• Transparency in decision-making
• Evaluation of service delivery
• Posting of results
• Publishing service standards and objectives
• More frequent local elections.
• Cross-departmental/multi-agency approach
• Thematic as opposed to service-led approach
• Breaking down traditional barriers
• Cooperation between local agencies and partners
• Partnerships with the private sector, neighbouring
boroughs and voluntary sector organisations.
• Competitiveness
• Focusing on how well services are provided, not who
provides them
• Delivering value for money.
• Performance measurement
• National and local performance indicators
• Formulas for improvement.
• Performance management
• Setting targets and annual performance plans based
on corporate objectives
• Clear standards for cost and quality
• Regular review of priorities
• Cascade down of targets and PIs
• Service plans to achieve corporate objectives.
• Comparability
• Working to match the best authorities
• Benchmarking using standard PIs.
• Continuous improvement
• The use of quality management techniques
• Regular evaluation, measurement, review and
change
• Fundamental performance reviews.
• Vision and leadership
• Promoting innovation
• New political management and structures and
greater democracy
• New ethical framework/code of conduct.
45
Best Value through sport
APPENDIX 3
London Borough of Newham Best Value Toolkit
1
REVIEW OF CURRENT SERVICES
1.1
Purpose of service
1.1.1
Strategic purpose
1.1.2
Objectives
1.1.3
Outcomes
1.1.4
Needs, challenges or improvement in social conditions to be addressed by the service
1.2
Description
1.2.1
Activities undertaken
1.2.2
Target groups
1.2.3
Resources
1.2.3.1
People
1.2.3.1.1
Internal
1.2.3.1.2
(i) Total establishment FTE posts
......
(ii) Total establishment vacancy factor
......
%
Total funded FTE posts as at 1/1/98
......
ie (i) minus (ii)
Total no FTE in post as at 1/1/98
......
Total direct employee costs budget 1998/99
£. . . . .
Agency staff budget 1998/99
£. . . . .
Overtime
£. . . . .
Other direct employee costs
£. . . . .
Total employee budget 1998/99
£. . . . .
Average direct employee cost
£. . . . .
External
46
Appendices
1.2.3.2
Money
a)
£000
Employees
b) Premises
c)
Transport
d) Suppliers and services
e)
Bought-in services
f)
Grants
g) Corporate support costs
h)
Departmental support costs
i)
Capital charges
j)
Trading account income
k)
Income
l)
Net total
1.2.3.3
Assets
1.2.3.3.1
Buildings
Address
Service outlet
Yes/No
1.2.3.3.2
Other assets
1.2.3.4
Planned investment
1.2.3.4.1
Revenue growth
1.2.3.4.2
Capital
1.2.4
Unit costs
1.2.5.
Performance indicators
1.2.5.1
Internal (Audit Commission PIs and activity data)
1.2.5.2
Public user perception data (market research)
47
Status
Best Value through sport
APPENDIX 3 (cont)
2
ANALYSIS OF SERVICE
2.1
SWOT analysis
2.2
Council/departmental context
2.2.1
Delivering the vision
2.2.2
Delivering the departmental strategy and annual plan
2.2.3
Horizontal benefits and linkages
3
CONSULTATION
3.1
Customer and community satisfaction
3.2
Customer-proposed improvements
3.3
Employee consultation
4
INITIAL TARGETS
4.1
Performance quality improvements
Current baseline performance indicator
Proposed improvement indicator
4.2
Cost reduction target
4.3
Community perception improvements
Current baseline performance indicator
Proposed improvement indicator
4.4
User perception improvements
Current baseline performance indicator
Proposed improvement indicator
48
Appendices
5
ALTERNATIVE SUPPLIERS/PARTNERS
5.1
Account of contacts
5.2
Appraisal of alternatives
6
STRATEGIC REVIEW OF SERVICES – DECISION MATRIX
6.1
Quality/price balance
6.2
Nature of service specification
6.3
Performance track record – success in meeting specification
6.4
Supplier capability/quality
6.5
Supplier marketplace/degree of competition
6.6
Capital needs
6.7
Local economic benefits
6.8
Control of service
6.9
Materiality help
6.10
Community impact
6.11
Public interest
Attach any notes necessary to the decision matrix as brief appendix.
Factor
Factor score
Factor weighting
Overall score
Help note
Performance/risk axis 1 to 3
Quality/price balance
4
6.1
Nature of service specification
1
6.2
Performance track record
3
6.3
Supplier quality
2
6.4
Supplier marketplace
1
6.5
Expected capital needs
1
6.6
Total performance/risk factors
12
Factor
Factor score
Factor weighting
Overall score
Help note
Importance/community
impact axis 1 to 3
Local economic benefits
1
6.7
Control of service
3
6.8
Budget materiality
1
6.9
Community impact
3
6.10
Public interest
1
6.11
Total community impact axis
9
49
Best Value through sport
APPENDIX 3 (cont)
7
ASSESSMENT OF WORK PROCESSES
7.1
Process improvement priorities
7.2
Quality management models
8
DELIVERY PLAN
8.1
Summary of findings
8.2
Process improvement options
8.3
Supply options
8.4
Impact on service provision of options
8.5
Social and economic impact of options
8.6
Recommended way forward
8.6.1
Supply option
8.6.2
Process option
8.6.3
Risk assessment
8.6.4
Risk reduction
8.6.5
Investment needs
8.7
Implementing change – Programme plan
50
Appendices
APPENDIX 4
Lincolnshire County Council Cultural Services Best Value Proforma
CORPORATE FRAMEWORK
QUESTION
ANSWER
ANSWER
Yes:
No:
Example
Action required
Explanation
Further action
1. POLICY
To demonstrate BV, our Branch must
1.1 Do we have a plan/policy?
have a written policy for the provision
of its services, which is effectively
communicated to our communities.
2. PLANS
To demonstrate BV, we must have
2.1 Do we know where we want to
published strategies outlining:
be and what we want to achieve
• our services and how we are going
within the next 3-5 years?
to work with others
• the procedure for routine updating,
reviewing and checking progress
of our plans.
3. CONSULTATION
To demonstrate BV, we must have:
• undertaken research on the views
of communities
3.1 Have we consulted/agreed with
our local communities about our
plans?
• monitored, collated and responded
to comments from users through a
formal system
• assessed the demand for our
services and canvassed the views
of Government agencies.
51
Best Value through sport
APPENDIX 4 (cont)
Subheading
CORPORATE FRAMEWORK
QUESTION
Body text. (various subnote figures to be in superscript
like this: 15 )
Yes:
No:
Example
Action required
Further action
where applicable and treat like this’.16
4. STANDARDS
● Bullet point text replace this ‘∑‘ with an ‘l‘
To demonstrate our services in
4.1 Do we regularly review and
followed by a tab and apply style - Bullet point
performance terms of:
improve our methodology,
(dingbat ‘l‘)
• unit costs of service provision
eg performance indicators?
• meeting customer needs/
ANSWER
Explanation
Various bits in text to be in italics ‘follow hard copy
• service outcomes
“Quotation in text.”
• training and qualifications of staff
(Tony Banks, Minister for Sport)2
• quality assurance techniques
ANSWER
Staff development.
4.2 Are we aware of national
trends?
satisfaction.
4.3 Can we identify other providers
and how do we compare
ourselves to them?
4.4 Do we compare ourselves to
examples of best practice?
4.5 Do we maintain adequate
records to facilitate the
implementation of a measurable
improvement process?
4.6 How do we know if our local
communities believe that our
services offer BV?
5. EXPERIMENT
To demonstrate innovative and
original approaches to service
delivery.
6. VALIDATION
External review.
52
Appendices
APPENDIX 5
Best Value Case studies contact list
Mr Stephen Hassall
Mr Mark Sesnan
Mr Chris Hill/Mark Allman
Bolton Metropolitan
Greenwich Leisure Limited
Leisure Services Department
Borough Council
The Royal Arsenal
City of Leeds Council
Bolton Institute
Woolwich
Town Hall
Deane Road
London
Headrow
Bolton
SE18 6ST
Leeds
BL3 5AB
Tel: 020 8317 5000 ext 4100
LS1 3AD
Tel: 01204 900106
Tel: 0113 247 7958
Mr Tony Davies
Mr Ashley Bartlett/Richard Heard
Head of Leisure Services
Mr Bruce Kelsey
Braintree District Council
Huntingdonshire District Council
Sports Development Manager
Causeway House
Pathfinder House
Lincolnshire County Council
Braintree
St Mary’s Street
County Offices
Essex
Huntingdon
Newland
CM7 9HB
PE18 6TN
Lincoln
Tel: 01376 552525
Tel: 01480 388388
LN1 1YL
Tel: 01522 552836
Mr Mike Osborne
Mr Chris Hespe
Chief Recreation Officer
Director of Sports Development
Mr Robert Downham
Community Services Department
Kent County Council
Sports Development Officer
Epsom and Ewell Borough Council
123 High Street
Libraries and Leisure Services
Town Hall
West Malling
Department of Environmental Services
The Parade
Kent
London Borough of Lambeth
Epsom
ME19 6ND
1st Floor, Mary Seacole House
KT18 5BY
Tel: 01732 871791
91 Clapham High Street
London
Tel: 01372 732460
Mr David Morby
SW4 7TF
Mrs Marie Hartley
Kirklees Metropolitan
Tel: 020 7926 0759
Leisure Services Officer
Borough Council
Great Yarmouth Borough Council
Leisure and Recreation Services
Mr John Wood
Engineering and Community
The Stadium Business and
Divisional Director
Services
Leisure Complex
London Borough of Newham
Town Hall
Stadium Way
292 Barking Road
Great Yarmouth
Huddersfield
London
NR30 2QH
HD1 6PG
E6 3BA
Tel: 01493 846354
Tel: 01484 234000
Tel: 020 8557 8691
53
Best Value through sport
Mr Steve Town
Ms Alison Cameron
Dr Anthony Goodwin
Manager of Community Services
Community and Leisure Manager
Leisure and Amenities
North West Leicestershire
South Somerset District Council
Service Manager
District Council
Churchfield
Tamworth Borough Council
Coalville
Wincanton
Marmion House
Leicestershire
Somerset
Lichfield Street
LE67 3FJ
BA9 9AG
Tamworth
Tel: 01530 454545
Tel: 01963 435033
Staffordshire
B79 7BZ
Mr David Albutt
Ms Irene Lucas
Leisure and Community Services
Director of Contracting Services
Norwich City Council
Sunderland City Council
Mr Chris Hope
Gladstone House
Jack Crawford House
Leisure Manager
28 St Giles Street
Commercial Road
Department of Leisure and
Norwich
Sunderland
NR2 1TQ
SR2 8QR
Tel: 01603 212100
Tel: 0191 553 7556
Mr Peter Lane/Keith Scott
Mr David Evans
Redcar and Cleveland
Director of Leisure
Borough Council
Quotation
from or by...
The City and County of Swansea
Tel: 01923 776611
Redcar and Cleveland House
The Guildhall
Kirkleatham Street
Swansea
Mr Mick Hutchinson
Redcar
SA1 4PE
Leisure Services Directorate
TS10 1XX
Tel: 01792 635401
City of York Council
Tel: 01827 709315
Tel: 01642 444316
Environment
‘Quotation
xxxxxx
Three Rivers District Council
xxxxx
Northway
Rickmansworth
xxxx.’
Hertfordshire
WD3 1RL
18 Back Swinegate
Mr Rob Whitehouse
Swinegate Court
Ms Tina Dyer-Slade
Recreation Services
York
Leisure Officer
Swindon Borough Council
YO1 8ZD
Leisure and Cleansing
Premier House
Tel: 01904 553381
Management
Station Road
Southampton City Council
Swindon
Civic Centre
SN1 1TZ
Southampton
Tel: 01793 466460
SO14 7LP
Tel: 02380 832901
54
Appendices
APPENDIX 6
References and further reading
1 DEPARTMENT of the ENVIRONMENT, TRANSPORT
11 LOCAL GOVERNMENT ASSOCIATION, Enriching
and the REGIONS, Modern Local Government, In
People’s Lives - An Advocacy Paper for Leisure and
the social value
of sport
Touch with the People, CM 4014, London: Stationery
Tourism, London: Local Government Association;
Office; 1999, ISBN 010-140142-6
1998, ISBN 1-84048-029-2
2The Local Government Act, London Stationery Office;
1999, ISBN 010-542799-3
12 ENGLISH SPORTS COUNCIL, The Use and
Management of Sports Halls and Swimming Pools in
England, London: English Sports Council; 1997
3 SPORT ENGLAND, The Value of Sport, London: Sport
(unpublished)
England; 1999
13 SPORT ENGLAND, Investing for our Sporting Future,
4 DEPARTMENT FOR CULTURE, MEDIA and SPORT,
Sport England Lottery Fund strategy 1999 - 2009,
Subheading
London:
Sport england;
Body
text. (various
subnote1999
figures to be in superscript
Local Cultural Strategies – Draft Guidance for Local
Authorities in England, London: DCMS; 1999
like this: 15 )
14 LOCAL GOVERNMENT ASSOCIATION, The Road to
5 SPORTS COUNCIL, Model Survey Package -
Regeneration
Advocacy
Leisure
Various
bits in text- An
to be
in italicsPaper
‘followfor
hard
copy and
16
Tourism,
London:
Local
Association;
where
applicable
and
treatGovernment
like this’.
Measuring Sports Participation, London: Sports
Council; 1995 ISBN 1-86078-000-8
1999, ISBN 1-84049-0977
Bullet point text replace this ‘∑‘ with an ‘l‘
15 SANDERSON,
Iain,
Achieving
Best
Value point
through
followed by a tab
and
apply style
- Bullet
●
6 SPORT ENGLAND, Quest: UK Quality Scheme for
Sport and Leisure, Manager’s Guidance Pack,
Performance
(dingbat ‘l‘) Review, Warwick/DETR Best Value
Series Paper No 5, London: DETR; 1998
London: Sport England; 1999, ISBN 1-86078-050-4
“Quotation in text.”
2
16
LOCAL
GOVERNMENT
ASSOCIATION,
Current
(Tony
Banks,
Minister for Sport)
7 HOUSE OF COMMONS, The Local Government Bill,
London: Stationery Office; 1998, ISBN 010-300599-4
Developments and Future Changes, London: Local
Government Association; 1999
8 AUDIT COMMISSION, Preparing for Best Value,
London: Audit Commission; 1998, ISBN 1-86240-129-2
17 MARTIN, Steve, Achieving Best Value through Public
Engagement, Warwick/DETR Best Value Series Paper
9 AUDIT COMMISSION, Developing Principles for
No 8, London: DETR; 1998
Public Inspection - A Consultation Document, London:
Audit Commission; 1999
10 AUDIT COMMISSION, From Principles to Practice – A
Consultation Document, London: Audit Commission;
1999
55
Best Value through sport
addresses
Sport England
East Midlands
North West
South West
16 Upper Woburn Place
Grove House
Astley House
Ashlands House
London WC1H 0QP
Bridgford Road
Quay Street
Ashlands
Tel: 0207 273 1500
West Bridgford
Manchester M3 4AE
Crewkerne
Fax: 0207 383 5740
Nottingham NG2 6AP
Tel: 0161 834 0338
Somerset TA18 7LQ
www.english.sports.gov.uk
Tel: 0115 982 1887
Fax: 0161 835 3678
Tel: 01460 73491
Fax: 0115 945 5236
Fax: 01460 77263
South
National Lottery Helpline
Greater London
51A Church Street
West Midlands
PO Box 480
Caversham
1 Hagley Road
Publications Despatch
Crystal Palace National
Reading
Five Ways
PO Box 255
Sports Centre
Berks RG4 8AX
Birmingham B16 8TT
Wetherby LS23 7LZ
London SE19 2BQ
Tel: 0118 948 3311
Tel: 0121 456 3444
Tel: 0990 210255
Tel: 020 8778 8600
Fax: 0118 947 5935
Fax: 0121 456 1583
Fax: 0990 210266
Fax: 020 8676 9812
South East
Yorkshire
PO Box 480
Coronet House
Tel: 0345 649649
Minicom: 020 8676 0821
Regional offices
East
North
Crystal Palace National
Queen Street
Crescent House
Aykley Heads
Sports Centre
Leeds LS1 4PW
19 The Crescent
Durham DH1 5UU
London SE19 2BQ
Tel: 0113 243 6443
Bedford MK40 2QP
Tel: 0191 384 9595
Tel: 020 8778 8600
Fax: 0113 242 2189
Tel: 01234 345222
Fax: 0191 384 5807
Fax: 020 8676 9812
Minicom: 020 8676 0821
Fax: 01234 359046
56
This publication is part of a Tool Kit
Sport England aims to lead the
© Sport England October 1999
of information, guidance and
development of sport in England by
SE/929/4M/10/99
services that Sport England is
influencing and serving the public,
developing to assist local
private and voluntary sectors. Our
Designed by Wylie Design, London
authorities to deliver Best Value
aims are:
Printed in England by Ancient
through sport. The Tool Kit is being
House Press
developed in consultation with key
●
more people involved in sport
Photography by Caroline Alexander
national organisations and
●
more places to play sport
Alan Edwards, Charlie Fawell,
individual local authorities. More
●
more medals through higher
Tony Henshaw, Richard Sowersby,
information on the Tool Kit can be
standards of performance in
Oli Tennent and John Walmsley.
obtained by contacting Sport
sport.
England headquarters or any of the
Sport England regional offices.
Sport England’s work on Best Value
through sport underpins and is in
This report will also be made
support of its Active Communities
available on our website. You may
programme.
wish to use sections of this
document when, for example,
Sport England is the brand name of
giving presentations or preparing
the English Sports Council which is
council papers. The information can
the distributor of Lottery funds to
be provided for the stated use
sport.
provided that the source is
acknowledged. Please state
‘Reproduced with the permission of
Sport England’.
www.english.sports.gov.uk
Ref no
58 929