PLAYING FIELDS POLICY AND GUIDANCE
PLAYING FIELDSPOLICY AND GUIDANCESport England’s policy and associated guidanceon planning applications affecting playing fieldsSport England: Guide to ResearchMARCH 2018
VERSION HISTORYVersionPublicationDateDocumentTitleKey changes from the previous versionand updates since publication1July 1997Planning PolicyStatement: A SportingFuture for the PlayingFields of EnglandKey changesOriginal versionUpdates since publication2009: Amendment made to reflect the changein the Government’s definition of the size of apitch from 0.4ha to 0.2ha.2012: New Sport England contact details added.2March 2018Playing Fields Policyand GuidanceKey changesSee key changes document atwww.sportengland.org/playingfieldspolicyUpdates since publicationNone to date.Playing Fields Policy and Guidance
CONTENTSTHE PLAYING FIELDS POLICY4PLAYING FIELDS POLICY GUIDANCE5SECTION 1 - INTRODUCTION & THE REQUIREMENT TO CONSULT SPORT ENGLAND5SECTION 2 - GOVERNMENT STRATEGY, POLICY & GUIDANCE8SECTION 3 - SPORT ENGLAND’S PLANNING AIM AND OBJECTIVES10SECTION 4 - CONSULTING SPORT ENGLAND12SECTION 5 - HOW SPORT ENGLAND RESPONDS13SECTION 6 - APPLYING THE POLICY & THE FIVE EXCEPTIONS13SECTION 6.1 - EXCEPTION 115SECTION 6.2 - EXCEPTION 217SECTION 6.3 - EXCEPTION 318SECTION 6.4 - EXCEPTION 419SECTION 6.5 - EXCEPTION 523SECTION 6.6 - OBJECTION25ANNEX A - KEY DOCUMENTS & RESOURCES26ANNEX B - INFORMATION REQUIREMENTS28ANNEX C - CONTACT DETAILS303
THE PLAYING FIELDSPOLICYSport England will oppose thegranting of planning permission for anydevelopment which would lead to theloss of, or would prejudice the use of: all or any part of a playing field, or land which has been used asa playing field and remainsundeveloped, or land allocated for use as a playing fieldunless, in the judgement of Sport England,the development as a whole meets withone or more of five specific exceptions.THE FIVE EXCEPTIONSException 3The proposed development affects only landincapable of forming part of a playing pitchand does not: reduce the size of any playing pitch; result in the inability to use any playing pitch(including the maintenance of adequatesafety margins and run-off areas); reduce the sporting capacity of the playingfield to accommodate playing pitchesor the capability to rotate or repositionplaying pitches to maintain their quality; result in the loss of other sportingprovision or ancillary facilities on the site;or prejudice the use of any remaining areasof playing field on the site.Exception 1Exception 4A robust and up-to-date assessment hasdemonstrated, to the satisfaction of SportEngland, that there is an excess of playingfield provision in the catchment, which willremain the case should the developmentbe permitted, and the site has no specialsignificance to the interests of sport.The area of playing field to be lost as aresult of the proposed development will bereplaced, prior to the commencement ofdevelopment, by a new area of playing field: of equivalent or better quality, and of equivalent or greater quantity, and in a suitable location, and subject to equivalent or better accessibilityand management arrangements.Exception 2The proposed development is for ancillaryfacilities supporting the principal use of thesite as a playing field, and does not affectthe quantity or quality of playing pitches orotherwise adversely affect their use.Playing Fields Policy and GuidanceException 5The proposed development is for an indooror outdoor facility for sport, the provision ofwhich would be of sufficient benefit to thedevelopment of sport as to outweigh thedetriment caused by the loss, or prejudice tothe use, of the area of playing field.
PLAYING FIELDSPOLICY GUIDANCESECTION 1INTRODUCTION & THE REQUIREMENTTO CONSULT SPORT ENGLANDWhy does Sport England have a PlayingFields Policy?1. Local planning authorities are required bylaw to consult Sport England (the brandname for the English Sports Council) whenthey receive planning applications fordevelopment affecting playing fields. SportEngland has a Playing Fields Policy in placeto help it assess such applications.Why does Sport England provide guidancealongside its Playing Fields Policy?2. The guidance seeks to provide clarity andadvice to external parties on how SportEngland assesses planning applicationsaffecting playing fields. It provides detail onhow Sport England applies its Playing FieldsPolicy and the five exceptions, along withpresenting definitions of key terms and howSport England interprets them. The guidancealso highlights the relationship between thePlaying Fields Policy, Government strategy,policy and guidance, and Sport England’swider strategy and aims and objectives inthe planning system.Why must Sport England be consulted onplanning applications affecting playing fields?3. Playing fields are one of the most importantresources for sport in England. They providethe space for team sports on outdoor pitchesand form part of a network of open spacesand wider green infrastructure in an area. It wasdue to growing concerns over the loss ofplaying fields in the 1980s and 1990s that ledthe Government to introduce the requirementto consult Sport England in 1996. Therequirement has remained in place eversince and the Government’s 2015 sportsstrategy, Sporting Future: A New Strategyfor an Active Nation, confirms that SportEngland will retain this statutory planningrole. Playing fields today remain vulnerableto a range of development pressures.By being consulted on relevant planningapplications and implementing its PlayingFields Policy, Sport England seeks to protectplaying fields from development unless anapplication meets with one or more of fivespecific exceptions. The Government alsoadvises local planning authorities to consultSport England on a range of other sportrelated applications and large scale housingdevelopments (see paragraph 36).5
What playing field-related planningapplications are local planning authoritiesrequired to consult Sport England on?4. The Town and Country Planning (DevelopmentManagement Procedure) (England) Order2015 (“the 2015 Order”) states that alocal planning authority shall consult SportEngland on “development which:(i) is likely to prejudice the use, or lead tothe loss of use, of land being used as aplaying field; or(ii) is on land which has been—(a) used as a playing field at any time inthe five years before the making ofthe relevant application and whichremains undeveloped; or(b) allocated for use as a playing field ina development plan or in proposalsfor such a plan or its alteration orreplacement; or(iii) involves the replacement of the grasssurface of a playing pitch on a playingfield with an artificial, man-made orcomposite surface.”Note: Sport England has underlined key termswithin the text of the Order. Definitions for thekey terms, along with other relevant termsunderlined in the definitions, and how SportEngland interprets them are provided in thefollowing paragraphs 5 to 16.What is a ‘playing field’?5. The 2015 Order defines a playing field as‘the whole of a site which encompasses atleast one playing pitch’.6. This definition is also provided within theglossary to the Government’s National PlanningPolicy Framework. The definition refers tothe whole of a site and therefore does notjust cover land which is currently laid outas pitches. It also does not differentiatebetween different types of ownership e.g.public, private or educational ownership.Playing Fields Policy and GuidanceWhat is a ‘playing pitch’?7. The 2015 Order defines a playing pitch as‘a delineated area which, together with anyrun-off area, is of 0.2 hectares or more,and which is used for association football,American football, rugby, cricket, hockey,lacrosse, rounders, baseball, softball,Australian football, Gaelic football, shinty,hurling, polo or cycle polo.’8. The definition of a playing pitch was amendedby the Government in 2009 to reduce thepitch size included to 0.2ha from the 0.4hawhich had been included since 1996. Thisextended the protection afforded to playingfields by recognising the importance ofsmaller pitches and sites to the developmentof sport for younger age groups. 9. A playing pitch may have a natural or artificialsurface. While other sports facilities, such astennis courts and bowling greens, are notincluded in the definition of a playing pitch,Sport England considers that they will beincluded in an area defined as a playing fieldif, in physical or functional terms, they formpart of an overall playing field site. Evenwhere wider sports facilities fall outside thedefinition of a playing field, they are affordedprotection through the planning systemunder the provisions of paragraph 74 ofthe Government’s National Planning PolicyFramework (see paragraph 17).What is ‘a delineated area’?10. The 2015 Order does not provide a definition.Sport England considers the term to meanany marked out area of 0.2 hectares or more(including recommended run-off areas) forthe use of any of the sports listed in thedefinition of a playing pitch.11. Along with painted lines, an area may bemarked out, and therefore delineated,by other means such as cones, ropes orthe existence of a pair of permanent ortemporary goalposts. An appropriate outfieldshould be included in this area where it may
not be formally marked out but is required tosupport the use of a pitch, e.g. the outfieldfor a rounders pitch.What is meant by ‘prejudice the use’?12. The 2015 Order does not provide adefinition. Sport England considers theterm to mean any development which willadversely affect the use of any part of aplaying field and any of its playing pitches.This may include development on the siteitself or on adjacent or nearby land.13. If a local planning authority is in any doubtas to whether a proposed development willprejudice the use of any part of a playingfield it should consult Sport England. Thiswill allow Sport England, in discussionwith the relevant sport’s national governingbodies, to take an informed view of thepotential impact of the proposal. Examplesof development which is likely to prejudicethe use of a playing field include: development directly on the playing field; development affecting ancillary provisionon a playing field such as changing rooms; structures on a playing field or on nearbyland which may affect the use of part ofthe playing field, such as light or shadowflicker from wind turbines; development in close proximity tothe boundary of a playing field whichmay hinder the use of any playingpitch (including recommended run-offareas), such as residential developmentadjacent to a cricket pitch or to anartificial grass pitch which benefits fromoutdoor sports lighting; development on a nearby site affectingaccess to a playing field such as the lossof an access route;What is meant by ‘land which has beenused as a playing field’?14. The 2015 Order does not provide a definition.Sport England considers the term to meanland which is not currently, but has been usedas a playing field and remains undeveloped,including land where a decision may have beentaken to no longer mark out any playingpitch or pitches.15. A lack of use of a playing field, or part of,should not be taken as necessarily indicatingan absence of need in an area. Such landcan retain the potential to provide playingpitches to meet current or future needs. Inline with the requirements of the 2015 Order,if such land was used as a playing field atany time in the five years before the makingof a relevant planning application, then SportEngland should be consulted as a statutoryconsultee. If its use as a playing field wasover five years ago, Sport England wouldstill expect to be consulted, albeit as a nonstatutory consultee. In such circumstances,Sport England would continue to apply itsPlaying Fields Policy. The five-year referencein the 2015 Order only relates to the timescalefor which Sport England should be consultedas a statutory consultee and therefore towhich applications the Town and CountryPlanning (Consultation) (England) Direction2009 (“the 2009 Direction”) may apply (seeSection 6.6).What is meant by ‘land which has beenallocated as a playing field’?16. The 2015 Order does not provide a definition.Sport England considers the term to meanany non-playing field land that is set aside forfuture use as a playing field in a developmentplan or its alteration or replacement. development affecting off-site facilitieswhich support the use of the playing field,e.g. off-site changing or parking facilities.7
SECTION 2GOVERNMENT STRATEGY,POLICY & GUIDANCEWhat protection are playing fieldsafforded by the Government’s planningpolicy and guidance?17. The Government’s National Planning PolicyFramework is clear that playing fields shouldbe protected unless one of three criteria aremet. Paragraph 74 of the Framework states:‘Existing open space, sports and recreationalbuildings and land, including playing fields,should not be built on unless: an assessment has been undertakenwhich has clearly shown the openspace, buildings or land to be surplusto requirements; or the loss resulting from the proposeddevelopment would be replaced byequivalent or better provision in termsof quantity and quality in a suitablelocation; or the development is for alternative sportsand recreational provision, the needs forwhich clearly outweigh the loss.’18. The ‘Consultation and pre-decision matters’section of the Government’s accompanyingPlanning Practice Guidance presents SportEngland’s role as a statutory consultee onplanning applications affecting playing fieldsand refers to the 2015 Order.19. The protection afforded to playing fields bythe Government by way of paragraph 74 ofthe Framework falls within section 8 of theFramework which: promotes the important role of theplanning system in facilitating socialinteraction and creating healthy, inclusivecommunities (paragraph 69); highlights that to deliver the social,recreational and cultural facilitiesand services the community needs,planning policies and decisions shouldplan positively for the provision anduse of community facilities such assports venues, and guard against theunnecessary loss of valued facilities andservices (paragraph 70); and recognises that access to high qualityopen spaces and opportunities for sportand recreation can make an importantcontribution to the health and wellbeingof communities (paragraph 73).20. The Framework also indicates, as one of the12 core planning principles, that planningshould take account of and support localstrategies to improve health, social andcultural wellbeing for all, and deliver sufficientcommunity and cultural facilities and servicesto meet local needs.Playing Fields Policy and Guidance
How does Sport England’s Playing FieldsPolicy relate to paragraph 74 of theNational Planning Policy Framework?What does the Government’s sportsstrategy say about the protection ofplaying fields?21. The Playing Fields Policy is in line with theGovernment’s commitment to the protectionof playing fields set out in paragraphs 73and 74 of the Framework. Sport Englandconsiders that its policy and supportingguidance provides helpful clarificationand additional guidance to assist all withassessing planning applications affectingplaying fields. Exceptions 1, 4 and 5 toSport England’s Playing Fields Policy relateto the three criteria within paragraph 74 ofthe Framework. Exceptions 2 and 3 provideadditional reasons why Sport England, inits response to a local planning authorityon a planning application, may not raise anobjection to a proposed development. Priorto the National Planning Policy Framework,Sport England’s Playing Fields Policy andthe exceptions were enshrined into theGovernment’s Planning Policy GuidanceNote 17: Planning for Open Space, Sportand Recreation.22. The Government’s sports strategy SportingFuture: A New Strategy for an Active Nationhighlights on page 59 the protection affordedby paragraph 74 of the National PlanningPolicy Framework. The strategy on page61 also states that ‘playing fields are a vitalpart of sporting infrastructure up and downthe country and will always remain so’, andthat ‘Sport England will retain their statutoryplanning role in respect of the protection ofplaying fields from development’.9
SECTION 3SPORT ENGLAND’S PLANNINGAIM AND OBJECTIVESWhat does Sport England seek toachieve through its engagement in theplanning system?23. Building on its strategy Towards an ActiveNation, Sport England’s aim in working withthe planning system is to help provide placesthat maximise opportunities for sport andphysical activity for all, enabling the alreadyactive to be more so and the inactive tobecome active.This aim is supported by three objectives: To protect the right opportunities Protectin the right places. To enhance opportunities throughEnhance better use of existing provision. To provide new opportunities toProvidemeet the needs of current andfuture generations.Further detail on Sport England’s planningaim and objectives is available within its widerPlanning for Sport Guidance – see Annex A.How does Sport England work with theplanning system to achieve its aim andthe objectives?24. Sport England works to achieve its aim andobjectives by engaging with both the forwardplanning and development managementaspects of the planning system. Thisengagement includes helping to shapenational and local planning policy, along withthe design and masterplanning of large scaledevelopments, and responding to planningapplication consultations. Sport EnglandPlaying Fields Policy and Guidancealso helps local authorities to understandthe needs of people in their area for sportingprovision, develop appropriate strategiesto meet the needs (e.g. playing pitch andbuilt facility strategies) and secure developercontributions to meet the demand generatedby new development (by way of provisionand/or financial contributions).25. Sport England also acts more generallyas an advocate and voice for sport andphysical activity in the planning system,engaging with a range of parties includingGovernment, local authorities, nationalgoverning bodies of sport, developers,planning and leisure consultancies, alongwith professional and representative bodies.26. To support its work, and that of othersin the planning system, Sport Englandprovides guidance and tools on a numberof areas from the development of planningpolicy, assessing the need for provision,and the design and masterplanning of newdevelopment, through to model planningconditions, template community useagreements and facility design and costadvice (see Annex A).What role does Sport England’s PlayingFields Policy play in meeting its aim andthe objectives?27. Development that would lead to the loss ofall or part of a playing field, or that wouldprejudice its use, should not normally bepermitted because it would permanentlyreduce the opportunities for people to takepart in sport and be active. Governmentand Sport England recognise the widerimportance of sport and physical activity tothe health, social and economic wellbeingof society. Sport England’s Playing FieldsPolicy therefore seeks to safeguard theinterests of sport and this will informits assessment of any related planningapplication. The Playing Fields Policy isparticularly focused on protecting andimproving the opportunities playing fieldsprovide for the playing of pitch-based
sports. This focus is due to the definition of aplaying field being focused on the presenceof a playing pitch, and the vital role playingfields play in maintaining and increasingparticipation in pitch based sports.28. Sport England recognises and welcomes thewider role playing fields perform in providingopportunities for people to play a variety ofsports and be active. As set out in paragraphs23 to 26, Sport England’s overall engagementin the planning system aims to enable thealready active to be more so and the inactiveto become active.
and which is used for association football, American football, rugby, cricket, hockey, lacrosse, rounders, baseball, softball, Australian football, Gaelic football, shinty, hurling, polo or cycle polo.’ 8. The definition of a
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