IRISH SPORTS COUNCIL VALUE FOR MONEY AND POLICY REVIEW

IRISH SPORTS COUNCIL 2000-2006 VALUE FOR MONEY AND POLICY REVIEW 2008

Table of Contents Glossary of Abbreviations List of Tables, Graphs and Figures Executive Summary...i Chapter 1 - Introduction...1 1.1 Background to the Value for Money and Policy Review Initiative...1 1.2 Terms of Reference...2 1.3 Methodology...3 1.4 Structure of the Review...4 Chapter 2 - ISC objectives and assessment of validity...6 2.1 Introduction...6 2.2 Background...6 2.3 Government Policy on Sport...7 2.3.1 Department of Arts, Sport and Tourism's high-level goal for sport...8 2.3.2 2002 to 2007 Programme for Government...9 2.3.3 Towards 2016, the Social Partnership Agreement for 2005 to 2016...9 2.3.4 2007 to 2012 Programme for Government...10 2.4 Objectives of the ISC...11 2.4.1 Statutory functions...11 2.4.2 ISC Strategy Statements...12 2.4.3 Objectives...15 2.5 Current validity of ISC objectives...15 2.6 Key finding...16 2.7 Recommendation...16 Chapter 3 Inputs...17 3.1 Introduction...17 3.2 ISC income and expenditure...17 3.3 ISC staffing levels...19 3.4 Department administrative costs...19 3.5 Key findings...20 Chapter 4 - Improve High Performance (Objective 1)...21 4.1 Introduction...21 4.2 Overview of the Irish high performance structure...22 4.3 Outputs...24 4.4 Outcomes...38 4.5 Key findings...43 Chapter 5 - Increasing participation in recreational sport (Objective 2)...44 5.1 Introduction...44 5.2 Outputs...45 5.3 Outcomes...58 5.4 Key findings...65 5.5 Recommendation...66

Chapter 6 Implement standards of good conduct and fair play (Objective 3)...67 6.1 Introduction...67 6.2 Outputs...67 6.3 Outcomes...71 6.4 Key findings...72 Chapter 7 - Implement appropriate anti-doping measures (Objective 4)...73 7.1 Introduction...73 7.2 Background to the Irish anti-doping programme...73 7.3 Outputs...73 7.4 Outcomes...84 7.5 Key findings...84 Chapter 8 - Facilitate Research (Objective 5)...87 8.1 Introduction...87 8.2 Outputs...87 8.3 Outcomes...95 8.4 Key findings...96 Chapter 9 - International Comparison...97 9.1 Introduction...97 9.2 UK (Scotland and Wales)...97 9.2.1 Scotland...98 9.2.2 Wales...100 9.3 Finland...104 9.4 New Zealand...108 9.5 Lessons from International Case Studies...112 9.6 Key findings...113 9.7 Recommendation...113 Chapter 10 - ISC's relationship with stakeholders...114 10.1 Introduction...114 10.2 Department of Arts, Sport and Tourism...114 10.3 National Governing Bodies/Local Sports Partnerships...115 10.4 High performance stakeholders...115 10.5 Other stakeholders...117 10.5.1 Department of Health and Children...117 10.5.2 Department of Education and Science...118 10.5.3 Department of Community, Rural and Gaeltacht Affairs...119 10.5.4 Sports Council for Northern Ireland...120 10.6 Key findings...122 10.7 Recommendations...122 Chapter 11 - Effectiveness and Efficiency...124 11.1 Introduction...124 11.2 Effectiveness...124 11.2.1 Objective 1 Improve high performance standards...124 11.2.2 Objective 2 Increasing participation in recreational sport...129

11.2.3 Objective 3 - Implement standards of good conduct and fair play... 130 11.2.4 Objective 4 - Implement appropriate anti-doping measures...130 11.2.5 Objective 5 - Facilitate research...130 11.3 Efficiency...135 11.3.1 Administrative efficiency...135 11.3.2 Efficiency of Outputs/Outcomes...137 11.4 Impact...141 11.5 Alternative Policy...142 11.6 Decentralisation...144 11.7 Key findings...144 11.8 Recommendations...145 Chapter 12 - Potential Future Performance Indicators...146 12.1 Introduction...146 12.2 Existing Performance Indicators...146 12.3 Key findings and potential future performance indicators...149 12.4 Recommendations...149 Chapter 13 - Key findings, recommendations and next steps...150 13.1 Introduction...150 13.2 Key findings...150 13.3 Recommendations...155 13.4 Next Steps...156 Appendix 1 - Membership of Steering Committee...159 Appendix 2 - List of recognised NGBs...160 Appendix 3 - High Performance Results 2000 to 2006...162 Appendix 4 - Results of Surveys of NGBs and LSPs...166 Appendix 5 - Survey Questionnaires...168 Appendix 6 - Breakdown of anti-doping testing figures by sport 2000-2006...175 Appendix 7 - ISC organisation structure...177 Appendix 8 - Bibliography...178

Glossary of Abbreviations AEP AFAS CSO Department ESRI FAI GAA ICMSA IFA IMRA IRFU ISC LSP Minister NCDP NCTC NGB NWWAC OCI PCI SPARC UNESCO WADA Athens Enhancement Programme Aontas Fiontair agus Spóirt Central Statistics Office Department of Arts, Sport and Tourism Economic and Social Research Institute Football Association of Ireland Gaelic Athletic Association Irish Creamery Milk Suppliers Association Irish Farmers Association Irish Mountain Running Association Irish Rugby Football Union Irish Sports Council Local Sports Partnership Minister for Arts, Sport and Tourism National Coaching Development Programme National Coaching and Training Centre National Governing Body of Sport National Waymarked Ways Advisory Committee Olympic Council of Ireland Paralympic Council of Ireland Sport and Recreation New Zealand United Nations Educational, Scientific and Cultural Organisation World Anti-Doping Agency

List of Tables, Graphs and Figures Figure 1.1: Programme Logic Model...4 Table 3.1: ISC Income and Expenditure 2000 to 2006...18 Table 3.2: ISC Exchequer funding as % of DAST overall budget...19 Table 3.3: ISC staffing levels 2000 to 2006...19 Table 4.1: Annual high performance funding 2000-2006...24 Table 5.1: Annual funding for participation initiatives 2000 to 2006...44 Table 5.2: Youth Field Sports funding...54 Table 5.3: FAI Youth Field Sports Initiative - numbers participating...62 Table 7.1: Tests carried out under national anti-doping programme 2000-2006...77 Table 7.2: ISC's anti-doping education statistics 2000 to 2006...78 Table 7.3: International comparison of number of anti-doping tests 2000-2006...85 Table 7.4: International comparison of adverse findings 2000-2006...85 Graph 7.1: International comparison of number of anti-doping tests 2000-2006...86 Graph 7.2: International comparison of adverse findings 2000-2006...86 Table 9.1: International comparison - funding, participation levels and results...113 Table 11.1: Irish Olympic Results 1984-2004...126 Graph 11.1: Irish Olympic Results 1984-2004...127 Table 11.2: Irish Paralympic Results 1984-2004...128 Graph 11.2: Irish Paralympic Results 1984-2004...128 Table 11.3: ISC Strategic Plan 2000-2002...132 Table 11.4: ISC Strategic Plan 2003-2005...133 Table 11.5: ISC Strategic Plan 2006-2008...134 Table 11.6: ISC administrative costs 2000 to 2006...136 Table 11.7: ISC staff numbers 2000 to 2006...137 Table 11.8: ISC Programme Expenditure 2000-2006...139

Executive Summary Introduction The Government's Value for Money and Policy Review Initiative is part of a framework introduced to secure improved value for money from public expenditure. The objectives of the Value for Money and Policy Review Initiative are to analyse Exchequer spending in a systematic manner and to provide a basis on which more informed decisions can be made on priorities within and between programmes. It is one of a range of modernisation initiatives aimed at moving public sector management away from the traditional focus on inputs to concentrate on the achievement of results. Value for Money Reviews are undertaken under the aegis of steering committees which are representative of the Department managing the area being reviewed. A Steering Committee was established in November 2006 to oversee the Value for Money and Policy Review of the Irish Sports Council (ISC) with representatives from the Department of Arts, Sport and Tourism, the Department of Finance and the ISC. The Steering Committee agreed the final report in September 2008. The terms of reference of the review were as follows: Identify the objectives of the ISC. Examine the current validity of those objectives in terms of the ISC's statutory remit and their compatibility with the overall strategy of the Department of Arts, Sport and Tourism. Define the outputs/outcomes associated with the ISC's activity and identify the level and trend of those outputs/outcomes. Examine the extent that the ISC's objectives have been achieved, and comment on the effectiveness with which they have been achieved. i

Identify the level and trend of costs and staffing resources associated with the ISC and comment of the efficiency with which it has achieved its objectives. Through international comparison and otherwise, evaluate the degree to which the objectives warrant the allocation of public funding on a current and ongoing basis and examine the scope for alternative policy or organisational approaches to achieving these objectives on a more efficient and/or effective basis. Specify potential future performance indicators that might be used to better monitor the performance of the ISC. Objectives of the ISC The ISC was established as a statutory agency on 1 July 1999 under the Irish Sports Council Act 1999. It receives annual Exchequer funding through the Vote of the Department of Arts, Sport and Tourism which between 2000 and 2006 amounted to almost 197 million. Based on the Irish Sports Council Act 1999, the ISC's Strategy Statements and other relevant documentation, the objectives of the ISC can be identified as follows: Objective 1 Objective 2 Objective 3 Objective 4 Objective 5 Improve high performance standards Increase participation in recreational sport Implement standards of good conduct and fair play Implement appropriate anti-doping measures to combat doping in sport Facilitate research ii

Key findings Identify the objectives of the ISC and examine their current validity in terms of the ISC's statutory remit and their compatibility with the overall strategy of the Department of Arts, Sport and Tourism The ISC's five objectives identified remain valid and compatible with the Department's high-level strategy for sport. Define the outputs/outcomes associated with the ISC's activity and identify the level and trend of those outputs/outcomes The high performance structure now in place for Irish elite athletes has developed from the reviews of Irish performances at the 2000 and 2004 Olympic and Paralympic Games. The results of Irish elite athletes in 2005 and 2006 were broadly in line with the targets set out in the 2005 Athens Review. The ISC is implementing a diverse range of programmes, through the NGBs and LSPs, aimed at increasing participation levels particularly among specific target groups. There have been a number of versions of the All-Island Code of Ethics and Good Practice for Children's sport published, with the most recent update published in March 2006 to ensure that it was in line with relevant current legislation, publications, polices and practice in the area of child welfare. Between 2000 and 2006, over 80,000 copies of the Code were distributed as were 200,000 fact sheets dealing with the role of clubs, leaders and parents. By the end of 2006 there were 61 National Children s Officers in place in NGBs throughout the 26 counties. The ISC has also rolled out intensive training programmes on the Code to clubs through the NGBs and LSPs. It is evident that the sporting environment now available to young people is much safer than ever before. iii

The successful development, management and review of the anti-doping programme, which has been promoted by the World Anti-Doping Agency as a model for other countries throughout the world to follow, is one of the key achievements of the ISC. The five ESRI research reports commissioned by the ISC and published to date have contributed some way to addressing the gap in terms of measuring the impact and importance of sport in Ireland. These reports and the ISC's planned future research, will provide important statistical measurement which will assist in policy formation in the future, assess the effectiveness of the ISC in meeting its objectives and enhance the Department's strategy for future investment in sports facilities. (1) Examine the extent that the ISC's objectives have been achieved and comment on the effectiveness with which they have been achieved and (2) Identify the level and trend of costs and staffing resources associated with the ISC and comment on the efficiency with which it has achieved its objectives. The ISC's main source of income is Exchequer funding by way of grant-in-aid through the Vote of the Department of Arts, Sport and Tourism. The ISC has benefited from significantly increased Government funding since its establishment from 13 million in 2000 to 40.9 million in 2006. In that period the ISC's staff numbers have increased from 18 to 29. It is too early to fully assess the effectiveness of the high performance structure now in place. It would be appropriate to carry out an independent review of the Irish high performance structure in light of the results at the 2008 Beijing Olympic and Paralympic Games. The information available indicates that the ISC's participation programmes are contributing to increased participation levels around the country. It is also iv

evident that the LSPs are effective in delivering programmes locally to increase participation rates. The findings from the survey of NGBs and LSPs carried out as part of this review indicate that there is a lack of knowledge in relation to participation of unemployed people in sports. A high percentage of the ISC's participation programme expenditure (41%) is directed towards the three main field sports for initiatives to increase participation levels among young people in Gaelic games, rugby and soccer. The 2003 ESRI report on school children and sport in Ireland acknowledged the importance of this initiative. However, the report also highlighted some concerns that team sports are already too dominant in schools compared to other forms of physical activity. In view of the findings of the ESRI report, there may be merit in the ISC redirecting funding for participation initiatives for young people to non-team sport NGBs. Despite playing catch-up in the high performance area and the lack of baseline data on participation rates until recently, the ISC is making progress in meeting its objectives and delivering on Government sports policy through a range of programmes and initiatives and this is being achieved both effectively and efficiently. The ISC has recognised the importance of accurate measurement of its objectives through its research programme and the introduction of more accurate measurement by NGBs and LSPs. Through international comparison and otherwise, evaluate the degree to which the objectives warrant the allocation of public funding on an ongoing basis and examine the scope for alternative policy or organisational approaches to achieving those objectives on a more efficient and/or effective basis. International case studies carried out as part of the review found that the structures for implementing sports policy internationally are the same as Ireland v

in that statutory sports bodies, funded by the Government, are responsible for the implementation of Government sports policy. The high-level objectives for sport in other countries are also generally the same as Ireland - to increase participation levels in recreational sport and to improve high performance levels. There is a significant amount of management information available, through different sources, which together provide comprehensive details on the ISC's progress in meeting its objectives. To ensure continued effective monitoring of the ISC's progress, it is important that the Council submits a quarterly written update to the Department prior to each liaison meeting outlining its activities and developments in meeting its objectives. The developments in the Irish high performance structure in the last number of years have resulted in an increased number of stakeholders in this area. The NCTC (Coaching Ireland), the Institute of Sport and the Olympic and Paralympic Councils have important roles to play in the delivery of Ireland's high performance strategy and ensuring that Irish elite athletes are supported and deliver to the best of their capabilities. It is important that there continues to be an integrated and coordinated approach between all the stakeholders involved in this area. There is existing cooperation between the ISC and other Government Departments on the wider role of sport particularly in promoting healthy lifestyles and sport in schools. This should be maintained and built on given the increasing concerns in relation to obesity and sedentary lifestyles particularly among young children. Primary responsibility for sports policy lies with the Department of Arts, Sport and Tourism and it is important that the Department continues to ensure that there is an integrated and consistent approach to crosscutting issues in the area of sport. The ISC is a relatively new agency in comparison to similar agencies in other countries and has been effective in delivering results since its establishment. It vi

is therefore considered that the current structure is the most effective way of implementing Irish sports policy at this time. Specify potential future performance indicators that might be used to better monitor the performance of the ISC As it has developed and through its strategic plans, the ISC has identified and addressed areas of improvement through the development and introduction of more specific performance indicators. The existing performance indicators contained in the ISC's current strategic plan, in general, provide very good specific and measurable targets to assess the efficiency and effectiveness of the ISC in meeting each of its objectives. However, as it is currently worded, it is considered that the performance indicator in relation to the ISC's anti-doping programme is unsuitable as it measures the effectiveness of the programme on the basis of the number of positive anti-doping results. A more suitable and measurable performance indicator would be to ensure that the number of antidoping tests carried out remains in line with international averages and that testing methodology and standards are kept in line with international best practice. It is not clear how the performance indicator on continuing to build key relationships can be measured. The ISC could consider establishing service level agreements with key stakeholders to build and maintain key relationships. All of the ISC's performance indicators should be reviewed annually to see if they can be improved or added to. vii

Recommendations Strategic The ISC to continue to engage closely with the Department in the preparation of its strategic plans to ensure that they are developed in line with current Government sports policy. The ISC to continue to monitor best practice internationally in comparable countries and develop its structures accordingly in line with Government policy. In managing the decentralisation process, the ISC to maintain strong and effective working relationships with its stakeholders, while ensuring continued best practice in corporate governance. Relationship development The ISC to submit a quarterly written report to the Department outlining its progress and activities in meeting the commitments in its strategic plan. This report would then form the basis of discussion at the formal liaison meetings between the Department and the ISC. The Department to maintain formal bilateral engagement with relevant Government Departments/agencies to ensure an integrated and consistent policy approach to the implementation of sports policy. Performance measurement The ISC to continue to ensure that there are specific and measurable performance indicators in place for each of its objectives to provide for an ongoing evaluation of the success or otherwise of the Council's actions and the strategic management of achieving objectives. The agreed performance indicators to be reviewed annually to see if they can be improved to ensure that they remain ambitious and challenging targets. viii

Participation The ISC to introduce measurement of participation rates in sport among unemployed persons. The ISC to reassess distribution of NGB funding for participation initiatives to encourage participation across all sports. The ISC to maintain effective management of the LSP network in its delivery of sports policy locally. High performance The roles and responsibilities of each of the relevant high performance stakeholders to be clearly stated and agreed between all the bodies involved in view of the significant changes in the Irish high performance structure in the last number of years. An independent assessment to be carried out following the 2008 Beijing Olympic and Paralympic Games to evaluate the progress and effectiveness of the high performance system now in place. Next Steps The ISC and the Department, where applicable, should implement the recommendations of this review over the coming year. While the review covered the period 2000 to 2006, a number of developments in the intervening period, particularly in the development of the high performance structure, should be taken into consideration in the implementation of the recommendations and guiding the future direction of the ISC. There are also a number of relevant issues that should be considered which have arisen since the completion of the review by the Steering Committee in September 2008. These issues are dealt with overleaf. ix

Economic constraints The current financial constraints facing the economy may have an impact on the budget of the ISC going forward and may require a reassessment of the ISC's funding priorities. High Performance Review While the overall performances of the Irish Olympic and Paralympic teams in Beijing 2008 exceeded the targets set by the ISC prior to the Games, there were also some disappointing performances with participants not achieving personal bests, although it must be acknowledged that the performances of some of the leading athletes were affected by injuries leading up to the Games. It has been the practice following the previous two Olympics in 2000 and 2004 for the ISC to carry out a review of Ireland's preparation for and participation in the Games and the effectiveness of the high performance supports, programmes and schemes in place. The high performance structure currently in place has arisen from the recommendations of the Sydney and Athens Reviews commissioned by the ISC. The ISC has already commenced its standard post-olympics review, which is expected to be completed by the end of 2008. Following the Beijing Games, the Minister indicated that he would meet with all of the high performance stakeholders to discuss how best to build on the performances in Beijing and the supports required in terms of coaching, programmes, facilities and funding to ensure the optimum performance of Irish athletes at the London 2012 Olympic Games. The issues arising from the Minister's meetings and the review being carried out by the ISC should be considered by the Department in the context of the recommended independent review of the existing high performance structure to ascertain if the existing structure is the most effective and efficient way of improving standards of performance. The review should also take into consideration the recommendations of the Sydney and Athens Review and the roles and responsibilities of all the high performance stakeholders. x

Decentralisation The Minister for Finance announced in his Budget 2009 speech that the Government had reviewed the decentralisation programme in the light of the changed economic circumstances and that the timeframe in which the programme can be implemented would be revised. The decentralisation of a number of State Agencies, including the ISC has been deferred pending a review in 2011. xi

Chapter 1 - Introduction 1.1 Background to the Value for Money and Policy Review Initiative The Government's Value for Money and Policy Review Initiative is part of a framework introduced to secure improved value for money from public expenditure. The objectives of the Value for Money and Policy Review Initiative are to analyse Exchequer spending in a systematic manner and to provide a basis on which more informed decisions can be made on priorities within and between programmes. It is one of a range of modernisation initiatives aimed at moving public sector management away from the traditional focus on inputs to concentrate on the achievement of results. Value for Money Reviews are undertaken under the aegis of steering committees which are representative of the Department managing the area being reviewed. The main developments over the lifetime of the Value for Money and Policy Review Initiative and its predecessor the Expenditure Review Initiative are summarised below: March 1997 Government approved arrangements for the Expenditure Review Initiative as proposed by the Minister for Finance; October 2001 The Comptroller and Auditor General published Report No. 39 on its Value for Money examination of the Expenditure Review Initiative; June 2006 The Value for Money and Policy Review Initiative was introduced to replace the narrower Expenditure Review Initiative. A Steering Committee was established in November 2006 to oversee the Department's Value for Money and Policy Review of the Irish Sports Council (ISC) with representatives from the Department of Arts, Sport and Tourism, the Department of Finance and the ISC see appendix 1. The Steering Committee agreed the final report in September 2008. 1

1.2 Terms of Reference The main purpose of the review was to evaluate the ISC, examine its stated objectives and to determine whether they are being achieved in the most effective and cost efficient way. The provision in funding for the ISC in the 2006 Estimates was 40.9 million which represented 7% of the Department's total gross spend for that year. In essence the review set out to answer the following: - Were the ISC's objectives compatible with Government and Department sports policy, were the objectives achieved and did they constitute value for money? The terms of reference of the review were as follows: Identify the objectives of the ISC (Chapter 2). Examine the current validity of those objectives in terms of the ISC's statutory remit and their compatibility with the overall strategy of the Department of Arts, Sport and Tourism (Chapter 2). Define the outputs/outcomes associated with the ISC's activity and identify the level and trend of those outputs/outcomes (Chapters 4-8). Examine the extent that the ISC's objectives have been achieved, and comment on the effectiveness with which they have been achieved (Chapter 11). Identify the level and trend of costs and staffing resources associated with the ISC and comment of the efficiency with which it has achieved its objectives (Chapters 3 and 11). Through international comparison and otherwise, evaluate the degree to which the objectives warrant the allocation of public funding on a current and ongoing basis and examine the scope for alternative policy or organisational approaches 2

to achieving these objectives on a more efficient and/or effective basis (Chapters 9, 10 and 11). Specify potential future performance indicators that might be used to better monitor the performance of the ISC (Chapter 12). The review also took into account a range of additional public policy criteria that are relevant to the design and implementation of Government programmes. These include Poverty Impact Assessment, Equality Proofing, Quality Regulation and Quality Customer Service. 1.3 Methodology The methodology employed to address the terms of reference was as follows: Describe the objectives of the ISC based on: - The Irish Sports Council Act 1999; - ISC Strategy Statements; and - Other relevant documentation. Establish and document the programmes and schemes operated by the ISC linking these programmes to the ISC's stated objectives and their compatibility with the overall strategy of the Department and Government sports policy. Describe and analyse management information currently available in relation to the programmes operated by the ISC to measure progress in meeting objectives. Identify gaps in existing data. Establish and document the ISC's administrative and staffing costs/numbers for the period 2000 to 2006. Describe sports policy and delivery mechanism and implementation in operation elsewhere the UK, elsewhere in Europe, New Zealand and draw inferences for Irish sports policy. 3

Set out conclusions, implications and recommendations particularly in terms of setting targets and performance indicators to best progress in meeting objectives. A survey was conducted amongst the National Governing Bodies of Sport (NGBs) and the Local Sports Partnerships (LSPs) (chapter 10 and appendices 4 and 5) and a followup meeting was held with the Olympic Council of Ireland. A review of relevant documentation was also undertaken as part of the review. In line with the Department of Finance requirements, the draft report was considered by an independent external evaluator, Raymond Burke Consulting and his comments have been taken on board in finalising the review. 1.4 Structure of the Review The evaluation framework recommended by the Department of Finance's 'Value for Money and Policy Review Initiative Guidance Manual' is the Programme Logic Model 1. This model maps out the shape and logical linkages of a programme. It provides a systematic and visual way to present and share understanding of the causeeffect relationships between inputs, activities, outputs and outcomes (results and impacts). The Programme Logic Model is also sometimes referred to as the 'Input- Output Model' and is illustrated below in Figure 1.1. Figure 1.1: Programme Logic Model Strategic Planning Strategic Objectives Programme Evaluation OUTCOMES Inputs Activities Outputs Results Impacts 1 http://www.finance.gov.ie/documents/publications/guidelines/vfmguidnacemanual.pdf 4

The structure of the review is designed to flow in a logical and sequential manner whilst reflecting the structure of the Terms of Reference. Chapter 2 identifies the objectives of the ISC and assesses their validity and compatibility with Government policy. Chapter 3 identifies the level and trends of the costs and staffing resources (inputs) associated with the ISC. Given the wide range of objectives identified and the number of developments in each of these areas between 2000 and 2006, it was decided to dedicate separate chapters to each objective. Accordingly, chapters 4 to 8 identify the outputs and outcomes of each relevant objective. Each of the five chapters deals with one of the objectives identified in chapter 2 and identifies the outputs and outcomes of the relevant objective. The outputs of the ISC are considered to be the programmes and schemes operated by the Council and the outcomes are the results and impacts of these. Other countries models of sports policy are considered in chapter 9 to ascertain if international comparisons can be made. The views of stakeholders and the interaction between the ISC and its stakeholders are explored in chapter 10. Chapter 11 examines the extent that the ISC's objectives have been achieved and considers the effectiveness with which they have been achieved. It also examines the efficiency with which the ISC has achieved its objectives. Chapter 12 examines the existing performance indicators of the ISC and considers potential future performance indicators that might be used to better monitor the performance of the ISC. Finally, the key findings, recommendations contained in the previous chapters are brought together in chapter 13 together with the next steps required in the implementation of the recommendations. 5

Chapter 2 - ISC objectives and assessment of validity 2.1 Introduction This chapter sets out the background to the establishment of the ISC and identifies its objectives based on the Irish Sports Council Act 1999, the ISC's Strategy Statements and other relevant documentation. It examines the current validity of these objectives and their compatibility with Government policy on sport. 2.2 Background A Sports Council has existed in various forms since the early 1970s when COSAC was formed to act as an advisory body to the then Parliamentary Secretary on matters relating to sport. This was followed in 1978 by the establishment of Cospóir which was given a brief to advise the Minister of State for Sport on all aspects of sport and recreation. A non-statutory Irish Sports Council was established in June 1996 to advise the Minister of State on all aspects of sport and to co-ordinate the resources and energies of the sports movement. In June 1997, sport was given full ministerial status for the first time in the Cabinet and the newly created Department of Tourism, Sport and Recreation took over responsibility for sport from the Department of Education. In the period June 1997 to June 1999, the Department was responsible for allocating Government funds to the National Governing Bodies of Sport, the National Coaching and Training Centre, the Olympic Council of Ireland and to athletes through the International Carding Scheme. The non-statutory ISC was in existence during this period under the auspices of the Department. Its role was to advise the Minister on issues relating to sport, including funding. The ISC was established as a statutory agency on 1 July 1999 under the Irish Sports Council Act 1999. The characteristics and principles of Irish sports policy defined in the act are based on the Council of Europe's European Sports Charter and are broadly in line with Sports Councils in other countries. The ISC receives annual Exchequer 6

funding through the Vote of the Department of Arts, Sport and Tourism which between 2000 and 2006 amounted to almost 197 million. The Department of Arts, Sport and Tourism was established in June 2002. The Department is responsible for the formulation of national sports policy and provides funding to the ISC to allow it to realise the commitments in its strategic plan. The Department provides support for the implementation of sports policy through financial support for a range of sports facilities at national, regional and local level through the Sports Capital Programme and the Local Authority Swimming Pool Programme. Between 1998 and 2006, a total of over 483 million in sports capital funding was allocated to 5,781 projects under the sports capital programme with a further 107 million allocated towards the redevelopment of Croke Park. Grant aid under the Local Authority Swimming Pool Programme amounted to 93.68 million from 1997 to end February 2007. In 2004, the Government agreed to provide funding of 191 million to the joint IRFU/FAI project for the redevelopment of the stadium at Lansdowne Road as a 50,000-capacity all-seater facility. The Government also agreed in 2004 to proceed, as financial resources permit, with the development of a campus of sports facilities at Abbotstown to meet the indoor and outdoor training needs of Irish elite sportspersons who compete at national and international levels and to also provide for the needs of the local community. The Government then approved in November 2005 the commencement of Phase One of the development of the National Sports Campus and provided an amount of 149 million in the National Development Plan 2007 to 2013 for the development of the campus. 2.3 Government Policy on Sport The objectives and operation of the ISC should be compatible with the achievement of Government policy objectives on sport as set out in the following policy statements for the period of the review: (i) Department of Arts, Sport and Tourism's high level goal for sport; 7

(ii) 2002 to 2007 Programme for Government; 2 and (iii) "Towards 2016", the Social Partnership Agreement for 2005 to 2016 3. In terms of future policy direction and recommendations for the ISC it is also worth noting the most up to date policy objective statements in the 2007 Programme for Government 4 and the Department's current high level goal for sport in its Statement of Strategy for 2008-2010 5. 2.3.1 Department of Arts, Sport and Tourism's high-level goal for sport The Department's high-level goal for sport in its Statement of Strategy for 2005 to 2007 6 was as follows: Recognising the role of sport in fostering healthy lifestyles, to support and influence increased interest and participation in sport, the improvement of standards of performance in sport and the development of sports facilities at national, regional and local level, through an appropriate policy and resource framework. The Department's new Statement of Strategy for the period 2008-2010 contains the following high-level goal: To increase participation and interest in sport, to improve standards of performance and to develop sports facilities at national, regional and local level, thereby contributing to healthier lifestyles and an improved overall quality of life, through a Departmental policy and resource framework in partnership with its Agencies, other Government Departments and the National Governing Bodies of Sport. 2 Department of the Taoiseach, (2002) An Agreed Programme for Government between Fianna Fáil and the Progressive Democrats, Ireland 3 Department of the Taoiseach, (2006), Towards 2016 Ten-Year Framework Social Partnerships Agreement 2006-2016, Ireland 4 Department of the Taoiseach, (2007), Programme for Government 2007-2012, Ireland 5 Department of Arts, Sport and Tourism, (2008), Statement of Strategy 2008-2010, Ireland 8

2.3.2 2002 to 2007 Programme for Government The Agreed Programme for Government, 2002 to 2007 includes the following programme funding commitments which are relevant to this review: We believe that sport and leisure can play a major role in personal, community and general development and are committed to seeking to develop it at all levels. We will continue to support the implementation of the High Performance Strategy and in particular, its short-term aim of improving Ireland's team performance at the 2004 Olympic Games in Athens. Following a review of the operation of the existing Local Sports Partnerships, we will support their establishment throughout the country as quickly as possible. 2.3.3 Towards 2016, the Social Partnership Agreement for 2005 to 2016 The ten-year framework Social Partnership Agreement, Towards 2016 states that a policy for physical recreation will be developed to complement existing policies in sport for the enhancement and support of participation and strengthening of social capital and includes the following commitments in relation to sport which are of relevance to this review: The Government, through an appropriate policy and resource framework, will: Support and influence increased interest and participation in sport among all age groups; Enhance the supports required to improve the standards of performance of Irish sports persons in an environment which respects the ethical values of sport. Every child should have access to quality play, sport, recreation and cultural activities to enrich their experience of childhood; 6 Department of Arts, Sport and Tourism, (2005), Statement of Strategy 2005-2007, Ireland 9

Increasing support for sports infrastructure and sporting organisations recognising that sport has the potential to be a driver for social change and that targeting specific groups can address issues of exclusion and inequality; Promoting sport in education settings as it is important in addressing negative trends of participation among young people particularly those in the late-teens. This is supported by research undertaken by the ESRI and reinforced in the Task Force Report on Obesity; Achieving the ISC target for 2006 to 2008 to increase by 3% the numbers of children taking part in sport. This will involve the implementation of the complete national roll-out of the Local Sports Partnership (LSP) network and the associate roll-out of the Buntús programme for primary schools and pre-schools through the LSP network; the introduction of the LISPA child centred model for lifelong participation in Irish sport (Lifelong Involvement in Sport and Physical Activity); and support for national sports organisations that attract young people. 2.3.4 2007 to 2012 Programme for Government The new Programme for Government contains the following programme funding commitments in relation to sport which are of relevance to this review. The Government will: Roll out the Local Sports Partnership programme on a nationwide basis to promote the development of sport at community level. Fund Special Olympics clubs. Continue to support the ISC as the statutory agency for the promotion, development and co-ordination of sport. Increase the development of public play and recreation areas for children. 10

Promote a national advertising campaign highlighting the health benefits of sport and exercise. Support elite athletes in preparation for the 2008 and 2012 Olympics and develop proposals for Ireland to be used as a base for other national teams in advance of the London Games. Continue with the implementation of our effective and modern anti-doping programmes, which have earned well-deserved recognition internationally. Initiate a financial support package aimed at introducing primary school children to swimming. Such a support package would be aimed primarily at the costs of transport to and from pools. Ensure that Local Sports Partnerships have an official dedicated to the promotion of girls and women s involvement in sport. Appoint a member of the ISC to deal with all aspects of women in sport, including the gender proofing of all Sports Council decisions. Establish a Forum on Female Participation in Sport in conjunction with the ISC to make recommendations on all issues. Create an Annual Women s Sports Award Scheme. 2.4 Objectives of the ISC The objectives of the ISC can be identified based on its statutory functions set out in the Irish Sports Council Act 1999 and through the development of its strategic plans. 2.4.1 Statutory functions Section 6 of the Irish Sports Council Act 1999 sets out the functions of the ISC as follows: (a) to encourage the promotion, development and co-ordination of competitive sport and the achievement of excellence in competitive sport, 11

(b) (c) (d) (e) (f) to develop strategies for increasing participation in recreational sport and to co-ordinate their implementation by all bodies (including public authorities and publicly funded bodies) involved in promoting recreational sport and providing recreational facilities, to facilitate, through the promulgation of guidelines and codes of practice, standards of good conduct and fair play in either or both competitive sport and recreational sport, to take such action as it considers appropriate, including testing, to combat doping in sport, where the Council considers it appropriate to do so, to initiate and encourage research concerning either or both competitive sport and recreational sport, where the Council considers it appropriate to do so, to facilitate research and disseminate information concerning either or both competitive sport and recreational sport. 2.4.2 ISC Strategy Statements In accordance with section 25 of the Irish Sports Council Act 1999, the ISC is required to prepare a strategic plan every three years for presentation to the Minister for Arts, Sport and Tourism. Section 26 of the Act requires the ISC to prepare an Annual Report outlining progress on the implementation of its strategy. The ISC has engaged with the Department in the development and preparation of each of its strategic plans to ensure they were compatible with Government sports policy. Each plan was also approved and launched by the Minister. The ISC is in the process of writing its next three-year strategic plan for 2009-2011. The first strategy "A New Era for Sport" covering 2000 to 2002 was followed by "Sport for Life" to cover the period 2003 to 2005. The ISC's most recent strategy "Building Sport for Life" covers the period 2006 to 2008. These strategies have built on the 12

functions of the ISC as provided under Section 6 of the Irish Sports Council Act 1999. The latest strategy outlines the ISC's role and its stated objectives for 2006-2008 as follows: Role of the ISC The focus of the ISC's development efforts for the period 2006 to 2008 will be on the achievement of its high level goals of increasing participation in sport and improving the levels of performance by elite athletes in world-class competition. The Council is ambitious for Irish sport and seeks to raise standards and implement better ways of promoting, planning and delivering sport. In order to create a vibrant and effective sector that offers opportunities to participate in sport, the ISC will form partnerships with other organisations in the public and private sector to deliver on its broad remit. Among the mechanisms for delivering on the Council's role are: Developing policies within its statutory remit; Advocating on behalf of sport backed up by research, information and communications activities; Facilitating the development of sporting bodies through capacity and capability building within those bodies; Targeted funding of organisations and individuals which places an emphasis on the achievement of value for money. Direct implementation where necessary as has been the case to date in relation to the Code of Ethics programme; Exercising a regulatory approach where such is required as in the case of antidoping. 13

The ISC will continue to look at these and other options in its next strategy in order to ensure that it delivers on the primary role as outlined above with its choices being determined by resource availability and by the aim of trying to add greatest value to Irish sport. Stated objectives of ISC Strategy 2006-2008 The following are the stated objectives of the Strategy. 1. Increase the number of people participating in sport in partnership with governing bodies, sports partnerships and other relevant agencies. The target is to increase adult participation rates by 1.5% over the life of the strategy. This increase will be sub-divided along the following lines. Firstly, a reduction of 1.5% in the number of totally inactive adults. Secondly, an increase of 1.5% in the number of adults meeting the recommended minimum level of health enhancing physical activity. 2. Increase by 3% in the numbers of children taking part in some level of extra curricular sport and extra school sport combined. 3. The sports partnerships are charged with increasing participation and ensuring that the experiences in sport are positive. Essential to the achievement of objective one will be the complete national rollout of Local Sports Partnerships. 4. Measurably improve the performance of elite sports people in world-class sport through the implementation of the Athens Review and meeting the Athens Review targets of six finalists in the Olympic Games and twelve finalists in the Paralympic Games. 5. Improvements in elite sport will also be measured by performances at European and World championships as well as developmental and junior levels. Targets will be set in Performance Plans agreed with the sports bodies. 14

6. Continue to publish research on sport that contributes to the understanding of the sector and that will inform effective policy and decision-making. The target is to publish four pieces of research each year. 7. Build stronger understanding of the role of the Council, higher public profile and greater awareness of the outcomes delivered by the ISC's work. 8. Further strengthen the internal organisation so that it can deliver on the strategy. 9. Protect the integrity of sport through a world-class anti-doping programme. 10. Strengthen key relationships so that they are delivering to the Council strategy and meeting the objectives of the partner organisations. 2.4.3 Objectives Based on the above, the objectives of the ISC can be defined as follows: Objective 1 Objective 2 Objective 3 Objective 4 Objective 5 Improve high performance standards Increase participation in recreational sport Implement standards of good conduct and fair play Implement appropriate anti-doping measures to combat doping in sport Facilitate research 2.5 Current validity of ISC objectives The ISC has engaged with the Department in the development and preparation of each of its strategic plans to ensure that they were compatible with Government sports policy. Each plan was also approved and launched by the Minister. The five objectives identified remain valid and compatible with the Department's high-level strategy for sport. This review will attempt to evaluate if the identified objectives have been achieved and did they constitute value for money. As can be seen from the Government policy objectives on sport outlined in 2.3, there are a number of cross-cutting issues particularly in relation to children and sport and the 15

role of sport in promoting healthy lifestyles. The issue of an integrated and consistent approach to the delivery of sports policy is dealt with later in chapter 10. It is important that the ISC's objectives and strategic plans continue to reflect the wider role of sport. 2.6 Key finding The ISC's five objectives identified remain valid and compatible with the Department's high-level strategy for sport. 2.7 Recommendation The ISC to continue to engage closely with the Department in the preparation of its strategic plans to ensure that they are developed in line with current Government sports policy. 16

Chapter 3 Inputs 3.1 Introduction This chapter identifies the level and trend of the costs and staffing resources (inputs) associated with the ISC. 3.2 ISC income and expenditure Table 3.1 overleaf gives a breakdown of the ISC's income and expenditure for 2000 to 2006. The ISC's main source of income is Exchequer funding by way of grant-in-aid through the Vote of the Department of Arts, Sport and Tourism for programme expenditure and to cover administration costs, including staff costs, and other general expenses incurred by it in discharging its statutory role. Government funding to the ISC has increased from 13 million in 2000 to 40.9 million in 2006. The ISC also receives a small amount of income in the form of sponsorship, rent, anti-doping testing income and other miscellaneous income. On an annual basis, this amounts to between 1% and 2% of the ISC's total income. The Irish Sports Council Act 1999 allows the ISC to enter into sponsorship agreements provided any agreements are not inconsistent with Government policy, e.g. with tobacco or alcohol companies. The ISC's expenditure is broken down by administration (pay and non-pay) and programme expenditure. The pay funding includes the salaries of full time staff including pension costs. The non-pay funding comprises items such as staff training, rental, maintenance/repairs, insurance, telephone, light and heat etc. Table 3.2 overleaf shows the ISC's annual Exchequer funding as a percentage of the Department's (DAST) overall budget for the period 2000 to 2006. 17