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Shaping Up
A Review of Commonwealth Involvement
in Sport and Recreation in Australia
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In the year 2000, Australians will have cause to celebrate one of the most successful sporting
systems in the world. The success of our athletes and sporting teams has given Australia
international recognition and our citizens great national pride. It has returned both tangible and
intangible benefits to the nation, and established itself as an integral part of Australian culture.
Everyone involved in sport acknowledges the pivotal role of the Commonwealth Government in
making this happen. The framework and the resources to establish and maintain it have been
provided largely by government. It has been an unqualified success.
This strong foundation must be a launching pad into a new millennium where sport, and
physical activity generally, become even more a part of the Australian lifestyle.
Shaping Up recognises the need to maintain and improve elite sport. However, the Task Force
believes that sport and recreation can deliver broader benefits in addition to elite sport and
therefore, recommends a major change in government priorities in order to achieve further
economic, health and social benefits from sport and recreation.
Shaping Up is about how Australian sport and recreation can keep ahead of other high
performance sporting countries; meet the demands of our ever changing society; assist the
industry to develop; and improve our quality of life by increasing physical activity.
The challenge for the future is to fulfil the capacity of sport and recreation to contribute to
Australias future economic and social development.
I appreciate the efforts of my colleagues who have brought their considerable experience and
skills to this task. The Task Force would like to thank everyone who took the time to meet with us
or who made a written submission. Our time frame was short and our task large. The more
consultations we undertook, the more diverse and complex the issues became. In the time
available, the Task Force was not able to go into detail on all of the issues raised. Many were
outside the terms of reference but are mentioned in the report.
During the review we were impressed with the enthusiasm and passion which exists in sport and
recreation at all levels in Australia. We believe this has played an important part in our successful
creation of the finest and most effective sport system in the world.
Ross Oakley
Chair
Sport 2000 Task Force
November 1999
Foreword
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Commonwealth of Australia 1999
This work is copyright. Apart from any use as permitted under the Copyright Act 1968, no part may be reproduced by any process without
prior written permission from the Commonwealth available through AusInfo. Requests and inquiries concerning reproduction and rights
should be addressed to the Manager, Legislative Services, AusInfo, GPO Box 1920, Canberra ACT 2601.
Shaping Up: A Review of Commonwealth Involvement in Sport and Recreation in Australia
A Report to the Federal Government
ISR 1999/147
ISBN 0 642 72050 9
Cover photographs: Allsport Australia
Foreword 3
Terms of Reference 8
Conduct of the Review 9
The Task Force members and scope of the review 9
Methodology 9
Contemporary context 10
Historical context 11
Executive Summary 13
Section one: Proposals for the future 19
Strategies and Structure 19
Introduction 19
Outcomes 20
Strategies 20
Industry 21
Introduction 21
Sport and Recreation Australia 22
Australian Sport and Recreation Development 24
Participation 26
Active Australia 26
High Performance 27
High Performance Sport Australia 27
Australian Institute of Sport 30
Funding 31
Structure 32
Funding Sources 33
Government funding issues 33
Organisations and activities 34
Sports self-funding 36
Contents
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Non-government funding sources 38
Sports lottery 38
Internet-based gaming 39
National football tipping pools based on the major football leagues 40
Pay-TV and anti-siphoning 40
Tax-deductible donations (Australian Sports Foundation Ltd) 41
Athlete Contribution Scheme 42
Conclusions and Recommendations 45
Industry 45
Participation 47
High Performance 49
Funding 51
Section two: Analysis of the current system 53
The Contribution of Sport and Recreation 53
The social and community benefits 53
The economic contribution 56
The health and medical benefits 58
The System 61
Introduction 61
The pattern of sport and recreation delivery in Australia 62
The major players and programs 62
The network 65
Elite sport 69
Participation 71
Adequacy 73
Introduction 73
Elite sport 74
Introduction 74
The results: international sport performances 75
The Commonwealth and State/Territory institutes and academies of sport 78
Coaching and officiating 80
Sports science and sports medicine 81
Athletes 83
Drugs in sport 83
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Participation 84
Introduction 84
The results: participation in sport and physical activity and registrations 84
Active Australia 86
Volunteers 89
School sport and junior development 90
Access and equity 92
People with disabilities 92
Indigenous 93
Women 94
Older persons 96
Other issues 96
Education, training and management improvement 96
Statistical services 98
Technology information services 98
International sporting events 99
Facilities 100
Government Policy Environment 103
Contestability purchaser/provider 103
Self-sufficiency 104
Accountability 105
Decentralisation 106
Partnerships and competition 106
Appendixes 109
1: An historical perspective on Commonwealth involvement in sport 109
2: Budget funding for the ASC and ASDA 112
3: Participation in organised sport and physical activities by Australians aged 18 and over 112
4: Participation in sport and recreation activities in 1975 112
5: Registrations in sport 197598 113
6: People who met the Task Force 115
7: Submissions to the Task Force 118
References 121
Acronyms and Abbreviations 123
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Recognising the importance of elite sport, participation in sport and recreation activities and the
economic and social significance of the sport and recreation industry, the Commonwealth
Minister for Sport and Tourism, the Hon Jackie Kelly MP, has established a review of the
Commonwealths involvement in Australian sport and recreation as a precursor to the
development of a sport and recreation policy which will take Australia beyond the Year 2000.
In this context, undertake an examination of the following matters and report on them to the
Minister for Sport and Tourism by 15 October 1999.
1. The adequacy of the Commonwealths existing sports delivery system as it relates to the
Commonwealth Governments commitments and objectives as set out in the 1999/2000
Budget and supporting statements in this area.
2. The relevance and effectiveness of the existing system to the post-2000 period.
3. The opportunities to increase off-budget funding of sport and recreation at the
Commonwealth level.
4. Appropriate structures, arrangements and delivery systems derived from the above which
might be best suited to sport beyond 2000.
5. The impacts any changed arrangements would have on related areas of government activity.
Terms of Reference
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The Task Force members and scope of the review
On 1 June 1999 the Minister for Sport and Tourism, the Hon Jackie Kelly MP, announced the
appointment of the Sport 2000 Task Force to conduct a comprehensive review of Commonwealth
Government involvement in Australian sport and recreation. Members of the Task Force were
Mr Ross Oakley, Chair, Mrs Pamela Tye OAM, Dr Adrian Hurley OAM and Mr Richard Marks.
The purpose of the review was to examine the effectiveness of strategies, roles and relationships
of the key agencies involved in delivering sport and recreation and to advise on the most
appropriate strategies, arrangements and delivery systems for sport beyond 2000.
The Task Force was asked to look at issues ranging from participation levels to future funding and
to prepare a report which would contribute to the development of the Governments sport and
recreation policy for the new millennium.
The review also looked at the role of the Commonwealth in providing the infrastructure that will
enable non-profit sport and recreation organisations to contribute to the economic development
of the whole industry. The Governments National Strategic Plan for Sport and Recreation is
currently being developed and will examine the broader issues of economic development.
Methodology
The Task Force sought written submissions from key stakeholders by writing to them directly and
sought input from the wider community through a national advertising campaign and liaison
with the media. The Task Force undertook extensive consultations with the sport and recreation
community, visiting each of the States and Territories to hold meetings with key stakeholders
including national sporting organisations. Individual Task Force members also visited
organisations at the community level to ascertain perceptions at the grassroots about the
delivery of Government programs.
During the review, the Task Force met with, or received submissions from, over 130 organisations.
It consulted with more than half of the national sporting organisations that were invited to make
a submission.
Conduct of the Review
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The wide range of organisations and individuals who contributed to the review encompassed:
Commonwealth and State/Territory departments of sport and recreation and the Australian
Sports Commission;
Commonwealth departments;
local government;
the Australian Institute of Sport and State/Territory institutes and academies of sport;
national and State/Territory sporting organisations and umbrella groups;
recreation industry and training peak bodies;
universities and education institutions;
media; and
sponsors.
The Task Force considered what these groups had to say in the context of their own experiences
and knowledge of the system. They also considered the socio-economic and demographic
changes that are rapidly taking place and which will impact on the future delivery of sport and
recreation. This information assisted the Task Force in its analysis of issues presented to it and
influenced its recommendations.
Contemporary context
The Task Force acknowledges that a number of other significant reviews have been undertaken
by the key players in sport and recreation in the lead up to the millennium. In particular, there
have been major reports produced by the National Elite Sports Council (NESC), the Australian
Sports Commission (ASC), the Standing Committee on Recreation and Sport (SCORS) and the
Confederation of Australian Sport (CAS). The Task Force found these groups cooperative and open
and would like to thank them for their genuine contributions. (The organisations that assisted
the Task Force are listed in Appendixes 6 and 7.)
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Historical context
The Task Force study and report follows in a tradition of similar reviews and inquiries undertaken
into sport and recreation since 1973. In their own way, each of these reports has contributed to the
shaping and focus of Australias attitudes towards, and involvement in, sport and recreation.
The 1973 report The Role, Scope and Development of Recreation in Australia prepared by
John Bloomfield was instrumental in setting up the framework for government support and
assistance to national sporting organisations (NSOs). In 1975 the Report of the Australian Sports
Institute Study Group chaired by Allan Coles defined the requirements for the Australian Institute
of Sport (AIS). The 1983 report of the Parliamentary Inquiry into sports funding, The Way We P(l)ay,
in conjunction with the report by the Interim Committee for the Australian Sports Commission in
March 1984, laid the foundations for ongoing Government involvement in sport and recreation
through the establishment of the ASC. The two-volume report in 1989 by the Parliamentary
Inquiry into sports funding and administration, Going for Gold and Can Sport be Bought?,
resulted in the establishment of a more comprehensive sport system funded under the
Next Step program.
Shaping Up is a timely assessment of the impact of Commonwealth Government sport and
recreation policy and programs over the past 25 years. More importantly, the Task Force believes
that its recommendations will consolidate the gains made in the current system and point the
way to an even brighter future.
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The decision to establish this Task Force came at an important crossroad in Australias sport and
recreation development. With the national effort to prepare for the Sydney 2000 Olympic Games
nearing an end, it is timely to examine what the system has achieved and what can be improved.
The Minister for Sport and Tourism asked the Task Force to identify the structures, arrangements
and delivery services that will take Australian sport and recreation beyond 2000. Recognising the
success of the current arrangements, the Task Force considered it important to retain the key
success factors and structures. However, it is also important to strengthen and develop the
system by making appropriate adjustments and developing partnerships.
There has been enormous change in international sport since the establishment of the Australian
Institute of Sport in 1981. The fact that Australia has increased its competitiveness over this period
is a tribute to the vision, strategies, structures and, of course, people involved. That sport has
remained an icon of our culture and a focus of national pride is another tribute to its success.
During its consultations, the Task Force found that there was broad recognition of the successes
of the current sport system, in particular the elite area. Most of these have been achieved through
the programs of the ASC. These successes are:
Australia placed fifth nation at the 1996 Olympic Games, after 20 years of continuous
improvement in Olympic performances. It now dominates the Commonwealth Games and
the Paralympic Games. Currently, 25 Australian team sports are ranked in the top three in the
world and in 20 sports there are one or more individuals ranked in the top three in the world.
International success in sport has brought with it international recognition, not just of the
sport systems, but of other related areas of excellence in Australia, contributing indirectly to
improved exports. It has brought national pride, a benefit that cannot be measured, but which
is felt throughout the country. However, we cannot be complacent about our success. With
increasing competitiveness in international sport, standing still means going backwards.
Elite athletes achieve their potential because there is a comprehensive support system that
encompasses their training and competition requirements and assists with their career,
education and personal development. Cooperation between the Commonwealth and
State/Territory institutes and academies of sport have ensured that these services are
available wherever athletes are required to live and train.
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Executive Summary
Sport and recreation contributed some $5.3 billion to gross national product in 199495. The
Task Force found that there was scope for the industry to grow, given the right infrastructure
and environment.
Existing participation programs have achieved greater access and equity for groups with
special needs, with some receiving international recognition.
Australias anti-drugs in sport programs, in particular the excellent testing regime conducted
by the Australian Sports Drug Agency (ASDA), has contributed to a more level playing field in
Australian sport. The Government has outlined its position in the Tough on Drugs in Sport
policy which the Task Force supports.
The Task Force concluded that the Commonwealths involvement through the ASC has had a very
positive influence on the development of sport and recreation, without which the achievements
summarised above would not have occurred. The depth of the system has been greatly enhanced
as the result of significant involvement by the State/Territory Governments.
However, there are still some weaknesses in the systems which the recommendations of this
report seek to address. These are:
Commonwealth Government policy has focused largely on organised sport. The trend is
toward non-organised sport. Increasingly, people are taking up activities in fitness, community
sport and outdoor recreation. The Commonwealth should extend its charter to include these
groups and activities.
More than half of the Australian population is physically inactive and is at risk of major health
problems. Health statistics indicate that although Australians have made major improvements
in reducing health risks (such as smoking, fat intake, etc.), they are increasingly unfit and
getting fatter. An estimated $500 million per annum savings on the health budget could be
achieved if an additional 10% of the population became active.
Participation programs, having addressed opportunities for special population groups
and children, have been less effective in changing participation patterns in adults. If the
Commonwealth Government wants a healthier population (and the Task Force believes
that this is one of the most important outcomes government should expect from sport
and recreation outlays), it must address new strategies to get people physically active.
Statistical data relating to sport and recreation has major contradictions which prevents
definitive analysis of the industry. For the industry to grow, planning and decisions need to
be made on the basis of up-to-date, reliable and relevant statistics.
The growth of State/Territory institutes and academies of sport has added a new dimension
to the role of the AIS and calls for a new approach to providing services to elite athletes. There
is capacity to achieve economies of scale by reducing duplication and increasing competition.
The Task Force believes that the best way to achieve this is by having a system in which
NSOs make the decisions about the structure and placement of their programs.
Most sports are dependent on government funding and assistance, despite years of
Commonwealth programs of assistance in management and administration. Another
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approach is needed to assist NGOs become more self-reliant and to develop the systems and
services that will make them more viable.
There are tremendous economic returns for some sports, individuals and umbrella groups. The
challenge is to establish mechanisms to better fund grassroots development in sport and
recreation.
Having identified these issues, the Task Force puts forward a vision of a new system that:
increases the levels of participation;
serves the ever higher expectations of elite sport;
contributes to overall development and growth of the industry;
identifies new methods of increasing off-budget funding;
strengthens linkages and partnerships between key stakeholders; and
develops strategies for the future.
This will be achieved by a system that enables:
NSOs to have a greater say in how their sport is run from the participation to the elite end
of the spectrum;
recreation organisations to have a greater capacity to utilise government resources to develop
their leisure activities which will return better health benefits; and
the new sport and recreation business units to concentrate on their particular areas of
expertise.
Counterbalancing this independence is a greater degree of responsibility and accountability. In
essence, sport and recreation will be less regulated and the appropriate bodies will be given more
flexibility to do what they think is appropriate.
The principles which the Task Force believes should be applied in this system are:
Contestability and separation of purchaser from provider: Policy development should be
separated from program delivery. Applying the purchaser/provider model to the funding
arrangements will require a separation of the AIS and ASC and will require that NSOs become
the true purchasers in a system where there is choice in the program delivery mechanisms.
Under this principle, sports should be responsible for allocation of resources and outcomes.
Self-sufficiency: The Government should not be involved in sport and recreation where
the private sector can adequately provide appropriate goods and services. In making
decisions about where to put its resources, the Government should measure the benefits of
its investment (including the social, health, welfare, employment and community benefits).
The Government through the ASC encourages NSOs to become financially independent
and this may require NSOs and the Government to invest more heavily in improved
management practices, professional staff and training.
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Accountability and transparency: Sports that manage themselves must be accountable for
the public funds they use. While it is important for Government to maintain some strategic
direction, NSOs should not be tied so as to restrict their flexibility. The current funding criteria
and cooperative agreements should be reviewed. NSOs must be accountable for agreed
outcomes, likewise, the Commonwealth funding agency must be accountable for expenditure
of funds and the application of funding criteria must be clear and transparent.
Decentralisation: There is a range of possible program providers and it would be inefficient
not to utilise these resources. A deregulated and decentralised approach, driven by the
requirements of NSOs, should remove duplication and waste, and introduce both healthy
competition and partnerships which will drive high performance sport to a new level. Another
benefit would be better services to athletes, who will have a greater choice of coaches and
training locations.
Partnerships and competition: Partnerships will be most effective in areas with shared goals
and the capacity to combine resources directed to those goals. Where there are multiple
providers of services, as in high performance sport, competition will get the best results.
These principles have guided the Task Forces review and are the basis for the recommendations
in the report which suggest a restructure of the Commonwealths involvement in sport and
recreation.
More emphasis should be placed on recreation and physical activity. Therefore the charter
of the Governments main coordinating body should be expanded to include recreation.
The Task Force recommends establishing a body called Sport and Recreation Australia which
would be responsible for developing sport and recreation. It would coordinate the policy
framework, determine outcomes, allocate funds and facilitate linkages and synergies within
the industry.
The Task Force recommends that four business units be established, each being operationally
independent so that they can focus on maximising their respective positions in the
marketplace and delivering services to their clients. The units proposed are:
- Australian Sport and Recreation Development to foster policies and services aimed at
facilitating the development of sport and recreation by improving the competency and skill
base of the industry and providing statistical data, information technology and advisory
services that will improve management and governance.
- Active Australia to deliver increased participation in physical activity either through sport
or recreation to a level that improves the health of Australians of all ages and has a positive
impact on health expenditure.
- High Performance Sport fund NSOs for their national sport programs and fund
innovations in research and development that enhance athletic performance.
- Australian Institute of Sport assist Australian athletes to achieve excellence in
international sports performance.
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Hand in hand with these changes should be a shift in emphasis and resources. More resources
should be placed in areas that will have an impact on the whole of the industry, increasing the
contribution to economic growth of the nation. This would be achieved by putting more
resources into participation activities, education and training programs, statistical collection
and analysis, and information technology. This would also have the effect of creating more
self-reliant sport and recreation organisations and growth in the industry.
New off-budget funding sources need to be found. The idea of a national sports lottery was
considered and then dismissed by the Task Force because of the concerns that have been raised
about the social and economic implications of gaming and the political impediments relating
to States/Territories. Therefore, other off-budget revenue sources were explored with a
preference for funding sources that are derived from the industry itself.
- Internet-based gaming is seen as a potentially lucrative market because it has not been
widely developed and is not constrained by either political or geographical boundaries.
It would be possible to attract offshore revenue which could be redirected into Australian
services.
- National football tipping pools are another potential source of substantial revenue. These
would take this form of betting from the current unregulated environment and place it in
the public sector.
- Pay-TV is another potential source of revenue. When appropriate, the easing of
anti-siphoning rules could be negotiated, but only on the basis of sports agreeing to pay a
levy (fixed percentage) to the Government on revenue from the sale of broadcasting rights.
In this way, popular TV sports could cross subsidise other sports that are not able to raise
broadcasting revenue.
- The Task Force proposes a mechanism for athletes who have received significant financial
and other support from the Commonwealth to contribute to opportunities for future
generations of elite athletes. An Athlete Contribution Scheme similar to the Higher
Education Contribution Scheme (HECS), but with a higher income threshold, is
recommended.
In addition to these proposals, the Task Force recommends some changes to the Australian
Sports Foundation (ASF) which should make it more attractive to potential donors. A high
profile public campaign to raise awareness in the sporting community is needed in order to
draw attention to the benefits that can be derived from the ASF.
The Task Force believes these changes are key adjustments that would refocus the
Commonwealths involvement in sport and recreation after the 2000 Olympic Games. They
aimto grow a new industry, enhance peoples involvement, and maintain the sporting success
of the past.
In short, Shaping Up aims at delivering a new role for the Commonwealth and to achieve
outcomes that will benefit all Australians.
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Introduction
The Task Force recognises the many successes of Australian sport and recreation, especially in the
very recent past. Australias improvement in international sport since the mid-1970s has been a
credit to the people, policies and structures involved. What is needed post-2000 are policies that
enhance strengths and correct areas of weakness.
The aim of the Task Force is to develop strategies that will increase the levels of participation,
strengthen linkages and partnerships between the stakeholders, contribute to economic growth
and deliver excellence in high performance sport.
Just as the Commonwealth supports other industries, it should have an alliance with the sport
and recreation community which drives one of the countrys key economic and productivity hopes
of the future. In the past 25 years the Commonwealth has taken the lead in blazing the sport and
recreation industry trail. It introduced the concept of an AIS, established the ASC which has
conducted programs that have nurtured the NSOs into an era of increased maturity, and
established a framework for greater access and participation by all. The role of the
Commonwealth should continue to evolve. It must play a role in funding the infrastructure
that is beyond the capacity of sectors and individual organisations to undertake.
The vision in this paper and the recommendations for change are aimed at delivering a new role
for the Commonwealth and achieving outcomes that will benefit all Australians.
Section one: Proposals for the future
Strategies and Structure
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Outcomes
The changes recommended in this report aim to:
make Australia an active nation one where physical activity is an integral part of our lifestyle
and which leads to health benefits;
enable the sport and recreation industry to grow;
improve the system which identifies, and assists talented people to perform at their peak;
ensure access and equity in the availability and provision of sport and recreation facilities
and programs;
enable more sport and recreation organisations to be self reliant;
foster innovation in the sport and recreation industry; and
increase the impact of Commonwealth funding.
Strategies
These outcomes will be achieved by strategies which seek to:
create an environment in which the sport and recreation industry can prosper and maximise
economic and social benefits;
develop accurate and quality national statistics to enable improved understanding of the sport
and recreation industry;
direct resources to areas which are most likely to return the greatest benefits to the nation;
encourage cooperation and partnerships between sport, government, the private sector and
the community;
support and enhance research and development with application to the sport and recreation
industry;
create a system that delivers agreed outcomes with sport and recreation partners;
ensure that those who are responsible for expenditure in sport and recreation are accountable
for agreed outcomes;
increase participation in physical activity in order to maximise health and other social benefits;
improve linkages between high performance sport and participation, in particular, junior sport;
provide sports participation programs which are accessible to all Australians;
develop systems which will prepare elite athletes to perform to the best of their abilities and to
attain international success;
develop a competitive delivery system for elite sport services; and
create a user friendly system with a customer focus and clear entry points for those accessing it.
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Industry
Introduction
The Task Force received a wide range of comments from stakeholders on the role and
responsibilities of the ASC. The majority of these comments related to three main areas:
the charter of the ASC as set out in the Objects of the Australian Sports Commission Act 1989
which does not include recreation;
on the philosophy of who runs sport, the bureaucracy or the sporting organisations; and
the relationship between the ASC and the AIS.
In relation to the first issue, the sport and recreation industry has grown considerably since the
legislation was enacted and there is considerable potential for it to grow substantially in the
future, particularly if there is growth in participation. The Task Force believes that more emphasis
should be placed on recreation and physical activity.
The other two issues often polarised comments. Most submissions, particularly from NSOs, called
for more autonomy to be given to sporting organisations to manage their own affairs. Some
comments were made that funding priorities were influenced by financial management issues
and that maximising outcomes to sport and athletes was seen to be a secondary concern. NSOs
said that they were also uncertain about why decisions were made about funding changes
because there was little transparency in the decision process. A number of submissions were
concerned with the growing size and complex structure of the ASC, describing it as becoming
large and bureaucratic.
These issues suggest that NSOs believe they have matured and evolved and that the system
supporting them is less responsive to their needs. The Task Force considers that, given the
achievements in elite sport and the improvements in management, the ASC has been successful
in moving sport through a difficult period of development. However, the Task Force believes that
there are some sports which are now capable of managing their affairs with minimum guidance
from Government.
Many submissions mentioned that the relationship between the ASC as the funding organisation
for sport and the AIS as the delivery arm was too close and that there should be a separation of
these responsibilities. One of these submissions went so far as to say the AIS competes unfairly in
the marketplace.
The Task Force believes that the funding and delivery mechanisms need to be clearly separated
and a more business-like relationship, based on contestability, be established between the two
agencies involved.
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Sport and Recreation Australia
Government needs to recognise and embrace the full continuum of sport and recreation activities
in order to maximise the economic, health and social benefits of the industry. A narrow focus on
sport must give way to a broader vision that recognises the common objectives and goals of the
diverse organisations that are identified with the whole industry. (See structure chart on page 25.)
The Task Force suggests establishing a new central body to coordinate Government policy and
allocate Commonwealth funds through four separate business units that focus on the delivery of
specific Commonwealth services to the sport and recreation industry.
Recommendation 1
The Task Force recommends that a body called Sport and Recreation
Australia be established and its charter include recreation as well as
sport and that legislation be amended or enacted to reflect these
changes.
Sport and Recreation Australia would be established with a Board of no more than seven
members appointed by the Minister.
The objective of Sport and Recreation Australia would be to develop sport and recreation in
Australia.
The functions of Sport and Recreation Australia would be to:
coordinate an overriding policy framework for the four Commonwealth sport and recreation
business units:
- Australian Sport and Recreation Development
- Active Australia
- High Performance Sport Australia
- Australian Institute of Sport
allocate funds between the business units based on their business plans and agreed
outcomes; and
bring all the major players in sport and recreation together to develop synergies within the
industry.
The new structure would facilitate the establishment of discrete business units that focus on
specific objectives and outcomes.
It could be argued that the revised structure incorporating these four distinct business units
reduces coordination and increases costs. The Task Force rejects this proposition on the basis that:
The business units will have greater focus, responsibility and accountability for delivery of their
business plan and this will drive their desire to cooperate and coordinate activities where there
is a clear impact on their ability to deliver planned outcomes.
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Each business unit can manage its resources and programs in the most effective manner to
achieve its specific objectives.
They will be better able to form partnerships and conduct their activities in a manner most
appropriate to the outcomes they are required to achieve.
Whilst we have recommended the establishment of one more board of management we have
generally reduced board sizes so that only two additional board members are required.
Given the specific nature of business it can be anticipated that the number of meetings would
be reduced. In particular, Sport and Recreation Australia would not need to meet frequently.
We do not anticipate any increase in the management team, merely a transfer of management
and staff to the new business units.
Reporting relationships between business units and NSOs will be streamlined. As NSO
management improves they will be more capable of self-managing, thus reducing the
management role of business units.
The establishment of the separate business enterprises is not about creating more boards or
senior management positions, or increasing staff numbers and costs. It is about restructuring
distinctive tasks into specific business units with clear responsibilities and accountabilities.
These are designed to encourage focus, ownership and commitment to outcomes, and improving
the delivery of their services to their clients.
With regard to operational matters there is a range of issues that the Task Force suggest need to
be considered:
The separate business units should be independently managed by a Chief Executive Officer
(CEO) responsible to the Board.
Sport and Recreation Australia should allocate funds for business units on a four year cycle.
This approach should ensure certainty of funding for these units to meet their objectives.
In order to be more effective and to contain costs, as mentioned earlier, the number of board
members in each unit should be no more than seven.
The Boards should be independent, non-representative and appointed by the Minister on the
basis of individual expertise. In the case of Active Australia it may be beneficial to have a Board
that reflects the diversity of all the key sectors (e.g. sport, recreation, health and fitness). No
individual should be a member of two or more of these boards.
Although established as separate business units they should develop mechanisms to create
linkages and synergies across the business units. In addition, linkages need to be reinforced
with outside stakeholders and an annual Sport and Recreation Australia sponsored conference
could be a major strategy to achieve this.
Each business unit should be kept informed of the funding allocations made by other business
units to sport and recreation organisations.
The Task Force wants to ensure the independent nature of the structure as outlined above. We
acknowledge that there is a range of administrative arrangements that could deliver these
outcomes. The mechanisms to achieve them should be determined by the Government as part of
its consideration of this report
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Australian Sport and Recreation Development
Future growth and development of sport and recreation depends on the capacity of the systems
and the competency of managers that direct them. An increased emphasis on education and
training is needed in order to strengthen the elements that underpin the development of the
industry. Bringing the diverse elements together into one business unit would foster synergies
and improve linkages. It would also achieve greater efficiencies in administration and better
integration of policies and activities. This is particularly relevant for ASDA, whose education and
training functions could be enhanced through association with the other sport areas and would
result in administrative cost savings. However, ASDAs legislative independence for drug testing
must be maintained and be seen to be independent from any outside influence.
Recommendation 2
The Task Force recommends that a business unit called Australian
Sport and Recreation Development be established to focus on the
development of NSOs and other sport and recreation industry bodies.
ASDA could be incorporated as part of this unit.
Australian Sport and Recreation Development would be established with a Board of no more than
seven members appointed by the Minister and would be a separate business unit. Because the
nature of its activities extends across the continuum of elite sport and recreation, it will need to
interact with the other business units in order to further the development of NSOs and other
industry bodies.
The objective of Australian Sport and Recreation Development would be to foster policies and
services aimed at facilitating the development of sport and recreation.
The functions of Australian Sport and Recreation Development would be to:
improve the competency and skill base of the industry;
improve collection and analysis of statistical data on the industry;
undertake an advisory and advocacy role to promote the industry;
improve management and governance through education and training programs;
undertake drug testing;
assist the industry to make greater use of information technologies; and
facilitate export of sport products and services.
Australian Sport and Recreation Development would be able to form a number of partnerships
with sport, recreation and industry groups. In particular, partnerships with CAS, Sport and
Recreation Training Australia (SRTA) and Recreation Industry Council of Australia (RICA) are
suggested to ensure that policies and strategies reflect the broader needs of the industry.
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There are three areas within this business unit that the Task Force believes need to be
strengthened in order to improve the infrastructure of sport and recreation and increase its
capacity for self-reliance and growth.
The first is reliable statistical information. During its review, the Task Force found major
contradictions in statistics which make it difficult to make definitive statements about, or to
promote the benefits of, the industry. For the industry to grow it is important that there be up-to-
date, reliable and relevant statistics based on widely accepted industry definitions.
Recommendation 3
The Task Force recommends that statistical collections in sport
and recreation be improved so that there is the capacity to better
understand the industry and facilitate trend analysis.
The second is competency of the work force. In order to facilitate a dynamic sport and recreation
industry, Australian Sport and Recreation Development should have a group that focuses on
education, training and management improvement. However, its role should be broader and
include providing assistance on industrial relations (advising on awards, workplace agreements,
governance, contracts and legal matters). It should also work with the appropriate non-government
agencies to set standards for a self-regulating industry (coaching, sports medicine, safety, etc.)
Recommendation 4
The Task Force recommends bringing all the areas relating to
education, training and management improvement together into
one area which would work in partnership with other groups to
extend the reach of sport education.
The third area that needs to be strengthened is information technology. SportNet is an online
environment by which sport and recreation organisations can adapt information technology to
improve business processes, membership services and communication, and increase revenue. The
Task Force believes that SportNet should be enhanced to make it an attractive option for those in
the sport and recreation industry to utilise. The take-up rate for SportNet needs to gain
momentum soon, in order to establish its long-term viability. Otherwise, it may never achieve its
potential. (See Recommendation 13).
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Participation
Active Australia
Achieving health outcomes for the nation is a vital national objective. Increased physical activity
is indisputably linked to better health. It is estimated that the net economic benefit from an
additional 10 per cent of the population becoming active is $500 million.
1
Active Australia provides a framework within which the diverse elements of the health, education,
sport and recreation industries can work toward common objectives. Active Australia would
require a structure that enables it to pursue flexible strategies with a diverse range of partners. It
would also need the ability to secure resources to enhance programs and increase participation in
physical activity with the ultimate aim of achieving broader national health objectives.
Recommendation 5
The Task Force recommends Active Australia be established as a
separate business unit to deliver increased participation in physical
activity by Australians.
Active Australia would be established with a Board of no more than seven members appointed by
the Minister. It would be a business unit separated from the elite sport functions of Sport and
Recreation Australia. Active Australia would encourage partnerships with other Commonwealth
agencies, State, Territory and local governments, and sport and recreation industry groups.
The objective of Active Australia would be to increase participation in physical activities to a level
that results in improved social, health and economic benefits to the nation. Active Australias
objectives would be most effectively achieved through the inclusion of outdoor recreation,
community recreation and fitness in addition to sport.
The functions of Active Australia would be to:
implement a national policy on mass participation in physical activity for Australians of all ages;
set standards and provide quality control for providers of physical activities;
conduct public awareness campaigns;
provide funding and program services to:
- NSOs to increase and improve participation in their sports
- organisations that undertake sport and recreation projects for the benefit of Australians
- State, Territory and local governments to provide services that improve opportunities for
sport, recreation and physical activities by all Australians
work with other agencies and programs to ensure that provision is made for groups with
special needs; and
provide advice on community sport, recreation and leisure facility planning.
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1
CAS submission
Making Active Australia independent with a charter beyond sport would enable it to develop new
and strengthen existing partnerships.
The Task Force believes that, if given the proper resources and an extended charter, Active
Australia could:
provide the Commonwealth with strategic leadership in the development and delivery of
community participation in physical activity; and
contribute to better health outcomes for Australia, which would reduce health outlays.
High Performance
High Performance Sport Australia
In recent years Australia has excelled in international competition. Many factors have contributed
to this success, including consistent Commonwealth Government funding through the ASC, and
the involvement of State/Territory institutes and academies of sport. The Task Force believes that
there is capacity to build on current linkages in the network of elite sport and to develop an
integrated national system for supporting excellence in sporting performance. Assisting athletes
to reach their potential and compete at the highest levels of international sport must be the
objective of the system. This requires a focused approach that is driven by the vision of each sport.
The Task Force believes that the best way to ensure a focus on athletes is by building the
infrastructure around NSOs. NSOs should drive the system that delivers services to athletes.
NSOs should be provided with the funds and independence to make decisions about the
structure of their national sport programs and the support that is needed for their elite athletes
to achieve their potential. The result would be a more efficient and integrated system, driven by
the needs of sport.
The Task Force believes that this is likely to be enhanced by applying a purchaser/provider model
that would enable competition between sporting institutes and academies and other
organisations, each having the opportunity to provide services to NSOs for the conduct of their
high performance sport programs.
Recommendation 6
The Task Force recommends separating the funding decision process
from the delivery mechanisms of high performance sport.
Recommendation 7
The Task Force recommends that a business unit called High
Performance Sport Australia be established to fund high
performance sport programs. It would be separated financially
and operationally from the AIS.
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Recommendation 8
The Task Force recommends that a competitive tendering process
be established under which NSOs purchase the services required
for their national high performance sport programs from
Commonwealth and State/Territory institutes and academies of sport
and other suitable providers.
High Performance Sport Australia would be established with a Board of no more than seven
members appointed by the Minister.
The objective of High Performance Sport Australia would be to achieve excellence in elite
performances by Australians. This would be achieved by providing funding directly to NSOs for
their high performance sport programs. NSOs would purchase from independent providers the
elite sport services that they need for national sport programs.
The functions of High Performance Sport Australia would be to:
determine the NSOs to be funded under transparent criteria;
determine the funding levels, performance outcomes and accountability measures;
define a set of criteria for management competency levels that are required for NSOs to
self-manage Government funds;
review the outcomes of the above programs annually; and
fund innovative projects which would enhance the development of the industry or enhance
the attainment of government objectives and outcomes in sport (e.g. research and
development).
Under the structure proposed by the Task Force, Tier One NSOs those sports that meet the
management competency levels set by High Performance Sport Australia would negotiate
performance outcomes with the executive of High Performance Sport Australia and receive a
one-line appropriation to achieve them. Performance would be reviewed annually and, where
outcomes have not been achieved, the Board of High Performance Sport Australia would
undertake a review in consultation with the NSOs.
Tier Two NSOs those sports that do not meet Tier One management competency levels would
receive guidance on the management of high performance programs from High Performance
Sport Australia which would also identify programs that could assist these Tier Two sports to
improve their management competency. The Task Force believes that management improvement
in many sports is still vital and that these sports should be assisted to reach the management
competency levels set in the Tier One criteria.
This process is based on the current system managed by the ASC but the Task Force believes that
it could be improved.
The Australian Olympic Committee (AOC) is a major player in high performance sport, particularly
since it will fund some elite sport development projects, international competition and award
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schemes for athletes in the next Olympiad. To avoid duplication and to ensure that all resources
are used most efficiently and effectively, the Task Force suggests that High Performance Sport
Australia and the AOC sign a Memorandum of Understanding which delineates their respective
roles and establishes mechanisms to coordinate their resources.
The proposed system of funding high performance sport is shown in figure 1.
Figure 1 Proposed funding system for high performance sport
The Task Force believes that Australias continued success in international competition will
depend in large part on its capacity to develop new training techniques, technological aids and
nutrition regimes that can legitimately enhance sporting performance. Psychology will also play
an increasingly important role in high performance sport in future. To stay at the front of this
wave of technology requires vigorous, innovative and sophisticated long-term effort in research,
analysis and application.
Recommendation 9
The Task Force recommends that additional funding be provided
for research and development activities, directed at innovative ideas
and more specialised methods to enhance performance. In order
to encourage the contribution of a range of institutions to form
partnerships and cooperative ventures and maintain the focus at
the high performance end, this funding should be provided through
High Performance Sport Australia.
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High Performance Sport
Australia
MOU
Australian Olympic
Committee
National Sporting
Organisations
State/Territory institutes/
academies of sport
Other providers
Australian Institute
of Sport
Sport and
Recreation
Australia
(base funding)
Competitive Tendering Process
Australian Institute of Sport
The value of the AIS is that it can focus exclusively on achieving success in international competition
by our elite athletes. Its role in leading the way in sports science, sports medicine innovations and
athlete welfare services is vital to the continued improvement of the whole national system of high
performance sport. Strengthening the AIS in a more integrated system would maintain and
enhance Australias capacity to achieve desired outcomes in international sport.
Recommendation 10
The Task Force recommends that the AIS be established as a
separate business unit to deliver excellence in sports performance
by Australians.
The AIS would be established with a Board of no more than seven members appointed by the
Minister. It would receive a base level of funding from Sport and Recreation Australia in addition
to being eligible to compete for funding to conduct high performance sport programs.
The objective of the AIS would be to prepare athletes to achieve excellence in international sports
performance.
The functions of the AIS would be to:
compete for and, when successful, conduct national sport programs for NSOs;
provide services to elite athletes;
conduct research to enhance performances of Australian athletes; and
maintain AIS sporting facilities.
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Funding
Additional financial resources will be needed in order to effectively implement the proposed
structure and arrangements outline in this report. The Task Force recognises that the Government
appropriation to sport and recreation will not be maintained at the current 1999 levels. The Task
Force concludes that for the current system to be maintained and improved new off-budget
revenue sources need to be found. The Task Force recognises that there could be a time lag before
sufficient off-budget resources become available which will need careful management.
The Task Force considers that high performance sport is adequately funded at its current levels.
Recommendation 11
The Task Force recommends that, in order to consolidate gains
made over the past 4 years and to maintain Australias level of
international competitiveness, the level of funding to high
performance sport be maintained.
The Task Force considers that participation is not adequately funded to deliver the
Commonwealth objective of increased participation in physical activity.
Recommendation 12
The Task Force recommends that funding to Active Australia be
doubled in order to increase participation in physical activity that
results in improved health and well-being.
The Task Force considers that financial support for developing the industry infrastructure is
not adequate to deliver improved efficiency and output in the sport and recreation area.
Recommendation 13
The Task Force recommends that additional funding be provided
to enhance management systems, improve the collection and
analysis of statistics, facilitate adoption of information technology
(e.g. SportNet) and provide grants for innovative research and
development projects.
The Task Force concludes that improving the health of Australians through increased physical activity
would have a significant impact on the health budget and that the Commonwealth Department of
Health and Aged Care should continue to support programs and strategies that increase the
number of people participating in physical activity to a level where health benefits are produced.
Recommendation 14
The Task Force recommends that the Commonwealth Department
of Health and Aged Care in conjunction with Active Australia
continue to support national strategies that give a high priority
to increasing participation in health promoting physical activity.
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Structure
The proposals for structural change outlined in this section of the report are shown in the
following diagram. S
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Minister Sport and Tourism
Active Australia
Public awareness
Active Australia
provider programs
Access and equity
Funding for
participation
Australian Sport
and Recreation
Development
ASDA
Management,
Education and
Training
Information and
Technical Support
High
Performance
Sport Australia
Funding to NSOs
for national sport
programs
Innovations
Australian
Institute of
Sport
Athlete services
(including SS/SM)
National sport
programs of NSOs
AIS Facilities
maintenance
Department Industry
Science and Resources
Policy advice to Minister
Sport and Recreation Australia
Policy framework for business units
Central coordination
Funding allocation to business units
The Task Force was asked to look at opportunities to increase off-budget funding for sport and
recreation. This section looks at the avenues available to fund sport and recreation and makes
recommendations about possible off-budget revenue sources.
The Task Force considered that Commonwealth funding is necessary to assist the preparation of high
performance athletes and that some sports will rely on government funding in the foreseeable future.
This does not mean that the Commonwealth Government appropriation should remain the sole
source of funding for sport and recreation. The Task Force considers that there is capacity within
sport and recreation to generate the additional funds it needs to further improve the system, but
it will require Government support to introduce the appropriate mechanisms.
The proposals recommended by the Task Force would return new and additional revenue to sport
and recreation from off-budget sources.
Government funding issues
The Commonwealth Governments budget for sport and recreation for four years to 200203 is at
Appendix 2. During this period the Olympic Athlete Program (OAP) will be completed and there
will be adjustments to the base funding of the ASC. The new base funding will be approximately
$72 million per annum which is about $15 million less than the current level. The appropriation to
ASDA will remain, at approximately $4.6 million per annum.
The OAP has been a key input for elite sport and when it finishes it could severely affect
Australias international competitiveness if components of the program are eliminated or
curtailed. This highlights the importance of developing new income streams.
The Task Force has recommended that funding to sport and recreation be increased through
off-budget revenue sources. We recognise that there could be a time lag between the ending of
OAP and the commencement of new revenue streams.
Irrespective of funding levels in high performance sport, the Task Force advocates targeting
sports. It bases this on the knowledge that targeting resources in the past has been a successful
strategy in improving or maintaining performances.
2
There is substantial evidence indicating a
Funding Sources
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2
The ASC chose eight sports in the early 1990s to receive a boost in funding (athletics, swimming, cycling, basketball,
gymnastics, mens and womens hockey, rowing and canoeing). The consistency of funding has enabled most of
those sports to establish development programs that have been reflected in improved junior performances and/or
in improved depth of performances in senior competition.
relationship between consistent funding and performances at the international level. This is
discussed in a later section of this report.
The down side of this targeted funding strategy is that it has created tensions between sporting
organisations that have received increased funding at the expense of sports that have had their
funding reduced or taken away completely. The Task Force received a number of submissions from
sports which sought to justify reinstatement of access to Commonwealth Government funding.
The Task Force believes that this matter is outside its terms of reference.
The Task Force recognises that Australians participate in a wide range of sports and that all of
these have a claim to government support for their activities. In the model proposed by the Task
Force there are separate business units which can each offer specialised services to sport and
recreation organisations (see Figure 2). In a system with stated outcomes, priorities will have to be
set. There must be a transparent system by which Government selects organisations and
activities to support. This requires specific criteria.
Organisations and activities
In the view of the Task Force, relevant criteria for selecting sports to receive funding for high
performance sport programs should be related to:
international competitiveness;
importance to Australian culture;
international profile;
management competency;
capacity of the sport to be financially self-sufficient;
contribution to social and economic development; and
responsible allocation of funds between elite/professional athletes and participation.
Such criteria presuppose a funding system that is integrated and not based on assessments of
the individual components of a high performance program (e.g. coaching camps, hosting events,
international competition, etc.) This would be the case for Tier One NSOs. However, for Tier Two
NSOs there may be a need to continue to tie funding to specific components of their program.
Apart from funding for high performance sport programs, the Task Force recognises that sport
and recreation need funding for participation strategies and other activities relating to their
broader development organisation. This funding and assistance should be available from the
other business units. For example, funding for participation activities should come from Active
Australia and assistance with education and technology development, should be provided by
Australian Sport and Recreation Development.
In the view of the Task Force, relevant criteria for funding participation projects or for access to other
services should be different to criteria for high performance programs and should be related to:
management competency;
participation levels;
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numbers of registered members;
athlete pathways;
role of sport and recreation in servicing community needs;
benefits to health and fitness; and
an assessment of the quality and benefits of the proposed project.
Recommendation 15
The Task Force concludes that there should be separate criteria
relating to access to Government funds and services depending on
the nature of those services.
The Task Force recommends that the criteria for funding levels for
high performance programs be related to transparent, public criteria
that take account of management competency, international
competitiveness and the importance to the Australian public of
success in the sport.
The Task Force recommends that the criteria for access to funds
or services for participation or development assistance be related
to transparent, public criteria that take account of management
competency, participation levels and the contribution made to the
community.
The proposed public sector funding sources for sport can be seen in the following diagram.
Figure 2 Proposed public sector funding sources for sport and recreation
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Australian Sport and
Recreation Development
Assistance with:
management
training
coaching
governance
legal and
information technology
High Performance
Sport Australia
Funding for:
high performance
sport programs and
innovative research
and development
Active Australia
Funding for:
participation projects
Sport and recreational organisations
and peak industry bodies
National sporting
organisations
Sports self-funding
One of the long-term objectives of government assistance to NSOs is to increase management
abilities and improve their capacity to raise funding. The expectation is that this would provide
funds for athletes and reduce reliance on Government.
Sporting organisations derive off-budget revenue from corporate sponsorships, membership
contributions, fundraising and, in some sports, from television broadcasting rights, gate receipts
and hospitality packages.
The Task Force found that there were many questions remaining about how self-reliant (in
funding) most sports can become. There are several factors outside the control of either sport or
government that affect the ability of sports to become self-funding. Most NSOs are similar to
small businesses and do not have the capacity to fund elite sport programs of the nature required
for international success in the current sport environment.
Nevertheless, NSOs need to maximise their revenue generation capacity.
Corporate funding has become an important source of funding in recent years, particularly
through sponsorship of competitions, teams or individual athletes. Corporate sponsorship is
estimated by the ABS to be around $281.9 million per annum,
3
although CAS suggests that total
corporate sponsorship of sport may be as high as $750 million to $1 billion.
4
However, few sports
can attract large corporate sponsorship. Multi-million dollar sponsorships which are reportably
available to some sports are not the norm.
5
There are some disturbing trends in corporate sponsorship of sport. In 1996, only 14 per cent of
companies spent over 5 per cent of their pre-tax income on public benefit activity, compared to
25 per cent in 1989.
6
The Task Forces discussions with major sport sponsors suggest that they
will continue sponsorships in sport, but will be looking for greater value for money, particularly in
the area of sports providing increased protection for sponsors from ambush marketing. This is an
indication that the market will be more discerning after the Sydney Olympic Games and that
private sector support is not a panacea for sports funding in the post-Olympic period.
It also indicates that there will be increasing competition and conflict in the marketplace. NSOs
are finding themselves in competition with government organisations and with their own star
players. The Bulletin magazine reported that swimmer Ian Thorpe could be expected to earn an
estimated $750,000 this year and millions more as the 2000 Games approach.
7
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3
Sport and Recreation Ministers Council, Business Sponsorship of Sport 1996-97, p. 4.
4
Submission from CAS.
5
According to a report in The Bulletin on 7 September 1999 Telstra may pay up to
$10 million over four years for the right to be associated with swimming, p. 26.
6
Communication from the ASC from surveys commissioned by the Australian Council.
7
The Bulletin, September 7 1999, p. 26.
The AOC put a case for legislative protection so that NSOs could assert market control over their
most valuable products the athletes. It is the opinion of the Task Force that the Government is
unlikely to restrict the rights of individuals in order to benefit some sporting organisations.
The other issue concerns government programs competing with NSOs for funds. The submission
from the Australian Golf Union stated that:
The overall size of the pie of corporate funds available is only so big. It is therefore only the slice
available that is to be determined. If the government moves even more into this area as an
active competitor, the slice available to sporting organisations may be reduced.
This is a complex area that will increasingly dominate elite sport.
Given the importance to sport of deriving income from their activities and their athletes and the
increasing competition in the marketplace, it is critical to NSOs that they position themselves
better in the market place. Crucial to this is control over their image and product and better
utilisation of their membership base.
NSOs must develop their own brand image which will enhance their recognition and
marketability. In keeping with the sport owns sport ethos it is essential that Government assist
NSOs to achieve market presence and continue to minimise direct conflict with them. The Task
Force proposals on funds allocations would make the NSOs task of driving their brand in the
marketplace easier by providing more control over their national programs and tying this to
improve sponsor exposure.
The Task Force believe that there is potential for NSOs to profit from their membership and
support base from a marketing perspective whether as a mailing list for sponsors offering
sponsor discounts or selling merchandise.
There are other potential sources of funding to NSOs, including more rigorous application of the
user-pay principle in membership services, gate takings and other services.
The most obvious user-pay source is membership fees. Leaving aside subscription at club and
State/Territory association level and payments made for services (e.g. insurance and competition
fees), it is apparent that up to half of NSOs charge less than $5 per year in membership fees.
The concept of adequate capitation in return for a range of membership services needs to be
re-addressed. If individuals are willing to spend $7 for a single session of indoor cricket or $500
per annum for a gym membership fee, it appears that many sports undervalue their own services.
If the 6.5 million registered members paid an annual membership fee of $20, the total income
derived from this source could be in the order of $130 million.
Sports will need assistance to develop services and membership packages that provide value
to members and justify increased membership fees. The Task Force suggests that the
management education and training group in Australian Sport and Recreation Development
assist NSOs in this area.
Fees from broadcasting rights and gate takings are another source of revenue. Unfortunately, few
sports, other than football codes, tennis, cricket and golf have the crowd drawing capacity to
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make substantial revenue from the entertainment value of their sport. The total annual turnover
for the Australian Football League (AFL) and National Rugby League (NRL) competitions, including
their clubs, would be in the vicinity of $500 million,
8
but of course this is not shared with other
sports. In fact, even within these sports the elite club structure often makes it hard for the
controlling bodies to redirect this revenue from the elite system down to the grassroots level.
The AOC is involved in funding elite sport activities. Their capacity to do so will be enhanced by
financial agreements with Sydney Organising Committee for the Olympic Games (SOCOG) as a
result of the Sydney 2000 Olympics. However, the AOC have made it clear that this funding will
not be used to substitute Commonwealth Government funding, but will be used to add value to
existing programs.
The Task Force has earlier suggested that High Performance Sport Australia and the AOC sign a
Memorandum of Understanding in relation to the allocation of funds to ensure that they work
cooperatively toward common goals.
Non-government funding sources
The Task Force is conscious of the need for the Government to ensure that any additional off-budget
revenue that is raised will not result in a subsequent reduction in the Commonwealth appropriation.
Sports lottery
Sports lotteries are used by a number of nations to raise funds for public sports programs.
Included in this category are at least 17 European nations, New Zealand and a number of
South Pacific nations.
The adoption of a lottery, with the funds being hypothecated to sports funding, has been
previously raised in Australia on a number of occasions,
9
but no lottery has ever been developed.
This is in part because a number of difficult and controversial issues would have to be overcome
in order to develop a national sports lottery.
The Commonwealth has no specific constitutional powers to raise revenue by way of lotteries.
Thus it is likely that a traditional style lottery run at the Commonwealth level would have to be
based on an agreement from the States/Territories that they would not challenge its
constitutional validity.
The Task Force discussed this issue with State/Territory Government officials and concluded that
agreement to a sports lottery is likely to occur only if the States/Territories were to receive part or
all of the revenue from the lottery.
Any new lottery may affect existing State/Territory Government revenues derived through
gaming and many States/Territories depend heavily on gaming income. The Productivity
Commissions interim report estimates that State/Territory gambling taxation revenue has nearly
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8
Figure derived from communciations with the AFL and NRL.
9
See Reports from Parliamentary Inquiries The Way we P(l)ay and Rethinking
the Funding of Community Sporting and Recreational Facilities: A Sporting Chance.
doubled over the last 10 years and accounted for just under 12 per cent of State and Territory
Governments own-tax revenue in 199798. The States/Territories would be wary of supporting
any new lottery that may adversely effect their current revenue streams.
The gaming market in Australia is already well developed. However, that is not to say that it has
reached the point of saturation. The Productivity Commission reports that total expenditure on
gambling that is, the amount lost amounted to over $11 billion in 199798, from a turnover of
some $80 billion. This is more than double what it was a decade ago in real terms, and treble that of
15 years ago. This would indicate that the market is not saturated but still growing strongly.
There is a widely held concern about the adverse social implications of gaming. The
Commonwealth Government and a large number of welfare groups have made public
statements on their concerns about the social impacts of gaming. The Productivity Commission is
currently examining the social and economic implications of gaming in Australia. In its report the
Commission states that the incidence of problem gambling varies by mode. It is highest for casino
table games, gaming machines and racing, and lowest for lotteries.
The Task Force believes that these political and social difficulties preclude the adoption of a
national sports lottery in Australia. In light of this conclusion the Task Force has examined a
number of alternative off-budget funding options.
Internet-based gaming
The Internet is a medium that is not constrained by either political or geographical boundaries
and therefore cannot be easily stopped nor regulated.
Surprisingly, this potentially lucrative gaming market has not been widely tapped, inevitably this
will occur, it is only a question of when and by whom. Legal Internet gambling companies already
operate out of the Northern Territory. The only way the Commonwealth will have any influence or
control over this world market is to be an operator. This would also have the side benefit of
allowing the Commonwealth to be the beneficiary of the profits, a large proportion of which
would be derived from non-Australian gamblers. These profits could be distributed to Australian
sport and recreation. Unfortunately, it is impossible to accurately estimate the potential revenue
raising capacity of such a scheme. However, a successful worldwide Internet gaming system
would seem to have a very large earning potential and consumer confidence would be enhanced
by a system backed by the Government.
The Task Force received legal opinion that the Commonwealth has the Constitutional power to
establish and regulate an Internet based gaming system. Thus many of the potential difficulties
of gaining State/Territory agreement to the introduction of a more traditional lottery system
could possibly be circumvented by the introduction of Internet gaming.
If the Commonwealth is going to act it needs to do so as a matter of urgency because this is a
rapidly developing area and the early providers are more likely to capture a large and valuable
portion of the market.
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National football tipping pools based on the major football leagues
In pubs, clubs and offices across Australia every football season, millions of dollars are placed into
tipping competitions based on the major football leagues. This tradition normally operates in an
unregulated environment where generally small prize money pools are at stake.
This activity could be transferred into national football tipping pools, where potentially the weekly
pools could be valued in the millions. The attraction of such a scheme is that it would move this
pool of gaming from its current unregulated environment and place it in public hands where the
profits could be accessed for the funding of sport and recreation.
The attraction to the gambler would be the potential weekly pool size. Where previously a
participant would be vying for a relatively small prize, often at the end of the season, the national
tipping pool would allow for large weekly prize pools. The tipping pools could be based on the AFL,
NRL, Super 12 and National Soccer League (NSL), with each code having its own separate pool each
week. The numbers could be determined by punters picking the winning sides and their winning
margins for each game in the one competition. The Government will need to act quickly to take
advantages of this opportunity.
Recommendation 16
The Task Force recommends that the Commonwealth investigate
the options of a worldwide Internet gaming system and national
football tipping pools with profits being hypothecated to sport.
Pay-TV and anti-siphoning
Broadcasting rights, especially television broadcasting rights, are an important revenue
source for major Australian sports. Prior to the introduction of Pay-TV to Australia in 1995, the
Commonwealth Government introduced anti-siphoning laws to prevent Pay-TV from acquiring
exclusive rights to specified sporting events. The anti-siphoning laws are designed to ensure that
major sporting events are available on free-to-air TV. The effect of the anti-siphoning laws has
been to establish a TV broadcasting oligopoly among the free-to-air TV stations. This has been
granted without the free-to-air stations having any obligation to show these events. Ultimately,
this limits the earning potential of the NSOs and holds back the quantity and quality of sports
coverage on TV.
If anti-siphoning laws were removed at some time in the future, major Australian sports would
have the potential to significantly increase their income. When appropriate, the Government
could agree to the removal of sports from the anti-siphoning legislation in return for the sport
agreeing to pay a levy (fixed percentage) to the Government of the revenue from the sale of their
TV broadcasting rights. This revenue would be hypothecated to sport, thus providing a greater
pool of revenue for the development of all sports. Hence, the popular TV sports would cross
subsidise the other sports that are not able to raise broadcasting revenue.
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Apart from the non-financial benefits that would be derived to high profile sport from greater TV
coverage, the early removal of the anti-siphoning laws would be likely to significantly increase the
TV broadcasting revenues of the major sports. In return, the benefiting sports would forgo a small
part of their revenue. These funds would be used to assist the development of other sports that
do not have the capacity to be self-sustaining.
The penetration rate of Pay-TV in Australia after almost five years, although quick by world
standards, is estimated to be only 16 per cent.
10
The Task Force realises that the anti-siphoning laws
were put in place to ensure access to major sporting events by people without access to Pay-TV.
Until the penetration rate of Pay-TV rises dramatically, it is unlikely that the Government will be
persuaded to change the law. In some other countries the availability of major sporting events on
Pay-TV has been used to drive Pay-TV distribution (e.g. BSkyB and Premier League in the UK).
The Task Force recognises that revenue from television broadcasting rights is a potentially
large source of funding for sport and recreation. It believes that over time the Pay-TV market
penetration will increase and when this occurs the Government would be able to relax the
anti-siphoning laws.
Recommendation 17
The Task Force recommends that, when appropriate, the
Commonwealth agree to removing sports from the anti-siphoning
legislation only in return for sports paying a fixed percentage of TV
broadcasting rights into a sports funding pool.
Tax-deductible donations (Australian Sports Foundation Ltd)
The Australian Sports Foundation was established in 1986 by the Commonwealth Government to
assist sporting and community organisations raise funds through public and corporate
donations. It operates effectively as an umbrella charity for sport and delegates its tax deductible
status to organisations to allow them to collect donations for a variety of worthwhile sporting
projects. Funds are then returned to the community in the form of grants.
As the only Commonwealth Government entity able to make sporting grants to organisations at
all levels of the community, i.e. from local community level to national sporting organisations, the
ASF is well worth the Commonwealths support via taxation revenue foregone.
The ASF also provides a key vehicle to underpin the Prime Ministers support for encouraging
business and community partnerships as a means of developing stronger and more energised
communities.
The success of the ASF has been limited by the fact that its presence and activities have not been
widely known even within Australian sport.
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10
Submission from the Australian Subscription and Television
and Radio Association.
Many successful Australians from both sports and business backgrounds who have enjoyed
financial success in their own lives and who like to see others pursuing excellence would probably
like to assist elite athletes. The Task Force suggests that the ASF develop a scholarship scheme to
encourage potential donors. The scholarship could be administered in perpetuity by the ASF. We
estimate that an annual scholarship with a real value of $25,000 could be maintained in
perpetuity by a one-off donation of $300,000.
The Task Force believes that a National Fund could be established to commemorate the
achievements of a past sporting champion or champions. This fund could be used to support
the development of grass roots sport, in particular promising young athletes who have not yet
reached a standard where they are eligible to receive funds from existing Government programs
including those offered by State/Territory institutes and academies.
To initiate this fund, the Government could consider making a once-off contribution to provide
encouragement to the general public to either donate to the ASF or leave bequests.
The ASF is currently established under the ASC legislation and is restricted in its charter to
fundraising for sport. Removal from the ASC legislation and establishment as a separate legal
entity would allow the ASF to extend its charter to cover recreation projects, including recreation
facilities.
The Task Force also encourages national and State/Territory sport and recreation organisations to
register key projects with the ASF.
Recommendation 18
The Task Force concludes that the Australian Sports Foundation is
under-utilised and has the potential to increase donations in sport
and recreation.
The Task Force recommends that additional resources be provided
to the ASF to consolidate and enhance its profile.
The Task Force recommends that the ASF be established as a legal
entity under the Commonwealth Authorities and Companies Act 1997
as a means of ensuring that the ASF is more accountable to the
Commonwealth Government and to allow the ASF to attract donors
for recreation purposes.
Athlete Contribution Scheme
The Commonwealth contributes significant funds every year to the development of elite athletes.
It is estimated that the average cost to Australian governments of assisting an elite athlete is
$12,000 per athlete per year. There are currently about 4,500 athletes in Australia receiving
assistance. The cost to the Commonwealth of maintaining an AIS residential athlete is estimated
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at $28,000 per athlete per year. There are currently about 590 athletes receiving this form of
assistance.
These investments have brought many rewards to the nation through outstanding
performances from the elite minority in the community receiving some form of financial
assistance. These funds also give the recipients a rare opportunity to train and compete at this
level. Athletes can receive cash and in kind rewards from the Commonwealth over many years.
Often, in addition to being able to compete at the elite level in national and international sport,
these athletes gain unique skills such as how to succeed, how to accept defeat, the value of hard
work and the capacity to perform under pressure. These skills are highly sought after and
rewarded in the labour market.
The Task Force believes that these athletes, who benefit from Government programs, should put
something back into the system. The proposal for an Athlete Contribution Scheme (ACS) is based
on this principle.
The ACS should be modelled on HECS. The ACS payment starts when the athletes income is twice
that of the base level repayments for the HECS recipient (i.e. at $43,968). The rationale is that the
HECS payment is made by the tertiary student who has had the opportunity to gain an education
that will provide the individual with specialised human capital to derive an income for life. In
contrast, the elite athlete receives training and assistance that either provides a specific skill that
will earn an income for a relatively short period (in most cases) or no income at all. However, the
athletes derive other skills that makes them more attractive in the labour market. In recognition
of this, the athletes should not have to start to repay their accumulated debt until their earnings
are twice that of their counterpart in the tertiary sector.
Based on the current repayment schedule for HECS, the repayment schedule for ACS would look
like this:
ACS Repayment Thresholds ACS Repayment Rate
19992000 Per Cent of Income %
Below $43,968 Nil
$43,968 $46,368 3.0
$46,369 $49,964 3.5
$49,965 $57,780 4.0
$57,781 $69,952 4.5
$69,953 $73,628 5.0
$73,628 $79,144 5.5
$79,144 and above 6.0
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The ACS would provide a system whereby the Government could eventually recoup most of its
investment in individual athletes. The only time this would not occur would be when an athlete
never earns enough income to reach the base thresholds or when the athlete reaches the
threshold for only a short period.
A further consideration is whether the ACS should be limited to athletes who are based at the
AIS or whether it should apply to all athletes regardless of where they are trained. The preferred
option is to apply the ACS to all athletes, the rationale being that, regardless of where the athlete
is trained, the Commonwealth contributes funding either directly or indirectly. This will be
especially the case in the future with the adoption of the purchaser/provider model. If the ACS
was applied to AIS athletes only, it would have the effect of distorting the decision on where
athletes trained, which is not seen as a desirable outcome.
Recommendation 19
The Task Force concludes that elite athletes receive significant
financial and other support from the Commonwealth to pursue
their sporting careers and they gain skills that enhance their
employment prospects. These athletes should contribute to
opportunities for future generations of elite athletes.
The Task Force recommends that an Athlete Contribution Scheme
be introduced to operate in the same way as the HECS but that
repayments commence when the athletes income is twice the
threshold that applies under HECS for the tertiary sector.
The Government may wish to consider the option of an athlete ceasing to be liable for the
ACS if he/she is no longer actively participating as a high performance athlete. The athlete
should remain liable for ACS if they continue to receive sponsorship or payments for
endorsements which are being earned as a result of their high performance status. The athlete
should be liable for their remaining portion of ACS if they return to high level competition.
The Task Force believes that further limiting the liability of athletes to the ACS could undermine
the viability of the scheme through reducing repayments and hence the ability to recover costs.
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Industry
Government needs to recognise and embrace the full continuum of sport and recreation activities
in order to maximise the economic, health and social benefits of the industry. A narrow focus on
sport must give way to a broader vision that recognises the common objectives and goals of the
diverse organisations that are identified with the whole industry.
The Task Force recommends that a body called Sport and Recreation
Australia be established and its charter include recreation as well as
sport and that legislation be amended or enacted to reflect these
changes. (Rec 1)
The Task Force recommends that a business unit called Australian
Sport and Recreation Development be established to focus on the
development of NSOs and other sport and recreation industry bodies.
ASDA could be incorporated as part of this unit. (Rec 2)
In order to facilitate a dynamic sport and recreation industry, Australian Sport and Recreation
Development should have a group that focuses on education, training and management
improvement. However, its role should be broader and include providing assistance on industrial
relations (advising on awards, workplace agreements, governance, contracts and legal matters).
It should also work with the appropriate non-government agencies to set standards for a
self-regulating industry (coaching, sports medicine, safety, etc.)
The Task Force recommends bringing all the areas relating to
education, training and management improvement together into one
area which would work in partnership with other groups to extend
the reach of sport education. (Rec 4)
During its review, the Task Force found major contradictions in the statistical data which make it
difficult to make definitive statements about, or to promote the benefits of, the industry. For the
industry to grow it is important that there be up-to-date, reliable and relevant statistics based on
widely accepted industry definitions.
Conclusions and Recommendations
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The Task Force recommends that the statistical collections in sport and
recreation be improved so that there is the capacity to better
understand the industry and facilitate trend analysis. (Rec 3)
SportNet is an online environment through which sport and recreation organisations can adapt
information technology to improve business processes, membership services, communication
and increase revenue. The Task Force believes that SportNet should be enhanced to make it an
attractive option for those in the sport and recreation industry to utilise. Otherwise it may never
achieve its potential. (See Recommendation 13).
The Task Force concludes that the involvement of State/Territory Governments and event
corporations has enhanced the ability of NSOs to attract and hold international sporting events
in Australia.
The Task Force recommends that the provision of funding to hold
commercial events which are underwritten or funded by
State/Territory event agencies should not be a priority of the
Commonwealth Government. (Rec 27)
The Task Force concludes that the provision of facilities for community participation in sport
and recreation, the training of elite and developing elite athletes and for holding international
sporting events is critical to meeting the Commonwealth Governments objectives in sport and
recreation.
The Task Force recommends the completion of a national audit of
sporting and recreation facilities be a high priority and that the
Commonwealth take a leading role in developing a strategic approach
toward the development and funding of facilities. The availability of
sports facilities at schools and universities should also be factored into
planning at the local level. (Rec 28)
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Participation
Achieving health outcomes for the nation is a vital national objective. Active Australia provides
a framework within which the diverse elements of the health, education, sport and recreation
industries can work toward common objectives. Active Australia would require a structure that
enables it to pursue flexible strategies with a diverse range of partners. It would also need the
ability to secure resources to enhance programs and increase participation in physical activity
with the ultimate aim of achieving broader national health objectives.
The Task Force concludes that the emphasis on elite sport has overshadowed the importance of
delivering increased participation in sport and recreation and that the current funding level is
inadequate.
The Task Force recommends that Active Australia be established as a
separate business unit to deliver increased participation in physical
activity by Australians. (Rec 5)
The Task Force concludes that improving the health of Australians through increased physical
activity would have a significant impact on the health budget and that the Commonwealth
Department of Health and Aged Care should continue to support programs and strategies that
increase the number of people participating in physical activity to a level where health benefits
are produced.
The Task Force recommends that the Commonwealth Department of
Health and Aged Care in conjunction with Active Australia continue to
support national strategies that give a high priority to increasing
participation in health promoting physical activity. (Rec 14)
The Task Force concludes that achieving health goals through increased physical activity will
require multiple strategies pursued through a range of different agencies.
The Task Force recommends that Active Australia pursue partnerships
with health, education, environment and transport agencies which
are aimed at promoting increased physical activity as a preventive
measure for illnesses and injuries and which leads to improved health
and well-being of the Australian population. (Rec 21)
The Task Force concludes that there should be separate criteria relating to access to Government
funds and services depending on the nature of those services.
The Task Force recommends that the criteria for access to funds or
services for participation or development assistance be related to
transparent, public criteria that take account of management
competency, participation levels and the contribution made to the
community. (Rec 15)
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The Task Force concludes that social and community benefits can be gained from progressive
policies that utilise sport and physical activity and that this justifies Commonwealth Government
involvement in providing opportunities for people to engage in physical activity.
The Task Force recommends that more detailed studies be undertaken
to explore further the potential of using sport and recreation as a tool
in achieving social objectives. (Rec 20)
The Task Force concludes that the issue of junior sport development, and the role of schools in
providing children with basic motor skills is of the utmost importance for the future development
of sport and a healthy community.
The Task Force concludes that linkages between schools and community clubs is vital for the
success of junior sport programs.
The Task Force recommends that the Commonwealth Government,
through Active Australia, take a proactive role in promoting the
implementation of the National Junior Sports Policy and in assisting
the development of an infrastructure that links schools with junior
sport and sporting clubs. (Rec 23)
The Task Force concludes that the philosophy of mainstreaming services for disabled athletes is an
effective way of integrating services and ensuring that athletes with disabilities receive the same
level and quality of support as able-bodied athletes.
The Task Force recommends that funding and assistance continue to
be provided for strategies and programs aimed at providing better
opportunities for groups with special needs. Active Australia should
work with other groups to facilitate integration of special needs into
programs and services delivered by the Commonwealth and other
groups. (Rec 25)
The Task Force concludes that the Commonwealth Government has a continuing role to play in
assisting sporting organisations to adopt strategies that will increase the participation of women
and girls in sport and recreation.
The Task Force recommends that Active Australia assist sport and
recreation organisation to adopt and implement the National Policy
on Women and Girls in Sport, Recreation and Physical Activity. (Rec 26)
The Task Force concludes that sport for the Indigenous community needs to be specific to their
cultural and social needs. At the time of the Task Forces review, ATSIC was undertaking its own
review of sport and recreation involvement. The Task Force supports the ATSIC review as an
avenue for the expression of Indigenous issues and solutions.
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High Performance
The Task Force believes that the best way to ensure a focus on athletes is by building the
infrastructure around NSOs. They should drive the system that delivers services to athletes. NSOs
should be provided with the funds and independence to make decisions about the structure of
their national sport programs and the support that is needed for their elite athletes to achieve
their potential. The result would be a more efficient and integrated system, driven by the needs of
sport.
This is likely to be enhanced by applying a purchaser/provider model that would enable
competition between sporting institutes and academies and other organisations, each having
the opportunity to provide services to NSOs for the conduct of their high performance sport
programs.
The Task Force recommends separating the funding decision process
from the delivery mechanisms of high performance sport. (Rec 6)
The Task Force recommends that a business unit called High
Performance Sport Australia be established to fund high performance
sport programs. It would be separated financially and operationally
from the AIS. (Rec 7)
The Task Force recommends that the AIS be established as a
separate business unit to deliver excellence in sports performance
by Australians. (Rec 10)
The Task Force recommends that a competitive tendering process
be established under which NSOs purchase the services required
for their national high performance sport programs from
Commonwealth and State/Territory institutes and academies of sport
and other suitable providers. (Rec 8)
The Task Force believes that Australias continued success in international competition will
depend in large part on its capacity to develop new training techniques, technological aids and
nutrition regimes that can legitimately enhance sporting performance. Psychology will also play
an increasingly important role in high performance sport in the future. To stay at the front of this
wave of technology requires vigorous, innovative and sophisticated long-term effort in research,
analysis and application.
The Task Force recommends that additional funding be provided
for research and development activities, directed at innovative ideas
and more specialised methods to enhance performance. In order
to encourage the contribution of a range of institutions to form
partnerships and cooperative ventures and maintain the focus at the
high performance end, this funding should be provided through High
Performance Sport Australia. (Rec 9)
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The Task Force concludes that there should be separate criteria related
to access to Government funds and services depending on the nature
of these services.
The Task Force recommends that the criteria for funding levels for
high performance programs be related to transparent, public criteria
that take account of management competency, the prospect of the
sport achieving medal performances in world championships and
Olympic Games and the importance to the Australian public of
success in the sport. (Rec 15)
The Task Force concludes that programs to educate and train coaches have been successful in
increasing both the number and quality of Australian coaches although more could be done to
increase the number of Australian high performance coaches.
The Task Force recommends that strategies be developed further to
assist NSOs to mentor high performance Australian coaches and
encourage greater participation by women. (Rec 22)
The Task Force concludes that strategies for assisting elite athletes with disabilities to achieve
international sporting performances are effective.
The Task Force recommends that funding for programs to assist
talented athletes with disabilities be maintained. (Rec 24)
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Funding
Additional financial resources will be needed in order to effectively implement the proposed
structure and arrangements outline in this report. The Task Force recognises that the Government
appropriation to sport and recreation will not be maintained at the current 1999 levels. The Task
Force concludes that for the current system to be maintained and improved, new off-budget
revenue sources need to be found. The Task Force recognises that there could be a time-lag before
sufficient off-budget resources become available.
The Task Force considers that high performance sport is adequately funded at its current levels.
The Task Force recommends that, in order to consolidate gains
made over the past four years and to maintain Australias level
of international competitiveness, the level of funding to high
performance sport be maintained. (Rec 11)
The Task Force considers that participation is not adequately funded to deliver Commonwealth
objectives of increased participation in physical activity.
The Task Force recommends that funding to Active Australia be
doubled in order to increase participation in physical activity that
results in improved health and well-being. (Rec 12)
The Task Force considers that financial support for developing the industry infrastructure is not
adequate to deliver improved efficiency and output in the sport and recreation area.
The Task Force recommends that additional funding be provided to
enhance management systems, improve the collection and analysis of
statistics, facilitate adoption of information technology (e.g. SportNet)
and provide grants for innovative research and development projects.
(Rec 13)
The Task Force recommends that the Commonwealth investigate the
options of a worldwide Internet gaming system and national football
tipping pools with profits being hypothecated to sport. (Rec 16)
The Task Force recommends that, when appropriate, the
Commonwealth agree to removing sports from the anti-siphoning
legislation only in return for sports paying a fixed percentage of TV
broadcasting rights into a sports funding pool. (Rec 17)
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The Task Force concludes that elite athletes receive significant financial and other support from
the Commonwealth to pursue their sporting careers and that they gain skills that enhance their
employment prospects. These athletes should contribute to opportunities for future generations
of elite athletes.
The Task Force recommends that an Athlete Contribution Scheme
be introduced to operate in the same way as the HECS but that
repayments commence when the athletes income is twice the
threshold that applies under HECS for the tertiary sector. (Rec 19)
The Task Force concludes that the Australian Sports Foundation is under-utilised and has the
potential to increase donations in sport and recreation.
The Task Force recommends that additional resources be provided to
the ASF to consolidate and enhance its profile.
The Task Force recommends that the ASF be established as a legal
entity under the Commonwealth Authorities and Companies Act 1997
as a means of ensuring that the ASF is more accountable to the
Commonwealth Government and to allow the ASF to attract donors
for recreation purposes. (Rec 18)
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The Task Force believes that the Commonwealth Government gets a good return on its
investment in sport and recreation and that there are further benefits to be gained from an
enhanced role in sport and recreation.
The benefits and deliverables of high performance sport and increased participation in physical
activity are illustrated in figure 3.
This section of the report discusses and quantifies the benefits of sport and recreation to the
Australian community and economy.
The social and community benefits
The Commonwealth Government funds sport because it is an investment in the community.
Sport has been an integral part of the social landscape since colonial times and even today
sporting traditions, such as the Melbourne Cup, test cricket, football grand finals and the Stawell
Gift, are part of the celebrations that all Australians enjoy. Sport links Australians to their past and
binds them in the present.
Sport has undoubtedly contributed to the creation and maintenance of nationalist sentiment.
At the turn of the century Australian dominance in sculling and pedestrianism (foot races)
contributed to early national identity. In the 1950s and 1960s achievements in tennis, athletics,
squash and swimming consolidated a sense of pride in being a country capable of achieving
excellence despite size and isolation. When Kieren Perkins pulled away in the last laps of the
1500-metre freestyle final at the 1996 Atlanta Olympic Games, Australians were bound together
in an outpouring of national pride.
In fact, Kieren Perkins swim ranks as one of the most inspirational moments for Australians. In a
poll conducted by The Sydney Morning Herald andThe Age,
11
Australians were asked to choose five
Australian events with outstanding inspirational qualities. Number one was the Americas Cup
win. This outranked other significant events such as Federation and Armistice. Of the top 10 most
inspirational moments, seven were sports related.
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Section two: Analysis of the current system
The Contribution
of Sport and Recreation
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Sport Moves Us More than Most The Sunday Age, 11 July 1999, p. 22.
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The top 10 events were: Americas Cup win (1983), Federation (1901), Don
Bradmans 334 (1930), Armistice (1918), successful 2000 Olympics bid, Australias
capture of Tobruk, Kieren Perkins 1500m gold (1996), John Landys world record,
Dawn Frasers gold (1960) and Betty Cuthberts wins in the 100/200m.
Figure 3 Government outcomes and deliverables
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NSOs
Pathways in sport
Participation
Quality standards in sport,
outdoor and community
recreation, fitness,
program development,
data collection
Elite
Subsistence for athletes,
expert coaching,
competition, sports
science/medicine
OUTCOMES
National Recognition/
Identity
Trade/exports
Tourism
Influence (from exposure)
National Pride
Social cohesiveness
Self esteem/well being
Opportunity to
pursue excellence
Role models
Motivational
Better output
Less absenteeism
Economic development
Knowledge seeking
Innovation
Health research - dietary,
biomechanics, injury,
prevention, stress management
OUTCOMES
Health
Fitness
Well being
Personal development
Sports person
Attitude
Teamwork
Striving
Crime reduction
Socialisation/Community
Cohesion
Addressing inequities
Employment
DELIVERABLES
Increased employment
Greater productivity
Growing sport industry
Increased exports
Increased GDP
Decreased crime
Increased tourism
Decreased health costs
A 1995 International Social Science Survey found that 92 per cent of Australians feel proud of
Australias achievements in sport, and 84 per cent agreed with the notion that sporting success
made them feel proud to be Australian.
13
A further measure of the pride Australians take in the achievements of their athletes is that over
one quarter of the Australian of the Year Awards since 1960 have been bestowed on sports people.
Sport fosters the social cohesiveness and unity that reinforces our sense of being an Australian.
The contribution that sport makes to the Australian national image cannot be quantified, but it
can be felt. The same is true for other benefits that accrue to individuals and the community
through broader participation in sport.
For young people, sport is an important means of building character, helping them in learning about
fairness, success and failure, risk taking, accepting discipline and control, leadership and teamwork.
Ian Thorpe, one of Australias current crop of internationally successful swimmers, said it best:
Sport builds self confidence and the ideals of team spirit. Being in a team environment is
vital for learning aspects of life which you have to adopt in going into the workforce.
14
For adults, participation in sport brings with it increased energy, improved fitness and health and
more opportunities for participating in social and community activities. For older adults the
health benefits from being physically active translate into more independent living and better
social links with the broader community. All of these result in benefits to the individual and to the
wider community.
Sport is an inclusive social phenomenon and provides opportunities for specific groups to
feel a part of the community. In a multicultural society such as Australia, sport is an important
mechanism for bringing diverse groups closer together. Disabled athletes in particular are found
to benefit from higher self-esteem, exhibit greater life satisfaction and happiness, be more
outgoing and attain higher levels of education than disabled non-athletes do.
There are other community-wide benefits, for example, reduced crime and social dysfunction.
Sport can provide an institutionalised outlet for hostilities and feelings of anti-authority, and is
frequently used in rehabilitation programs for young offenders. These have met with varying
success but hold much potential.
Utilising sport and recreation to improve social conditions as a whole (rather than solely as
crime prevention programs) is a strategy that has much to offer Australia. It is unrealistic to
expect that sport/recreation programs operating on their own, and only addressing the needs of
delinquent youth, can have a major impact. Young people (both Aboriginal and non-Aboriginal)
in Australia have a wide range of needs and attention should be paid to them if we seriously
want to address the problems that result in criminal activity, suicide, drug abuse et cetera.
15
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13
Communication from ASC.
14
The Australian. 1 September 1999, p. 15.
15
Mason, G., and P Wilson. Sport, Recreation and Juvenile Crime: An Assessment
of the Impact of Sport and Recreation upon Aboriginal and non-Aboriginal
Youth. Australian Institute of Criminology, Canberra 1988.
Recommendation 20
The Task Force concludes that social and community benefits can be
gained from progressive policies that utilise sport and physical activity
and that this justifies Commonwealth Government involvement in
providing opportunities for people to engage in physical activity.
The Task Force recommends that more detailed studies be
undertaken to explore further the potential of using sport and
recreation as a tool in achieving social objectives.
The economic contribution
16
The sport, recreation and gambling industry is a significant industry in its own right and
provides a sizeable contribution to Australian economic activity. Although detailed statistics on
the industrys output are limited, the 11,057 businesses in the industry contributed a gross product
of some $5,309 million to the economy in 1994-95. The industrys contribution to the economy
was raised by a large number of groups that met with the Task Force and in the submission from
CAS. The CAS submission stated that the sport sectors contribution to Gross Domestic Product
(GDP) of 0.6 per cent ranks closely with those of other major industry sectors such as the iron and
steel industry, the printing and services to printing industry, the motor vehicles and parts and other
transport equipment industries and the iron ores mining industry.
17
Of the sport, recreation and gambling industries, gambling with $2,111 million, provided the
largest contribution to gross product in 199495, closely followed by clubs ($2,013 million), while
the sports and recreation services industries provided the lowest gross product with $913 million
and $272 million.
Some 163,150 persons were employed in the industry at the end of June 1995. The major
employer was the clubs (hospitality) with 62,536 persons employed, closely followed by sports
with 58,414 persons. Around 60 per cent of all people employed in the sector worked on a
part-time basis, while about the same proportion were employed as casual staff.
Total outlays on sport, recreation and gambling by households and governments amounted to
over $8 billion in 199394, with expenditure by households accounting for 70 per cent of the total.
In aggregate, Australian households spent around $5.9 billion on sport, recreation and gambling
goods and services in 199394. Over $4.1 billion of this amount was spent on selected sport and
recreation goods and services, while almost $1.8 billion was spent on gambling activities. (Care
should be taken in not reading too much into this latter figure, as the ABS has indicated that
household expenditure on gambling is typically understated.)
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16
Unless otherwise qualified, all data in this section comes from ABS
Catalogue No. 4156.0, Sport and Recreation - a Statistical Overview.
17
CAS submission, p. 18.
Exports of sport and recreation goods
18
have been growing rapidly. Exports of sport and
recreation goods were valued at $371 million in 199798, following an annual average growth
rate of 8.2 per cent since 199394.
Despite the recent growth in exports, Australias international trade in sport and recreation goods
is dominated by imports, accounting for well over double the value of our exports, $1,299 million
in 1997-98. While the export of sport and recreation goods has achieved an annual average
growth rate of about 8.2 per cent between 199394 and 199798, over the same period, imports
have grown by almost 10.9 per cent on average per year.
Household expenditure data allows for some analysis of the longer term trends in the industry.
However, the results do not augur well for the industry. The real growth in weekly expenditure on
sport and recreation in the 10 years to 1993-94 was 2.8 per cent and growth in weekly expenditure
on gambling was 13 per cent (although this may have been affected by the understatement of
this expenditure). This contrasts with growth in the economy as a whole of around 35 per cent
over the same period (or an annual average rate of 3.1 per cent).
In contrast to the ABS data, the Productivity Commissions report on the gambling sector states
that total expenditure on gambling, that is, the amount lostamounted to over $11 billion in
199798 from a turnover of some $80 billion. This is more than double what it was a decade ago in
real terms, and treble that of 15 years ago.
The best indicator of an industrys output is its contribution to GDP. Given that this measure
excludes the value of inputs into an industry which are drawn from elsewhere in the economy,
it provides the most accurate indicator of the value the industry actually contributes to the
economy and it is therefore a more precise gauge of true economic performance. Unfortunately,
the information published by the ABS on the sport, recreation and gambling industrys GDP is
limited. A reasonable time series of contribution to GDP, for example, is available only at the
broader cultural and recreational services level (the ANZSIC divisional level).
These figures indicate that the cultural and recreational services industrys gross domestic
product was around $9.1 billion in 199697 (in constant 198990 prices) and represented
around 2.0 per cent of total GDP.
As illustrated in figure 4, although the rate of growth in the cultural and recreation services
industrys GDP has significantly fluctuated in recent years, it grew by an average of 3.1 per cent per
year over the decade to 199697, or by slightly less than the all industries GDP (which grew by an
average of 3.4 per cent a year over the same period).
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18
ABS export data is available only for goods, not services. The data in
this paragraph and the following paragraph is sourced from
unpublished ABS data derived from the ABS International Trade
Database 1999.
Figure 4 Growth in GDP (constant 198990 prices)
Source: ABS Australian National Accounts: National Income and Expenditure, cat. 5206
There are major contradictions in the statistics that underlie the industry. For the industry to
growit is important that there be up-to-date, reliable and relevant statistics upon which there is
wide agreement. Moreover, better time series data on the industry needs to be collected, based on
a widely accepted industry definition and provided at a sufficient level of detail to enable full
analysis of industry trends. A move in this direction would give appropriate recognition to the size
and importance of this industry to the Australian economy.
The Task Force is aware that the tourism industry had a similar problem a decade ago and that it
has addressed this problem by working with the ABS to develop a satellite account that provides
a range of statistics that allows the industry to better quantify and understand itself.
The Task Force is aware that the Commonwealth Department of Industry, Science and Resources
is currently undertaking a study of the sport and recreation industry as part of the Governments
National Strategic Plan for Sport and Recreation to identify and eliminate any impediments that
might be restricting the industrys development. The Task Force commends this process.
The health and medical benefits
A healthy Australia is a high priority of this Government.
19
The Commonwealth Government is to be commended for articulating its commitment to a
healthier Australian public and for allocating $5 million in the 19992000 budget for national
health promotion and disease prevention. Government health policy has traditionally been
dominated by treatment rather than prevention, and a shift toward public health is welcomed.
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-1
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Cultural and recreational services All Industries
19
Budget Strategy and Outlook 1999-2000. Budget Paper No. 1, 1-24.
A healthy public is an important economic objective of government for two reasons: first, if a
population is unhealthy its capacity to generate primary wealth is reduced, and second, the
economic burden of providing medical care for disease, which is preventable, is substantial.
The submission from the Commonwealth Department of Health and Aged Care informed the
Task Force that at least one third of all Australian adults are at risk of major health problems due
to inactivity. In various population surveys it is estimated that up to 50 per cent of Australians are
physically inactive to a degree that carries a greater risk of heart, stroke and vascular disease.
20
The link between physical activity and better health (and lower medical costs) is well established
in scientific and medical research. Consider these statistics:
21 22
Up to a third of new cases of diabetes could be prevented by physical activity.
People who are sedentary have a 20100% higher risk of cardiovascular events compared with
those who are moderately physically active.
If 35% of the Australian adults became moderately physically active, about 900-1000
Australian premature deaths per year might be prevented.
The risk of thrombosis (stroke) is 3367% lower for those who are moderately active than for
those who are sedentary.
A Norwegian study showed a 30% decrease in risk of breast cancer among the more active,
particularly among women aged less than 45 years.
Improvements in physical activity and health translate directly into cost savings. It is suggested that
the net economic benefit from 10 per cent of the population becoming active is $500million.
23
The annual direct health care cost (i.e. cost of treatments) attributable to physical inactivity for
each disease is estimated to be:
$161 million for coronary heart disease;
$28 million for non insulin dependent diabetes melitus;
$16 million for colon cancer;
$101 million for stroke;
$16 million for breast cancer; and
up to $56 million for depressive disorders;
totalling $378 million from these illnesses alone.
24
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20
Australian Institute of Health and Welfare. National Health Priority Areas Report. Cardiovascular Health. A Report on
Heart, Stroke and Vascular Disease 1998. Commonwealth Department of Health and Aged Care. AIHW Cat. No. PHE 9.
21
Australian Institute of Health and Welfare and Heart Foundation of Australia. Heart, Stroke and Vascular Diseases.
Australian Facts by National Centre for Monitoring Cardiovascular Disease. May 1999.
22
Commonwealth Department of Health and Aged Care. Developing an Active Australia: A Framework for Action for
Physical Activity and Health. 1999.
23
CAS submission.
24
AIHW and HFA. 1999.
One of the issues in public health is the rise in the proportion of Australians who are either
overweight or obese. Australian statistics are now similar to the rates in the United States.
Despite statistics that show the Australian diet has seen a reduction in total fats consumed per
person per day
25
more Australians are becoming overweight.
In 1995:
26
7.4 million adult Australians (56% of the adult population) were overweight.
The proportion of overweight women aged between 25 and 64 increased from 27% in 1980
to 43% and overweight men 48% to 63% over the same period.
Of the above figures, almost 2.5 million (19% of the adult population) were obese.
The proportion of obese women increased from 7% in 1980 to 16% and obese men 8% to 18%
over the same period.
State surveys suggest that the proportion of overweight children is also increasing.
These figures are disturbing. They suggest that despite the decrease in saturated fat in the
Australian diet, Australians are getting fatter. The missing component in the equation is physical
activity. According to the Australian Institute of Health and Welfare, there has been little change
in participation in physical activity during leisure time. The numbers doing no physical activity
decreased only slightly between 198990 and 1995 from 36 per cent to 34 per cent.
If the Commonwealth Government wants a healthier population and savings in the health
budget, it must develop new strategies to get people physically active. Active Australia offers
the framework and the network to achieve this goal.
The relationship established between the Commonwealth Department of Health and Aged
Care and Active Australia through the Active Alliance, opens the door to an integrated whole-of-
Government approach. The synergies derived from a more cooperative partnership will enable
both partners to pursue their respective goals and objectives while contributing to the overall
Government objective of enhancing the quality of life of all Australians.
Recommendation 21
The Task Force concludes that achieving health goals through
increased physical activity will require multiple strategies pursued
through a range of different agencies.
The Task Force recommends that Active Australia pursue partnerships
with health, education, environment and transport agencies which
are aimed at promoting increased physical activity as a preventive
measure for illnesses and injuries and which leads to improved health
and well-being of the Australian population.
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25
From 56.3 mls in 1987 to 49.4 mls in 1997.
26
AIHW. Cat. No. PHE 9.
Introduction
The purpose of this section of the report is to provide a description of the delivery structure,
the key players and the costs. This is provided as a record of what Australia has achieved over the
past 25 years and can be used to measure future change.
The sport and recreation system in Australia is complex and inter-related. There is virtually no
boundary between the two related activities. The Task Force recognises that there is a continuum
that extends from elite sport to activities which improve the physical well-being of participants.
The Australian Bureau of Statistics (ABS) does not attempt to define sport or recreation, but
uses the parameters of sport and physical activity for the purpose of data collection and trend
analysis. This recognises the large numbers of people who participate in sport, exercise and
outdoor activities outside the formal organised structure of sport.
The ASC legislation restricts its financial involvement to sport, and has therefore found it
necessary to develop a working definition of sport in order to make decisions about the allocation
of Government financial support to assist sporting organisations. The ASC definition is:
A human activity capable of achieving a result requiring physical exertion and/or physical skill
which, by its nature and organisation is competitive and is generally accepted as being a sport.
The activities of Active Australia extend across the continuum of sport and recreation. Active
Australia suggest that a definition from the Council of Europe is more appropriate to its activities:
All forms of physical activity which, through casual or organised participation, aim at
expressing or improving physical fitness and mental well-being, forming social relationships,
or obtaining results in competition at all levels.
While recognising that there is ongoing debate about what constitutes sport and
what constitutes recreation, the Task Force felt that it should not be an issue because the
Commonwealth Government has a legitimate role to play in both sport and recreation,
albeit in different ways.
The System
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The pattern of sport and recreation delivery in Australia
The major players and programs
There are many people and organisations involved in delivering sport and recreation in Australia.
The Task Force has attempted to provide a simplified overview of the structure of the Australian
sport and recreation system at the national, State/Territory and regional/community level in
figure 5. This figure identifies the government and non-government components. It should be
interpreted in association with table 1, which provides a more detailed description of these
components and the programs and activities they conduct.
Figure 5 Australian sport and recreation structure
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Government
National
State
Local
Non-Government
Ministers
Corporate Sponsors
Government
Departments
Australian
Sports
Commission
Australian
Institute
of Sport
Active
Australia
Australian
Sports
Drug
Agency
Gambling
Revenue
Health
Promotion
Funds
National
Sporting
Organisations
National
Umbrella
Groups
Ministers Ministers for Sport
and Recreation
State
Institutes
and
Academies
of Sport
Government
Departments
State
Sporting
Organisations
State
Umbrella
Groups
State
Events
Corporations
Special
Interest
and
Professional
Groups
Training
and
Industry
Groups
Regional
Academies
of Sport
Local
Government
and Council
Government
Schools and
Universities
Non-Government
Schools and
Universities
Clubs Professionals
Private
Providers
Minister of Sport
Government Programs Non-government Programs
involvement and activities involvement and activities
Minister for Sport and Tourism National sporting organisations
Australian Sports Commission Responsible for affiliation to
Policy advice international federation and
Australian Institute of Sport for Australian team selection
National Sports Information and representation
Centre
AIS Sports Science and Medicine National umbrella groups
Centre Australian Olympic Committee Control and fund Australias
Australian Sports Foundation Australian Commonwealth involvement in respective
Australian Coaching Council Games Committee movements, coordinate
Active Australia Australian Paralympic Federation selection of Australian
Sports Development Program teams and arrange
(funding to NSOs under Sports outfitting and travel of team.
Assistance Scheme and Olympic
Athlete Program) Confederation of Australian Advise and lobby
Volunteer Involvement Program Sport government and promote
Indigenous Sport Program importance of sport
Aussie Sport in community
Athletes with Disabilities
International relations Community Recreation
Council of Australia
Sport and Tourism Division of Action Agenda (Industry)
the Department of Industry Facilities Funding
National leagues Competitions
Science and Resources Policy advice
Australian Sports Drug Agency Testing and Education Special interest and professional groups
Sports Medicine Australia
Other Commonwealth agencies Australian Universities Sports Federation
Department of Employment, National Collaborative Australian Society of Sport Administration
Education, Training and Curriculum Australian Council of Health, Physical Education and Recreation
Youth Affairs Traineeships Australian and New Zealand Sports Law Association
Australian Schools Sports Council
Department of Foreign Funding to ASC for: National Sports Leagues
Affairs and Trade Asia Sport Linkages MLC Junior Sport Foundation
AusAidAfrica, South Pacific,
Caribbean
Australia Indonesia Institute
Australia India Council
Aboriginal and Torres Strait
Islander Commission Funding to ASC for Indigenous
Sport Program
Funding to regional communities
for cultural and sport activities
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Table 1 Organisational structure of Australian sport and recreation
continued over
Government Programs Non-government Programs
involvement and activities involvement and activities
Department of Veterans Affairs Rewards for Physical Training and industry groups
Activity Program Australian Sports Trainers Association
Department of Health Recreation Industry Council of Australia
and Aged Care Funding to ASC for Sports Recreation Industry Training Company
Safe, Active Australia and Outdoor Recreation Council of Australia
sport injury project Fitness Institute of Australia
Injury surveillance Fitness Australia
Promotion of physical activity
National coordination mechanisms
Sport and Recreation Ministers Council
Standing Committee on Sport and Recreation
National Elite Sports Council
SIGFPAH
Sports Exports Advisory Committee
Active Australia Alliance
State/Territory Ministers for Sport and Recreation State/Territory Sporting Organisations
Departments of Sport, Grants to sports Leadership to clubs
Recreation Policy Management &
membership data
State/Territory Institutes Athlete development Competitions
and Academies of Sport programs
Coach development State umbrella groups
Talent identification State Sport Federations As for CAS but at state level
State Olympic and Fundraising
Commonwealth Games
Organisations
Other State/Territory Departments and Government Agencies State/Territory organising committees and events corporations
Health Promotion Funds Grants to sport Events Corps in WA, VIC, Attracting and organising
NSW, QLD etc. international events
Education Departments Curriculum development
School facilities and playing
fields SOCOG Organise specific events
Provision of teachers of Melbourne Commonwealth
physical education Games Organising Committee
State/Territory Health
Departments
State/Territory branches of special interest and
professional groups
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(continued over)
Government Programs Non-government Programs
involvement and activities involvement and activities
Local Governments, City Councils etc. Non-profit clubs and private providers
Facility provision Inter-club competition
Mass participation programs Recruitment
Sponsorship
Community clubs and organisations
Social and recreational
sport
Regional associations
Regional Academies of Sport Programs for developing Regional sports assemblies
elite athletes
Elite performance at Regional Academies of Sport Athlete development
local level and services
Government schools and universities Non-government schools and universities
Physical education Physical education
Inter-school competitions Inter-school competitions
Community Health Centres
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The network
The sport and recreation delivery agencies do not operate in a vacuum. Formal and informal
linkages have developed over time in an effort to improve outcomes. These have been developed
in order to coordinate activities of agencies that have been established separately but whose
activities impact on each other. The structure that exists today is the result of unplanned growth,
or at least no centralised planned growth. Consequently, the structure is not integrated but has
mechanisms to facilitate communication and coordination across agency boundaries.
The main coordinating agencies are:
Sport and Recreation Ministers Council (SRMC) an annual meeting of the nine Sports
Ministers to discuss issues of mutual concern and means by which a consistent approach can
be taken to sports development across the nation.
Standing Committee on Recreation and Sport (SCORS) a bi-annual meeting of the nine CEOs
of sports authorities at Commonwealth and State/Territory level, which supports the SRMC
process.
National Elite Sports Council (NESC) quarterly meetings of the chief executives of the nine
institutes and academies of sport to discuss means of achieving closer cooperation in elite
athlete development.
Active Australia Alliance a management board for the Active Australia program involving
representatives from health, education and industry groups.
Recreation Industry Council of Australia (RICA) the peak forum of the industry sectors of
sport and recreation, training and employment organisations, professional associations and
interest groups.
Sports Exports Advisory Committee (SEAC) an informal grouping of public and private sector
organisations with a direct interest in enhancing sports exports and which provides advice to
the Commonwealth Trade Minister and Sport and Tourism Minister.
Strategic Inter-Governmental Forum on Physical Activity and Health (SIGFPAH) a forum for
national leadership in physical activity and health in Australia.
Increasingly, NSOs, as a key component of the system, are becoming more capable of managing
the key ingredients necessary for success, including coaching, training, competition and resources.
NSOs are supported by Commonwealth Government programs direct financial assistance from
the ASC and services such as the National Sport Information Centre, the National Coach
Accreditation Scheme, Volunteer Involvement Program, National Officiating Program and more
generally by the activities and programs of Active Australia.
Sport and recreation organisations receive assistance from non-government organisations. In
addition, sports have access to the ASF for fund raising projects.
The funding for sport and recreation comes from a variety of government and private sources.
Governments provide close to $2 billion, although the bulk of expenditure comes from individual
households. Table 2 shows the relative contributions of the respective sectors.
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Table 2 Sources of funding for sport and recreation in Australia
$million $million Total
Commonwealth Government appropriations
Australian Sports Commission 112.9
Australian Sports Drug Agency 4.6
Department of Industry Science and Resources 2.0
Other departments 2.1 121.6
State sources
Sport and recreation department appropriations 194.6
Gaming sources 87.5
Health promotion sources 2.7
Other
27
63.9 348.7
Local government
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Facilities 340.0
Programs 787.0 1,127.0
Private sources
Corporate sector
29
282.0
Australian Olympic Committee 20.0
Australian Sports Foundation 6.0 308.0
Participants
Household expenditure (excluding gambling)
30
4,146.0
TOTAL 6,051.3
Funding from the Commonwealth comes from a number of departments. Most of it is channelled
through the ASC.
Figure 6 shows Commonwealth expenditure on sport and recreation within departments and
expenditure through the ASC.
31
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27
Includes funding for events, general services, special projects
28
This data is from 1989-90 and is taken from the report on Local Government Sport and Recreation Provision in
Australia prepared for the Confederation of Australian Sport in November 1995 by Jak Carroll. The Task Force has been
able to get more recent figures of local government expenditure ($985 million for 1995/96) but cannot get the
information broken down into expenditure areas.
29
This is an ABS figure. Other figures are $850 million in Business Review Weekly and between $750 million and $1 billion
estimated by CAS in their submission to the Task Force.
30
ABS Sport and Recreation a Statistical Overview 1997, Catalogue No. 4156.0.
31
The Task Force cautions that this may not be 100% accurate. Expenditure in different departments for activities that
may impact on sport and recreation is not readily identifiable and some areas may have been overlooked.
Figure 6 Commonwealth funding in sport and recreation
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Health and
Aged Care
$.3m injury
surveillance
$.1m promotion
of physical
activity
Veterans Affairs
Rewards for
physical activity:
a portion of $.583m
grant program
ATSIC
Aboriginal Affairs
$7m to 35 regional
communities for
cultural and sport
activities, unknown
proportion allocated
to sport programs
Education,
Employment,
Training & Youth
Affairs
Approximately
$3-5,000 on
traineeships
(through
RICA)
ASDA

$4.5m testing
$1.1m education/
info
$.2m international
advocacy
ASC
$101.4 - elite sport
$13m - participation
$16.2m - national
sports infrastructure
Industry,
Science and
Resources
$13.6m facilities
$1.1m drugs
summit
$30.79m
NSW Govt
$1.12m SOCOG
$7.6m SPOC
$1.54m National
Safety
Organisation
Foreign Affairs and Trade
$.05 for Never
Too Late program
$.55m Asia Sport
Linkages
$.5m South Pacific
$.2 Africa AusAid
$.15m Caribbean
$.1 via Australia
India Council
$112.9m
$4.6m
$1.6m for
Indigenous
sport program
$.05 Sports Safe
$.2 Active Australia
public education
$.005 sport injury
Elite sport
The delivery of elite sport in Australia is achieved through a number of components.
Athlete training institutes: The AIS was established in 1981 and has become highly regarded
internationally as well as domestically. It has led the development of elite sport in Australia for
well over two decades and its success is widely acknowledged by the Australian public.
In 1999, in addition to the AIS, there are eight State/Territory institutes and academies of sport
plus several regional academies that cater for the needs of elite and developing athletes. These
have greatly enhanced the system by adding more resources, facilitating a national network and
service component for athletes, coaches and sporting organisations, and providing choices for
talented athletes. Their role in talent identification
32
and supporting the junior development of
many sports is important and should continue. It has increased the depth of talent which
underpins the elite ranks.
National sporting organisations: There are now a number of NSOs that are well-managed and
strategically focused with development plans that address all aspects of their sports, from elite
to participation. Much of this has resulted from policies and programs of the ASC.
Facilities: The availability of national and international standard facilities for competition and
training in virtually every State and Territory has also contributed to the overall infrastructure
supporting elite success.
Athlete support programs: The ASC through its various programs (in particular the AIS) has
developed systems and programs that have benefited the entire elite sport system. These include
advanced applied research and development in sports sciences, particularly physiology and
biomechanics, high level athlete medical services, excellent information systems based on the
National Sports Information Centre and world-leader accreditation systems for coaches and
officials through the ACC.
The elite sport network is shown in figure 7.
Funding for the elite sport system is provided by both the Commonwealth and State/Territory
governments and is primarily provided for programs of the institutes and academies of sport and
for support to national and State/Territory sporting organisations. Figure 8 is a diagram showing
the framework for elite sport funding.
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Much of which has been funded by the ASC.
Figure 7 Government involvement in elite sport delivery network
Figure 8 Elite sport funding framework
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Commonwealth
Consultative
Mechanisms
State/Local
SRMC
SCORS
NESC
Commonwealth
Minister for Sport
State Ministers for Sport
ASC Department of Sport
AIS State Institutes
Decentralised
Programs
Regional Academies
State/Territory
Governments
Commonwealth
Government
AIS Scholarship
Programs
State/Territory
Institutes/ Academies
Programs
Other Elite
Programs
SRMC
SCORS
NESC
ASC
NSOs
Intensive Training
Centres Program
Sponsors AOC
$88m
$16m
$4m
$39.5m
$5m est
$4.5m
$1m
$21m
Participation
One of the Governments objectives as stated in the ASC legislation is to improve participation in
sport. The achievement of this objective is dependent on a strong community sport base. Active
Alliance attempts to achieve this objective through a number of agencies that are not formally
part of the Commonwealth Government structure. These include clubs, schools, local government
and the public. The ASC provides leadership for a national participation strategy through Active
Australia via national coordination, marketing, industry development, research and monitoring.
The current participation delivery network is represented below followed by the participation
funding frameworks.
Figure 9 Commonwealth Government participation delivery network
Figure 10 Participation funding framework
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Commonwealth Minister for Sport
ASC
NSO
ASC
SCORS
SSO
Clubs
Active Australia Alliance
Active Australia Programs
VIP
Indigenous
Women
Provider Clubs
State
Government
Health:
SIGFPAH, NHF
Industry Peak
Bodies: RICA,
CAS
Local
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Community
and private
providers
Active Australia
Commonwealth
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ASC DVA
Active Australia and
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State programs
Community
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Local
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Sport programs Facilities
Health ATSIC
State/Territory
Governments
$11m $.05m $.25m $1.6m
$34m
$300m$400m
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Introduction
In its consultations about the adequacy of the current system, the Task Force found that there
was general consistency in the perceptions of stakeholders. These were broadly that:
Australias results in international sporting competition have been outstanding and show that
elite sport has been serviced well by the ASC. However, the system has grown up in an ad hoc
manner, resulting in duplication and fragmentation The elite sport system needs continued
support in order to consolidate its gains and provide a more robust base for continued success.
The lack of real growth in the membership levels of sporting organisations and the decline of
numbers participating in organised sport during the last 25 years suggests that strategies have
not achieved increased participation in organised sport. Australias health trends also suggest
that Australians have not embraced physical activity. There is a view among some stakeholders
that participation has been starved of resources while Commonwealth Government programs
have focused on elite sport, and that this situation needs to be redressed.
As a result of initiatives and resources provided over the past 25 years, Australian sport has
generally matured into a more sophisticated and complex industry. While most stakeholders
acknowledge that there is a great deal of unevenness in the competency of sport
management, there have been vast improvements in some sports and some are now capable
of managing their own systems with minimum Government direction. The sport owns sport
concept was espoused by nearly all stakeholders, although interpretation of what this means
in a practical sense was often unclear.
Sport and recreation is now gaining recognition as an industry and requires a different
approach from Government to provide the right environment to stimulate growth. This
growth depends on the Commonwealth embracing the full continuum of sport and recreation
activities and assisting both to reach their potential in terms of contributing to the economic
and social welfare of the nation.
The demographic and social landscape of Australia has changed over this period and continues
to change. The ASC has led sports through this period, but increasingly sports will need to be
more self-reliant and adaptable to change.
The following analysis provides more detail on these policy issues as well as some of the
operational issues that were raised with the Task Force.
Adequacy
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Elite sport
Introduction
The overwhelming response to the Task Force on the adequacy of the current elite sport
systemwas that Australia has been immensely successful in international sport. In particular,
performances in Olympic sport have been enhanced by increased funding under the OAP. This
funding has enabled the development and implementation of a more sophisticated high
performance program over the past four years.
The components of the Commonwealth Governments funding program for elite sport are:
high performance management;
increased international competition and training camps;
direct athlete support;
sports science and sports medicine services;
athlete, career and education services;
talent identification;
provision of equipment;
technology support;
funding to host international events in Australia; and
employment and training of coaches.
The provision of funds in these areas has led to significant change in the approach to, and culture
of, high performance sport in Australia. It has also resulted in significant improvement in
international performances.
Since the establishment of the AIS the most significant changes in elite sport have been:
the formulation of national coaching plans and coaching accreditation schemes;
improved competition for elite athletes provided by NSO initiatives and assisted by
Commonwealth funding;
increased adoption of sports science and sports medicine;
the growth of state government involvement in sport particularly through their institutes and
academies;
33
and
increased government funding.
Although most stakeholders recognise that the current system and levels of funding have
resulted in success, they warn that standing still with the same programs and structures will
mean that Australia will be overtaken at the elite end of sport. The ASC document Beyond 2000
identifies a number of international trends, including enhanced funding and systems overseas,
which will put new pressures on our sports system and athletes.
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33
Communications from State departments of sport indicate that in 19992000
State departments will expend $24.946 million on what they identify as elite
sport.
Another major change in elite sport has been the amount of money now paid to elite athletes.
The big sponsors in sport mostly want an association with the high profile participants and
such is the competition for exposure most of these funds are dedicated to a few privileged
individuals. In addition, athletes are forming cartels, which often exclude a large proportion of
their professional colleagues. These cartels bargain collectively for agreements which ensure
that they share a certain percentage of the income generated by the sport. Thus, the stars of
professional sport share between themselves a considerable proportion of the financial success
of their sport.
The effect of these changes has been that NSOs are locked into contracts which reduce their
discretional income. This means that they have to be aware of the need to allocate sufficient
funds to both the sub-elite and mass participation areas of their sport.
To maintain its competitiveness, Australian high performance sport needs continued Government
funding at a high level. This does not mean that the same programs need to be maintained, but
at least this level of funding would give High Performance Australia the latitude to make the
adjustments necessary to maintain Australias high standard of international competitiveness.
The results: international sport performances
The country has emerged from a low point in 1976 when Australian efforts at the Montreal Olympic
Games resulted in only one silver and four bronze medals. In contrast, Australian athletes achieved
41 medals nine gold, nine silver, 23 bronze and placed fifth nation overall in Atlanta in 1996.
The improvement in international sport performances has been steady and broadly reflects the
increased funding that has been provided to sport over the years. Australias Olympic Games
results are particularly indicative of this relationship and can be seen in figure 11.
Australia has also done well in non-Olympic sports. Currently, 25 Australian team sports are
ranked in the top three in the world. In addition there are 20 sports in which one or more
individuals are ranked in the top three.
During the six months of this review Australia achieved significant results in international
competition in a number of sports, including winning the World Cup in Cricket, the Champions
Trophy in mens and womens hockey, the World Netball championships, the Rugby World Cup, the
XIV International Cup in baseball and the Rugby League Tri-Series. In addition, Australia won world
titles in swimming, squash, surfing, triathlon, athletics and disabled sports and made it into the
finals of the Davis Cup.
Figure 12 shows Australias rise in international sporting performances in 43 sports since 1976.
Australias participation in the Commonwealth Games is important to Australians from a
sporting as well as cultural perspective. The Commonwealth Games also assist Australian
athletes in their preparation for the Olympic Games as they provide the experience of competing
in a national team at a large international event. Australian improvement in sport since the mid-
1970s is probably seen more in our gold medal results at Commonwealth Games than anywhere
else. Australian performances at Commonwealth Games since 1978 are shown in figure 13.
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Figure 11 Olympic medal performances by Australian athletes and funding 1976 to 1996
(In 199798 constant dollars)
Figure 12 International sporting performances by Australian athletes
Figure 13 Commonwealth Games medals won by Australian athletes
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0 0
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Funding Top 8 No Medals Top 16
1976-77 1978-79 1980-81 1982-83 1984-85 1986-87 1988-89 1990-91 1992-93 1994-95 1996-97
1st placings Top 3 placings
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1976 1978 1980 1982 1984 1986 1988 1990 1992 1994 1996 1998
Gold Silver Bronze
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1978 1982 1986 1990 1994 1998
The programs assisting our elite athletes with disabilities have also been outstandingly
successful. Australia is ranked the number one country in five sports and has a top four ranking in
every other world championship sporting event.
Figure 14 Australian athletes performances in Paralympic Games 1976 to 1998
Some submissions pointed to the cost of international sporting success, particularly Olympic
success. A study conducted at the University of South Australia
34
put the price of an Olympic gold
medal in the period 198096 at $37 million, or $8 million for the cost of any Olympic medal. The
study estimates that by the time the Sydney Olympic Games are held, governments in Australia
will have directed between $500 and $800 million in funds toward Australias Olympic athlete
preparation since 1979.
The statistics from the study do not take into account the number of other world championships
that were attained along the way to Sydney. Nor does it acknowledge the number of athletes who
have been assisted to reach very high levels of international results that are not reflected in a
simple medal tally.
The cost of preparation for the Olympic Games also has to be seen in the context of the overall
development of Olympic sport and the elite sport system. There are other returns to Australia
which have resulted from Olympic success. Intangible returns, such as increased national pride
and opportunities for our young people to strive toward a worthwhile goal, cannot be measured.
There are also economic returns. The Olympic effort will be more than counter balanced by the
economic returns of holding the 2000 Olympic Games in Sydney.
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1976 1978 1980 1982 1984 1986 1988 1990 1992 1994 1996
34
Submission from Kieran Hogan and Kevin Norton, The Price of Olympic Gold, School
of Physical Education, Exercise and Sport Studies, University of South Australia, 1999.
A recent study
35
has found that, over the entire period 199495 to 200506, the Sydney 2000
Olympics will generate a total of $6.5 billion in extra economic activity in Australia. This figure
includes an additional 1.5 million international tourists who will generate an estimated
$2.7 billion in tourism exports alone.
According to financial information collected by the Task Force from State/Territory and
Commonwealth Governments concerning their current annual expenditure on elite sport, the
annual cost is approximately $125.4 million, or $6.60 per head of population.
For its investment it appears that the Australian Government is getting excellent value. Australia
has arguably the best Olympic success record given its limited population size. Its medal count in
Atlanta was 2.27 medals per 1 million population. This compares with 0.8 medals for Germany and
0.4 for the USA.
The Commonwealth and State/Territory institutes and academies of sport
The provision of services to elite athletes has improved due to increased funding and the
involvement of State/Territory institutes and academies of sport.
36
There are nine institutes and
academies of sport that are informally bound through the NESC. This forum allows the directors
of the institutes and academies to meet regularly to discuss common issues and to coordinate
programs and delivery systems.
The growth of State/Territory institutes and academies of sport, some with significant budgets
37
and specific objectives relating to international success, provides opportunities for a more
sophisticated national system. The concept of a national training institute for elite athletes can
be achieved through utilising the State/Territory institutes and academies of sport many of which
did not exist at the time the AIS placed programs in the States. Alternatively, State/Territory
institutes could provide management of AIS programs in the States/Territories and thus reduce
the administrative duplication that exists for some programs.
Increasingly, the AIS has worked in partnership with State/Territory institutes and academies to
form a national network of training centres and to achieve economies of scale in centralising
some services, such as biomechanics and physiology. Much of this has been driven and funded
by the ASC.
The most significant assistance to State/Territory institutes and academies is provided through
the Intensive Training Centres (ITC) program. It provides funding to develop the second tier level
of elite athletes and thus increase the depth of Australian talent in those sports.
From the perspective of NSOs, the ITC is regarded as one of the major strengths of the system.
Australian Water Polo wrote:
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Economic Impact Study of the Sydney 2000 Olympic Games. Centre for Regional Economic Analysis, University of
Tasmania, January 1999.
36
Commonwealth and state governments have budgeted more than $125 million on elite sport in 199900 according to
financial data provided to the Task Force from state departments.
37
According to financial data provided by the NESC, the budgets for the Commonwealth and state institutes and
academies of sport totalled $54 million in 199899, of which the Commonwealth Government provided $28.29 million.
centralised/decentralised elite AIS programs supported by a ITC network is vital and must
continue to ensure the future of sport in this country (please note that the establishment of
a National ITC program within our sport alone has more than doubled the dollar value
provided by the ASC/AIS to our NSO and the success and effectiveness of our ITC program is
now being seen by the current results and world standing of our National Junior Teams).
The Task Force agrees that the ITC has been an important and progressive step toward developing
a national elite sport system. Under the proposed structure, the emphasis will be on NSOs
making decisions about how to structure their high performance programs; the Task Force
encourages NSOs to continue supporting the ITC program, or a variant of it, as part of their
national program.
While all the stakeholders are confident that the framework is right, some warn of its fragility.
There is a view that Australia doesnt really have a system, but rather a network that is passively
linked and held together by goodwill and the effort of individuals.
There is some tension between the AIS and the State/Territory institutes which is apparent in
the problems they have with badging (or branding) athletes. As an example, the Task Force was
informed that some high profile athletes are claimed by several institutes that have contributed
to their development at some point in their careers. The badging issue has distracted the
institutes and they recognise the political need to establish a neutral label that is acceptable
to all parties.
The concept of a national badge (e.g. athletes being branded by the national programs of their
sport or at a minimum joint badging with NSOs) is attractive because it could allow NSOs to seek
sponsorship for their national programs and take the heat out of the institute badging issue. This
reinforces the need for NSOs to develop their own brand image and enhance their own position
in the marketplace.
Another area raised with the Task Force related to duplication in some areas of elite sport funding.
These have occurred because of the rise of other agencies capable of contributing to areas that in
the past were funded only by the Commonwealth Government. These include:
incentive/reward schemes for athletes (the ASC Direct Athlete Assistance Scheme and the AOC
Medal Incentive Scheme); and
international sporting events (ASC funding from Events Corporations and AOC).
These suggest that some duplication in the funding and servicing of elite sport in Australia has
resulted from the ad hoc nature of the evolution of the system. In contrast the ASCs Athlete
Career and Education program and the AOCs Olympic Job Opportunity Programs are
complementary and a good example of cooperation.
The Task Force believes that problems of duplication could be overcome through a purchaser/
provider system, whereby NSOs, and not government agencies, determine the best structure and
placement of high performance programs, and through Memoranda of Understanding with
other funding agencies.
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Coaching and officiating
The improvement in Australias international sporting performances is due, in no small measure,
to the efforts of dedicated and highly skilled coaches. The National Coaching Accreditation
Scheme (NCAS) has been operating since 1986 and has increased both the number and quality
of coaches at all levels. Whenever the issue of coaching was raised there was a high level of
satisfaction with NCAS.
Table 3 NCAS registrations 1986 to 1999
One of the issues in coaching is that global market forces have become a factor in elite coaching.
The Task Force noted the prevalence of foreign coaches employed in senior positions. While sports
are to be commended for employing the most suitable and qualified person, the Task Force was
concerned about the mix of Australian versus overseas coaches and questions whether the
system has done enough to nurture local talent.
The Task Force believes more resources should be put into developing strategies to mentor
coaches. The ACC could work with the institutes and academies of sport to establish and operate
effective mentor programs. In addition, expanding the national coaching scholarship program
could be an effective means of ensuring that the skills of master coaches are passed on to
developing Australian coaches.
Australia may be in danger of losing these master coaches to more lucrative positions overseas. A
number of sports expressed concern that they might lose their international elite coaches after
the Sydney Olympic Games if funding levels deteriorate to a level where the coaches cannot be
adequately supported.
A few sports raised concerns about deregulation of the training market. Deregulation has arisen
out of government/industry/union initiatives as part of the national training reform agenda to
make Australia more competitive internationally. The ACC has responded by accepting the
providers which meet their course accreditation guidelines.
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The key issue for sport is that standards are maintained irrespective of the provider. This is a role
the ACC needs to consider against availability of resources.
The number of women coaches remains low (see table 4) and they are disproportionately
represented at all levels. The barriers to participation remain, for example, the timing of courses,
entry requirements and the availability of childcare. The Task Force suggests that the ACC work
more closely with providers of training to help them run their courses to facilitate higher
participation by women.
Table 4 Male and female coaches 1992 to 1999
Recommendation 22
The Task Force concludes that programs to educate and train coaches
have been successful in increasing both the number and quality of
Australian coaches although more could be done to increase the
number of Australian high performance coaches.
The Task Force recommends that strategies be developed further to
assist NSOs to mentor high performance Australian coaches and
encourage greater participation by women.
Sports science and sports medicine
One of the key factors in Australias continued success in international competition will be the
application of scientific and technical innovations, which is why the Task Force has recommended
that increased resources be put into this area.
Australia has a history of innovation in scientific training techniques. From the early 1950s, when
new swimming techniques gave Australian swimmers of the period a winning edge, Australians
have shown that they are capable of developing and adopting new ideas. The winged keel used
to win the Americas Cup in 1983 is one of our best known sport innovations.
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Australias focus on preparation for the Olympic Games has resulted in a variety of new products
to enhance training and performances. Some of these are:
cooling jackets to enhance thermo-regulation in hot humid environments used in Atlanta and
Kuala Lumpur by hockey and basketball teams;
rowing telemetry to monitor physical movement and provide instant real time data to coaches
which, when used with virtual reality-type goggles can be programmed to provide head-up
instantaneous feedback for athletes;
altitude house and tents to simulate high altitude environment at the normal, regular training
facilities used by swimming, cycling and athletics;
swimming competition analysis systemto collect data on swimmers to assist analysis of
individual performances;
immunology and exercise a technique for analysing saliva to ascertain immune status.
It is the opinion of the Task Force that Australias continued success in international competition
will depend in large part on its capacity to develop new training techniques, technological aids
and nutrition regimes that can legitimately enhance sporting performance. Psychology will also
play an increasingly important role in high performance sport in future. The Age
38
paints a future
in which players are fitted with transponders that track and record their every movement on the
field and micro-sized monitors keep track of their bio-system to precisely measure effort and to
calculate how much more they have to give.
The AIS Sports Science and Medicine Centre suggests that a higher proportion of research in
relation to servicing athletes is needed to maintain or improve performances by Australians. They
suggest that the right mix of research to servicing athletes would be a 30 to 70 ratio, whereas it is
currently 10 to 90 in the Centre. This could be achieved by reducing the number of athletes
serviced or increasing funding. The Task Force has recommended establishing an innovations
fund, to be administered by High Performance Australia, which could provide additional revenue
for research and development. The Task Force has been informed that approximately $3 million is
needed to properly fund such a program.
In addition to the AIS Sports Science and Medicine Centre, there are other agencies with
personnel and resources that can contribute to research and development in sport, including
other institutes and academies of sport, universities, Commonwealth Scientific Industrial
Research Organisation (CSIRO) and sport manufacturing companies. They should also have access
to the proposed innovations fund to conduct research and development. Sports science is an area
where a focused and concentrated effort, such as can be achieved through a Cooperative Research
Centre, would bring results.
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38
Baum, Greg, Wired world of sport, The Age, 3 July 1999, p. 6.
Athletes
Because we will get the best performances from athletes who are receiving the support and
services they need to achieve their personal sporting goals, we need to be alert to their needs.
All of the systems discussed above aim to help our athletes to achieve their best.
A comprehensive range of services is provided to athletes, including:
career and education advisory services (through both the ASC and the AOC);
financial support for living costs;
reward schemes (through ASC, AOC and private companies);
coaching of a high standard;
provision of medical services;
access to sports science testing and other services;
wider choice in programs (depending on the sport) and the opportunity to remain in their
home State/Territory and still access training and services at a high level; and
international competition of a high standard.
In meetings with the Task Force, athletes praised these services, saying that this support enabled
them to achieve their best and also gave them the opportunity to take up sport at a later age and
to remain in it for longer. The Athlete Career and Education (ACE) program was seen as particularly
important in preparing them for the transition from being an elite athlete to normality.
The Task Force commends these programs and the goal of athlete support programs to nurture
personal development as well as sporting success. The Commonwealth Government should
continue to set the standards and facilitate access to services by elite athletes.
Drugs in sport
The globalisation of sport is increasing rapidly and doping control and anti-doping policy are
becoming more complex. The use of prohibited substances and banned methods, or doping, is an
issue which raises passionate debate and involves a combination of money, reputations,
nationalism and ethics.
Sport, which was once an activity to fill in leisure time, has now become a way to earn a living
for some of our elite athletes. There are now substantial economic incentives for athletes to win.
Apart from medal reward schemes, there are the expectations of both personal and national
team sponsors. There are also shorter off-season periods, so athletes are under pressure to
continue to win, or at least perform at high levels, for longer periods.
The pressures of international sport create an environment for taking drugs, either for performance
enhancement or to assist recovery so that high levels of performance can continue. There is no
doubt that the commercialisation of sport and the potential of sport to provide a secure and
lucrative financial future has created a sporting environment where doping is all too common.
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Australia has one of the most comprehensive anti-drugs strategies in the world. ASDA has
established itself as a world leader in testing athletes and the efforts of ASDA, the ASC and the
AOC in assisting NSOs to develop education strategies and anti-doping policies are
commendable.
Some NSOs advised the Task Force that they wished to have more extensive drug testing but that
the cost of testing outside of the Government funded program was prohibitive. The Task Force
draws attention to the desire of some sporting organisations for more drug testing than is
currently available to them.
The Task Force noted a number of issues relating to drugs in sport, such as the limitations of
current analytical detection methods and the legal robustness of the system, which are being
addressed by ASDA and others.
Participation
Introduction
The common perception in the sporting community is that the strategies to increase
participation in sport have been under-resourced. There is also a view that recent activities of the
ASC participation division have gone beyond the charter of the ASC by working with agencies and
organisations outside the traditional sporting community.
The Task Force looked at these issues and examined a range of indicators relating to participation
to determine whether the objective of improved participation in sport had been met.
Unfortunately the indications are that:
Australians are not becoming more active in organised sport; and
memberships (registrations) in organised sport are not increasing in real terms.
The Task Force concludes that the long-term viability of many sport organisations is dependent
on them taking a broader view of their sport and adapting to changing client expectations.
The results: participation in sport and physical activity and registrations
According to ABS statistics, 52 per cent of Australians do not participate in sport of any form,
either organised or non-organised.
Only 6.6 million adults, or 48 per cent of the adult population, are physically active. Of these,
28 per cent participate in organised sport and physical activity and 20 per cent engage in social
sport or recreational activity.
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In addition, 61 per cent of children (or 1.6 million) aged five to
14 years participated in organised sport or physical activity outside of school hours.
40
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ABS, Unpublished data for the first three quarters of the 199798
Population Survey Monitor.
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ABS, Participation in Sport and Physical Activity, 199697.
That snapshot gives us very little information about trends in participation. To gain an accurate
assessment we need data over a period of years. The Task Force located some information on
participation patterns in 1975.
41
Unfortunately there is no reliable time series data until 199596
when the ABS conducted Population Survey Monitors at the instigation of the ASC.
42
The data in these surveys suggest there has been virtually no change in participation patterns.
43
1975 199596 199697 199798
26.9% 28.9% 26.6% 28.1%
The Tasmanian Government pointed out that current trends in participation, substantiated by the
ABS and other surveys, indicate high levels of participation in non-organised activities, particularly
those involving more individualised, adventurous and extreme activities that are at odds with the
structured nature of sport, particularly elite sport. Its submission reported that a survey of tertiary
students supported this view, suggesting that participation in traditional sports would decline in
the future.
In a survey conducted by the Melbourne Sports Network, clubs expressed concern about a lack of
new members at the junior level and, as in Tasmania, they linked this to the competition that
traditional sports face from new, or non-traditional, activities. (The Task Force believes this could
also be linked to the decline in school sport and the lack of exposure children have to sport in
their school environment. This is discussed later in the report.)
The Brisbane City Council reported a growing trend in the popularity of recreational sporting
competitions, as opposed to more organised and structured competitions. Its submission also
pointed out that demand for this type of activity has been taken up by the commercial sector. In fact,
local government surveys indicate that over 50 per cent of sport participation is non-club based.
It appears that the traditionally-based clubs are slow in making adaptations to capture this new
market. These trends are already being felt in falling membership rates. Clubs must be a little
more creative and adaptable in order to capture these sports people in their club networks.
Registrations in sports funded by the ASC have grown overall by 22 per cent since 1975. This is
less than population growth (25 per cent) and indicates a real drop in membership.
44 45
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This data is for persons aged 20 and over and is from the Green Paper on Sport and Recreation, 1975, p. 26. The Task Force
acknowledges that the collection methodology and definitions for 1975 data may not be the same as in 1999;
nevertheless it is the only data available.
42
This data is for persons aged 18 and over and is from ABS data reproduced in appendix three.
43
What the data does not show is whether Government programs have effectively neutralised the effect of other socio-
economic changes (increased home computing, proliferation of televised sport etc.) It may be that the figures for
participation would have shown a decline if these programs were not in place.
44
Data for 1975 is from the Report of the Australian Sports Institute Study Group November 1975 chaired by Allan Coles
and the data from 1998 has been provided by the ASC.
45
The Task Force acknowledges that this 1975 data may not necessarily be comparable with current data because the
collection methodologies may have been different. Nevertheless the data confirms a perception repeated often to the
Task Force by sporting organisations that there is declining membership in the traditional non-profit sporting clubs.
In 1980, CAS estimated that it represented 6 million sports people through its then 107 affiliated
national sporting organisations. That estimate accounted for 40 per cent of the total Australian
population.
46
In 1999, CAS has 120 affiliated organisations representing a membership base of
4.5 million,
47
now only 24 per cent of the Australian population.
The trend away from traditional sports, coupled with the fact that membership registrations are
not keeping pace with population growth, is disturbing. Sports can anticipate a declining
financial base, fewer volunteers, and declining membership at senior competition level which
will flow on to international competitiveness.
The Task Force believes that resolution of these issues is a matter for sport, rather than
Government. But it will be difficult for NSOs to meet these challenges unless they become more
professional and business-like. The Task Force sees the Government having a role in assisting
sporting organisations through better education, training and skilling of administrators,
managers and volunteers. The recommendations in this report emphasise the need to enhance
and improve the Commonwealths delivery of these services to sport and recreation.
Active Australia
Unlike elite sport, which has grown as a result of State/Territory involvement but otherwise
remains relatively unchanged from its original concept, the delivery of participation has had some
fundamental changes.
The strategies of the 1980s, targeting children, special population groups and the broader public
through Life. Be In It. advertising campaigns, have been incorporated into Active Australia. There
has also been a parallel shift in emphasis from participation in sport to a broader objective of
increased participation in physical activity.
Active Australia has taken on new partners, many of which are outside the traditional sport
structure that is the focus of other ASC programs. Partnering with health and by-passing NSOs to
contact delivery agents at the local level, has created misunderstanding in the sport community
about the Governments objectives and priorities in participation.
The Task Force received mixed messages about Active Australia. On the one hand there was a
view that it suffers from centralisation, is top down, programmatic and directive, tries to be too
many things to too many people, and is prescriptive and inflexible. On the other hand it was
described as excellent, does much to support opportunities and developments, and creates
opportunities and direction.
It seems that the perceptions about Active Australia depend on where the observer sits in the
system. For sporting organisations that have established their own participation programs, Active
Australia is viewed as unnecessary. It is also seen as diverting money away from the task of
developing an infrastructure to support activities within the sport structure.
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47
Personal communication from CAS.
In short, it could be said that Active Australia has a public relations problem. If so, that situation has
probably emanated from varying interpretations of whether recreation activities should be included
in participation. It may also be due to the fact that Active Australia is a relatively new concept.
Australian Swimming wrote:
The NSO should be the only body/organisation funded to deliver sport participation
strategicNational programs such as Active Australia should be conducted solely through
sporting bodies, therefore eliminating the promotion and provision of services to organisations
operating outside the context of sport, including those associated with private enterprise.
The view from outside the traditional sport structure is different, as put by Parks and Leisure
Australia:
In order to both maximise participation and encourage active lifestyles, the traditional club
sport base must be supported through a parallel participation infrastructure which allows for
recognition and encouragement of the individual.
The issue of which delivery agents Active Australia should use is contentious.
The submission from VicSport argues that, in by-passing the national sport structure in order to
get to the grassroots, Active Australia risks splintering the focus of delivery.
the task has fallen to local government and regional sport assemblies to provide
infrastructure development to grassroots sport in order to be able to deliver Active Australia
activities. In this sense, resources are being directed away from established sporting structures,
thus splintering the focus of delivery.
On the other hand, the submission from Sports Assemblies in Victoria is very supportive of the
direction of the Commonwealth Government and says that Active Australia has:
set in place the framework for a coordinated approach to sport, recreation, health and
physical activity, that the industry has not previously experienced.
Some State/Territory departments of sport and recreation expressed concern about the potential
of Active Australia to undermine State/Territory initiatives by going direct to local government
agencies. They prefer that participation outcomes be delivered via their programs.
The Task Force believes Active Australia should continue to deliver its services and programs
through the most appropriate agencies, but should also ensure that mechanisms are in place to
keep State/Territory departments of sport and recreation informed. In the delivery of Active
Australia, the Task Force suggests flexibility to make the program inclusive of a wider range of
activities undertaken by sporting organisations and other government agencies.
Despite criticisms, there is a common perception that the framework of Active Australia has the
capacity to create partnerships, set goals and provide the impetus for an improved system to
increase participation in physical activity. In particular, health outcomes can be delivered through
Active Australia justifying the expansion of its charter beyond sport. The Commonwealth
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Department of Health and Aged Care acknowledges the contribution which Active Australia can
make to the National Health Strategy by being a part of the Active Alliance.
There is also much to be gained economically from increased participation by Australians in
physical activity. SIGFPAH pointed out:
Physical activity is clearly the central platform which the future of the industry must be built,
if it is to achieve its full potentialSIGFPAH commends this as one of the most important
structures with the potential to improve the return on investment in sport and recreation for
the whole Australian community
The Tasmanian Government argues that Active Australias potential impact on the Australian
community, in terms of overall benefits, is greatly under-valued.
This is a critical period in the development of Active Australia. If the Commonwealth Government
is to have a national policy on participation in sport and physical activity, it needs to articulate its
commitment clearly to the Australian community and provide adequate resources to meet this
objective.
The other key issue that was raised relating to Active Australia and the Governments general
involvement in fostering participation was the inadequacy of current funding levels.
There was a general consensus among sporting organisations and individuals with whom the
Task Force met that the participation area has been a low priority of the ASC and that this is
reflected in the low levels of funding to achieve participation objectives.
In its 199900 operational budget the ASC allocated $12.9 million for improved participation in
sports activities by Australians. The ASC currently spends 10 per cent of its operational budget on
outcomes relating to improved participation in sports activities by Australians and this compares
with 78 per cent on outcomes relating to excellence in sports performances. The participation
area has 10 per cent of the funding and 5 per cent of the staff.
There are several reasons offered for this imbalance:
participation gets the bulk of government expenditure when State/Territory and local funding
is included;
it is appropriate for the Commonwealth Government to focus on elite sport because it assists
national teams; and
elite sport delivers role models who inspire and encourage participation at lower levels.
Whatever the reasons, the trends in participation discussed in the preceding section and the data
on health discussed elsewhere in this report suggest that our efforts could be improved and that
achieving increased participation will require more than riding on the coat tails of elite sporting
success.
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The Task Force concludes that the emphasis on elite sport has
overshadowed the importance of delivering increased participation in
sport and recreation and that the current funding level is inadequate.
Volunteers
There are about 1.7 million Australians (11.7 per cent of the population) involved in club and sports
associations as organisers, coaches, officials or other roles.
48
The labour provided to sport by
volunteers is a major resource for the industry, conservatively valued at $1.6 billion
49
per annum.
Sports advised the Task Force that volunteer numbers are declining.
50
The Task Force was not able
to confirm or refute this statement through statistical data. They were concerned about the effect
this decline would have on their future viability because volunteers are important in revenue
generation, recruiting new members, administration and conducting competitions.
Factors such as professionalism, globalisation and a wider range of alternatives no doubt have
some relevance. But increased social and economic pressures which erode an individuals time for
community work also takes its toll on the availability of people to contribute time to voluntary
work.
The Task Force takes the view that, rather than trying to win back the old style volunteers, it is
better to introduce initiatives which address the problems from a slightly different angle
for instance, providing incentives in conjunction with local business and involving retirees or
others who are not necessarily members of NSOs.
The environment in which sport is undertaken is changing and the demands and expectations of
participants are changing rapidly. How sports respond to a consumer-oriented environment will
determine their long-term viability.
There is a trend toward individualism and an attraction to more challenging physical pastimes.
Demographic changes ageing population, immigration are affecting the choices people make
in sport.
People are changing in their demands and expectation from sport. Increasingly, they demand
professionalism, from trainers, coaches, volunteers and facilities. They want greater choice and
they want convenience sport on demand, provided in their own time. With greater awareness
of the risks involved in physical activity, individuals are demanding a safe and secure environment.
Sports that dont have this environment, or which use unqualified trainers, risk liability. The role of
volunteers is becoming increasingly more complex and probably less attractive than in the past.
The increasing sophistication of consumers of sport and recreation experiences means that,
unless sporting organisations are able to adapt, they may find themselves with fewer consumers
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ABS. Involvement in Sport, 1997, Australia. Catalogue No. 6285.0 AGPS, Canberra
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Confederation of Australian Sport. An Economic Impact Study of Sport, Canberra, 1998.
50
The Task Force did not obtain the statistical data to confirm or refute this statement but
has taken it on face value because it was a common statement from sporting organisations.
and members, as well as volunteers. New strategies need to be developed: innovations that fit
their sport into the modern lifestyle and partnering with other agencies, such as schools, gyms or
other providers.
The pressure for management and governance change will emanate not only from government
agencies, but increasingly from members. As stated before in this report, this problem can only be
overcome through better management practices and improved education, training and skilling of
the personnel involved in the delivery of sport and recreation activities.
The Task Force believes that a new approach to sourcing volunteers is needed. Australian Sport
and Recreation Development can help to develop new strategies to lift volunteer numbers.
School sport and junior development
The issue of physical education, and more importantly sport in school, was raised frequently with
the Task Force. Sporting organisations point to a decline of sport in schools and urge Government
to address this issue. The Task Force was informed that this is primarily a State/Territory, and not a
Commonwealth responsibility, and is one for education and not one with which sport
authorities deal directly. Nevertheless, the Task Force feels that attention should be drawn to such
an important issue.
The value of school sport cannot be overstated. Studies have shown the importance of sport and
physical activity for young people:
51
Most of these investigations demonstrate the positive influence of sport on the personality and
on the well-being of those practicing sport and in particular on children and school children
both in and out of school.Moreover, it is believed that cultural values, personal and social
attitudes and behaviours learned in the physical activity setting transfer to other spheres of life.
Teaching children physical skills develops their physical capacity for taking on other sport and
recreation activities later in life. Many of our top sportsmen and women started in school sport.
For example, swimmer Ian Thorpe started off in school games at aged 10 and distance runner
Steve Moneghetti had his first racing success in Year Seven.
52
They both hold school sport in great
esteem, as Steve Moneghetti said:It is an integral part of a balanced education.
The Task Force is concerned that such an important and vital aspect of life learning skills and the
development of healthy habits which will serve children into adult years, is no longer being given
the same emphasis in school curriculum.
Teachers can generate enthusiasm for sport among their students. Teacher awareness of the
benefits of sport is critical to this. The Task Force sees benefit in including the role of sport as part
of teacher training courses in order to raise this awareness and boost the profile and emphasis of
sport in school.
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Vudri, I., P Fentem, B. Svoboda, et. al. The Significance of Sport for Society: Health,
Socialisation, Economy - A Scientific Review, Council of Europe Press, 1995.
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A Senate Inquiry into physical and sport education was held during 1992.
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As a result, physical
education has been put back on the national curriculum as a core learning area. Unfortunately the
delivery of physical education is not uniform and while some States/Territories have implemented
extensive changes, others have not. There is still considerable room for improvement.
The submission from the Queensland Department of Tourism, Sport and Racing highlighted the
problem of under-resourcing junior development in schools, pointing out that the Health and
Physical Education curriculum in Queensland proposes that only 30 per cent of the time devoted
to this subject be committed to physical activity.
Another factor in the importance of school sport is that family lifestyle changes make it
increasingly difficult for parents to have the time or money to get involved in community sport.
This was reinforced in a submission from Graham Cuskelly of Griffith University:
This points to the importance of physical education and sport in the school system and the
need for a much stronger role for physical education in sport policy. There needs to be a much
clearer link between school-based programs and the transition to the community sports club
system. Policies and programs need to ensure that young people are not denied opportunities
to participate in sport, because their families dont have either the time or the money.
The Task Force strongly endorses this view and believes that Active Australia needs to put greater
emphasis on linking school sport with the community sports club system.
The Task Force is of the view that there is a large number of retirees in the community who have
something to add to the development of junior sport. Active Australia, in conjunction with sport
and recreation organisations, should attempt to entice the retirees to assist juniors.
The submission from Graham Cuskelly also pointed to the attractions of other leisure activities
that can be easily substituted for involvement in club-based sport. This was somewhat
contradicted in a survey of children aged eight to 15 conducted for the Kids Help Line. Children
were asked questions about their pastimes and their responses indicated that ball sports (at
25 per cent) were most popular, followed by spending time with friends (15 per cent). Playing
computer and video games ranked fifth at just under 10 per cent.
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So clearly, sport activities are
still a major attraction for children in Australia. The challenge is to develop systems and linkages
that provide the opportunity for children to connect with sport.
CAS drew attention to a recent review of the National Junior Sports Policy and their view that the
extent and significance of its impact has been undermined by failure to invest in the
implementation and delivery infrastructure. They point to the generally weak link between
schools, community and club-based sport. CAS advises that junior sport is in need of a significant
overhaul as part of a larger review of the infrastructure that designs, develops and delivers the
programs and services for increased participation in sport.
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Report on Physical and Sport Education. Senate Standing Committee on
Environment, Recreation and the Arts, December 1992.
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The Age, Theyre still happy little Aussie mites. 13 July 1999, p. 4.
Recommendation 23
The Task Force concludes that the issue of junior sport development
and the role of schools in providing children with basic motor skills is
of the utmost importance for the future development of sport and a
healthy community.
The Task Force concludes that linkages between schools and
community clubs is vital for the success of any junior sport programs.
The Task Force recommends that the Commonwealth Government,
through Active Australia, take a proactive role in promoting the
implementation of the National Junior Sports Policy and in assisting
in the development of an infrastructure that links schools with junior
sport and sporting clubs.
Access and equity
The Task Force met with representatives from a number of organisations representing groups
with special needs. Some of them are operating outside government influence and completely
without assistance and some are aspiring to greater representation or recognition. Because of
their differing environments and circumstances, different inputs are required to achieve the
outcomes they desire.
People with disabilities
The performance results of our Paralympians were discussed earlier. Many factors have
influenced the rise of Australia in world standings, not least the dedication of elite athletes and
coaches, the support of government and non-government organisations and the increasing
opportunities available at State/Territory and national levels for meaningful competition. Crucial
to this is the general acceptance in Australian society that sport for people with disabilities is
bona fide and deserving of elite status.
This success at the elite end is as much to do with Australian culture and acceptance as it is with
organisation and expertise. With an accepting and accommodating culture and an efficient and
effective level of service targeted at a relatively small sector of the market, the prospects of
continued success at the elite end of sport for people with disabilities is excellent.
The Paralympic Preparation Program has focused Commonwealth Government financial support
at the elite end. However, there are other programs, such as Coaching Athletes with Disabilities,
Willing and Able, and a physical education (PE) and sport program for young people with
disabilities, which address broader participation goals. These are equally important, especially
given that approximately 3.5 million people in Australia have a sensory, physical, intellectual or
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psychiatric disability, and that 20 per cent of the population would qualify to compete in the
Paralympic Games.
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The Commonwealth Government has fostered the integration of programs for disabled athletes
into mainstream sport. The success or otherwise of this policy is still under scrutiny by disabled
groups. It has been successful in some sports but it is clear that this is so only when the particular
sport is supportive of the programs. There is growing support for additional assistance for sports
to achieve integration goals.
Concern was expressed in submissions to the Task Force that funding for the disabled will be
reduced after the Sydney Paralympic Games and that the gains in elite sport and general
development will go backwards. In addition, if funding to NSOs is reduced, it is unlikely that they
will have the resources to effectively address integration strategies.
Recommendation 24
The Task Force concludes that strategies for assisting elite athletes
with disabilities to achieve international sporting performances are
effective.
The Task Force recommends that funding for programs to assist
talented athletes with disabilities be maintained.
Recommendation 25
The Task Force concludes that the philosophy of mainstreaming
services for disabled athletes is an effective way of integrating services
and ensuring that athletes with disabilities receive the same level and
quality of support as able bodied athletes.
The Task Force recommends that funding and assistance continue to
be provided for strategies and programs aimed at providing better
opportunities for groups with special needs. Active Australia should
work with other groups to facilitate integration of special needs into
programs and services delivered by the Commonwealth and other
groups.
Indigenous
The Task Force believes that it is important for government to provide better sport and recreation
opportunities for Indigenous people, especially in remote areas of the country, in order to improve
health, social and economic conditions.
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Representatives from the Aboriginal Torres Strait Islander Commission (ATSIC) drew attention to
problems in the indigenous communities which could be moderated by greater participation in
sport and recreation. The high suicide rate of young indigenous people and the general health of
indigenous adults were two particular areas of concern.
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The link between being overweight and
major health problems is discussed elsewhere in this report, but statistics show it is an even more
critical problem in the indigenous population. Providing better sport and recreation activities for
indigenous people is seen as a way to reduce individual health risks.
ATSIC advised that sport is very important to young indigenous people because the playing field
is seen as a place where true equality can be achieved. Fostering opportunities for participation in
sport and opportunities for individuals to reach their potential was seen as crucial to social issues.
Central to this was access to suitable facilities in both rural and urban areas. ATSIC advised that
there are no facilities in most rural areas and access in urban areas can be restricted due to racial
problems.
One of the other key issues identified by ATSIC was the need for cross-cultural awareness by
others who deliver services and training. They suggested that courses for coaches, referees and
others could be made more culturally inclusive and eventually delivered by indigenous people.
The Northern Territory Department of Sport and Recreation has successfully converted a number
of Active Australia products to user friendly material for Aboriginal communities. At its Institute
of Sport, despite 40 per cent of the 150 athletes being Aboriginal there are still cultural difficulties
in moving talented people from remote communities to Darwin.
In remote areas, transport for competition is a huge problem and communities often need help in
investing their sporting grants wisely. The Department is of the opinion that greater benefits
could flow if ATSIC programs were coordinated with Territory programs.
The Task Force concludes that sport for the indigenous community
needs to be specific to their cultural and social needs. At the time of
the Task Forces review, ATSIC was undertaking its own review of sport
and recreation involvement. The Task Force supports the ATSIC review
as an avenue for the expression of indigenous issues and solutions.
Women
The Task Force notes that women and physical activity is an issue for the Commonwealth
Government and that a new national policy on women and girls in sport, recreation and physical
activity was launched during the review. Nevertheless, discussions with sporting organisations
revealed a perception that the ASCs commitment to womens issues had decreased. The recent
disbandment of the Women and Sport Unit of the ASC has fostered that perception.
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Indigenous adults aged 18 years and over are twice as likely to be obese as non-Indigenous people according to data
from ABS, 1995 National Health Survey: Aboriginal and Torres Strait Islander Results (ABS Cat. No. 4806.0).
The main concerns from these organisations related to access to participation and leadership
positions.
Regarding participation, they pointed to an ongoing need to provide the right environment to
encourage women to take up health-improving activities in sport and recreation. Womensport
and Recreation NSW wrote:
There is still a way to go before sport and recreation in Australia operates on a level playing
field for all Australians. The needs of women and girls, culturally diverse people, Indigenous
Australians and the disabled are getting better recognised and understood. It is expected that
the Review of Australian Sport 2000 will address the equitable provision of opportunities in
sport and recreation and make some major recommendations on equity and valuing diversity.
In the case of women, who make up 51 per cent of the population, WRNSW would like to
recommend increased participation outcomes through more funding and an increased
number of women in decision making and leadership positions.
Womensport Australia pointed to the increase in sporting organisations catering specifically for
women because participants have become disillusioned with existing parent bodies.
Womensport Australia recommended specific strategies which Government could use to improve
equity in sport:
appointment of a womens policy officer in the ASC to advise on policy and project
development across the ASC and to ensure adherence with Government policy on women in
sport;
inclusion of equity provisions in the ASC annual sports management review process with
NSOs;
revision of the ASC charter to include a capacity to serve non-structured sport;
national strategy to coordinate the provision of facilities (community sport and recreation) and
programs; and
collection of disaggregated data to assess the impact of policies and programs.
While the Task Force does not see its role as being to recommend the specific strategies by which
the Commonwealth should tackle specific issues, it agrees that a continuing effort needs to be
made by sport and recreation to increase opportunities for women and girls to participate in
sport and recreation at all levels.
The Task Force supports the policy and strategies in the Commonwealths policy Active Women:
National Policy on Women and Girls in Sport, Recreation and Physical Activity, 1999-2002. In
particular, it identifies the need for the Commonwealth Government to ensure that NSOs
and other sporting and recreation organisations are implementing the strategies at the grass
roots level.
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Recommendation 26
The Task Force concludes that the Commonwealth Government has a
continuing role to play in assisting sporting organisations to adopt
strategies that will increase the participation of women and girls in
sport and recreation.
The Task Force recommends that Active Australia assist sport and
recreation organisations to adopt and implement the National Policy
on Women and Girls in Sport, Recreation and Physical Activity.
Older persons
Australians have among one of the longest life expectancies in the world. For a male born in the
period 199597, life expectancy will be 76 years and for a female, 81 years. Currently, 12 per cent or
2.3 million Australians are 65 years of age or older, by 2021, around 18 per cent of the population
will be in this category and this proportion will increase to 25 per cent by 2051. In older age groups,
there are proportionately more women than men. In 1997, 56 per cent of the population aged
65 or more were women.
In the International Year of Older Persons, 1999, the Commonwealth Government has prepared
a national strategy for an ageing Australia. This strategy aims to inform the community and key
stakeholders about current health and aged care arrangements, identify emerging issues
associated with population ageing, and discuss possible directions to enhance the capacity of
health and aged care systems to respond to the needs of Australians as they age.
In this context, strategies to increase the proportion of older Australians involved in sport and
physical activity are critical. As examined earlier in this report, there are enormous benefits to be
gained from physical activity in terms of health, social and economic improvements for the
individual and local community. These benefits are even more applicable to the aged.
The Task Force is aware of the activities undertaken by the ASC through Active Australia to
highlight the benefits of being more physically active. These include the Never Too Late program,
Research for Older Women, Active Australia Awards and the Indigenous Sports Program. With an
ageing population the Government needs to recognise the link between physical activity and
physical and mental health, and to incorporate physical activity into preventive health strategies.
Other issues
Education, training and management improvement
The Task Force has recommended the establishment of a new business unit called Australian
Sport and Recreation Development to provide a clear focus on the development of NSOs and
other sport and recreation bodies. This unit would take a national perspective and would provide
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assistance to the whole of the industry: sport and recreation, organised and non-organised
activities. Its underlying purpose would be to build self-reliance and foster growth in an emerging
industry.
As discussed earlier in this chapter, sporting organisations require assistance to improve
governance and management in order to remain viable in a rapidly changing social environment.
Education, training and skilling are key factors in improving the competency standards of
managers, administrators, coaches, volunteers and others.
The importance of this area was highlighted by the Brisbane City Council:
There are increasing requirements from national sporting organisations and government at
all levels for more professional management, increased accountability, more sophisticated
knowledge of coaching techniques, marketing, promotion, use of technology and general
business performance for all community groupsThe management and administrative skill
base for community groups must be increased as a matter of urgencyThe current system of
national coaching accreditation and training appears to be well supported and functioning
effectively perhaps this could provide some useful modelling information.
The ASC currently has a range of training and accreditation programs to skill providers of sport at
the grassroots level and at intermediate levels up to that of international competitions. These are:
Volunteer Involvement Program (VIP) to train club officials in club management, accounting,
competition organisation, volunteer management, etc;
Management Improvement Program (MIP) which works with NSOs to address management
and governance issues;
a National Officiating Accreditation Scheme which trains umpires and referees etc; and
a National Coach Accreditation Scheme (NCAS) under which some 30,000 coaches are
accredited each year.
These are managed in different areas of the ASC. There is a view that this administrative
arrangement is not ideal. VicSport wrote:
The Management Improvement Program of the ASC operates at the top end of NSOs, while
Active Australia concentrates on management improvement through volunteer involvement
and club infrastructure development. Ideally, the management function should cascade on a
continuum from national through State/Territory and club structures for each sport.
The AFL wrote that:
a Training and Education section dedicated to policy development and provision of
guidelines to sports on how best to operate within the broader training regimes that are
emerging should be investigated
The Task Force believes that the various aspects of education and training should be coordinated
and integrated where appropriate. They should be structured so that people can move between
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programs and access the parts that are most relevant to them. All the education elements that
are currently dispersed through the ASC should be brought together.
The Commonwealth Government has a responsibility to guide change and to promote standards
and practices that accord with broader social objectives (such as equity, access, ethics, safety, cross
cultural awareness, etc.). These should be reflected in all training and education packages.
The Task Force reinforces the importance of its earlier recommendation that a group be
established within Australian Sport and Recreation Development which drives improvements in
education, training and skilling of personnel in the sport and recreation industry. Additional
funding of approximately $3 million should be provided to enhance this function.
Statistical services
It is also proposed that Australian Sport and Recreation Development have a statistical analysis
group. One of the weaknesses in the current system is that the industry does not seem to have an
effective voice. While both CAS and RICA informed the Task Force that they did (or could) provide
a public face for the industry, there has been limited Government assistance to develop this role
and there has been limited and unreliable statistical information for them to use. Australian Sport
and Recreation Development, in particular the proposed statistical group within it, will work with
these bodies in order to facilitate the collection and dissemination of data and information vital
to the future growth of the industry. The Task Force estimates that a minimum of $1 million is
needed to improve collection and analysis of statistical data.
Technology information services
The online environment, and the Internet in particular, is becoming a critical tool in providing
services to the public. With 31 per cent of Australias adult population (4.2 million adults) and
62 per cent of 1825 year olds accessing the Internet regularly and the close correlation between
the demographics of sports participants and Internet users, the online world is one which
sporting organisations at all levels must use to maximise the benefits.
The Task Force received a proposal to enhance SportNet by providing additional assistance with
training programs, development of specific applications and services, and providing information
technology support services. The Task Force thought that there was merit in providing additional
resources to SportNet.
SportNet has the potential to improve data collection in the industry through online registration
and to streamline reporting processes to government. These, and other administrative changes,
could deliver savings in time and resources for both paid employees and volunteers whose effort
can be redirected to other initiatives and priorities. Also the potential for conducting commerce,
collecting revenue and providing online services such as coach education could be realised
through a sophisticated and comprehensive SportNet system.
The Task Force was informed that a barrier to the uptake of SportNet was a lack of competency in
computers, information technology and the Internet by potential users. This may inhibit
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capitalising on the opportunities that SportNet offers. A program which can overcome these
initial barriers and provide ongoing education and training, as well as vital technical support and
applications that meet the needs of sport, would assist organisations to take up the new
technology.
The Task Force was informed that, without a significant number of organisations participating in
SportNet, the industry would be unable to gain the maximum benefit. This means that the take-
up rate for SportNet needs to gain momentum soon in order to establish its long-term viability.
Although the development of SportNet to this point has been in partnership with the private
sector, the Task Force received advice that $3.7 million per annum for four years would accelerate
the take up rate and provide improved performance of the SportNet system. The long-term aim is
to develop a commercially self-sufficient product, eventually sustained by an improved bottom
line through minimised costs and increased revenues.
The Task Force supports this direction and proposes that increased resources be provided to
SportNet to enhance its attractiveness so that it is taken up quickly and becomes firmly
established as a management and marketing tool for sport and recreation organisations.
International sporting events
Holding major sporting events in Australia brings success, international recognition and
economic benefits.
Increasing the level of international competition in Australia benefits elite and developing elite
athletes by giving them quality competition with the advantage of competing on home soil.
There are other advantages in terms of costs and our media profile, both domestically and
internationally.
Prima facie there would also appear to be economic advantages in staging major international
sporting events. The emergence of State/Territory events corporations in virtually all
States/Territories attests to the view at State/Territory level that there are economic spin-offs
from such events. The Victorian Government, for example, has a strategy of hosting world class
events as a major contributor to the States overseas and interstate image, particularly through
the Australian Open tennis, Australian Formula One Grand Prix, Bledisloe Cup, Melbourne Cup,
AFL Grand Final and the 2006 Commonwealth Games. It has been estimated that such events
will add $524 million per year to the State economy.
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The Commonwealths role is limited to providing direct grants, sponsorship or underwriting up to
a level of $150,000 to NSOs toward the cost of hosting world championships and other major
international events. Funding is not provided for multi-sport events such as the Masters Games or
the Goodwill Games. These limitations came under criticism during the review from some
sporting organisations and committees organising events currently excluded from ASC funding.
They wished to see more financial assistance in this area. They justify Commonwealth
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Communication from the ASC.
Government expenditure by pointing to the significant ways that such events contribute to sport
and tourism.
The Task Force notes that the involvement of State/Territory Governments and private event
corporations over recent years has enhanced opportunities for many sports to attract major
events. The economic benefits of holding such events are also very specific to the host city. As a
result, the role of the Commonwealth in providing direct funding should be seen as a lesser
priority than maintaining the system of support to Australias elite athletes.
The Task Force also draws attention to the intention of the AOC to become more active in
assisting NSOs to attract international events after the 2000 Olympic Games.
The Task Force recognises that the Commonwealth contributes to international sporting events in
other ways for example by preparing athletes for high level competition, improving the
competency levels of coaches and officials and by providing assistance, where appropriate, for
facilities and other infrastructure for staging games.
Recommendation 27
The Task Force concludes that the involvement of State/Territory
Governments and event corporations has enhanced the ability of
NSOs to attract and hold international sporting events in Australia.
The Task Force recommends that the provision of funding to hold
commercial events which are underwritten or funded by
State/Territory event agencies should not be a priority of the
Commonwealth Government.
Facilities
A key ingredient in the overall sport and recreation equation is facilities sport cannot be played
unless there is somewhere to play it. There is a clear link between the national objectives of
participation and sporting excellence and the availability of facilities. This is shown
diagrammatically in the figure below.
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Figure 15 Inter-relationship: sports development and sports facilities
The issue of facilities was commonly raised in submissions to the Task Force. Tennis Australia, in
their July 1999 submission, pointed out that its facilities infrastructure is extremely poor and
foreshadowed that the next Davis Cup tie, if played in Brisbane, would be at a football stadium
because there is no suitable tennis venue in that city.
58
A few submissions pointed out that pressure was increasing from new sports for specialist
facilities and development programs. Other submissions indicated a need for multi-purpose
venues to cater for community recreational needs and an urgent need for funding to refurbish old
facilities. For example, the South Australian Office of Sport and Recreation indicated that funding
in the order of $50 million is needed to refurbish local swimming pools and this is beyond the
capacity of the State or local communities to fund.
Information from the ASC indicated that there are 23,500 sports facilities in the nation and that
close to $400 million in new stock is being added each year. The average age of facilities is some
17.5 years, meaning that maintenance costs are an increasing problem. Yet, there is currently no
national facilities plan that identifies national sport requirements and operational objectives.
While the Commonwealth has, from time to time, funded facility provision, this has traditionally
been seen as a State/Territory and local government responsibility supplemented by private
investment. In 199900 the budgets from State/Territory and local governments are likely to be
of the order of $300 to $350 million.
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International
competition
Elite athlete
preparation
National competition
championships and leagues
Inter-state and inter-club
competition
Club and recreation
competition
Physical education
and school sport
Recreation
International standard
facilities
AIS and State institutes -
training facilitities
National
standard facilities
Clubs
Local government facilities
Schools and universities
Child care
Home
Parks and bushland
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As it turned out, their forecast was accurate.
These issues are not new, and they were the subject of a report from the House of
Representatives Standing Committee on Environment, Recreation and the Arts in October 1997,
Rethinking the funding of community sporting and recreational facilities: A sporting chance.
The Task Force found it interesting that, despite facilities being an issue that concerns sports and
State/Territory, local governments, the key recommendations in the report have yet to be
implemented. Recent agreement by SCORS on a common data base under which to undertake a
national audit of sporting and recreation facilities is a step toward a needed strategic approach to
facility provision and usage.
Recommendation 28
The Task Force concludes that the provision of facilities for
community participation in sport and recreation, the training of elite
and developing elite athletes and for holding international sporting
events is critical to meeting the Commonwealth Governments
objectives in sport and recreation.
The Task Force recommends the completion of a national audit
of sporting and recreation facilities be a high priority and that the
Commonwealth take a leading role in developing a strategic approach
toward the development and funding of facilities. The availability of
sports facilities at schools and universities should also be factored
into planning at the local level.
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Contestability purchaser/provider
The National Commission of Audit Report (1996) and the Mortimer Review of Business Programs,
Going for Growth (1997) both advocated the use of the purchaser/provider model.
Recommendation 4.5 of the Mortimer Report stated that:
Portfolios administering business programs to separate policy development and program
delivery aspects, with program delivery to be administered through separate service agencies
and outsourced as appropriate.
Likewise, the National Commission of Audit Report (1996) stated:
Delivery of desired outcomes is usually better if opened up to competition, so that suppliers
within and outside the public sector can tender for the services required.
Where feasible, the intended beneficiaries of the program - clients - should be empowered by
allowing them, rather than the provider, to take on the purchaser role. This avoids the situation
where a providers self interest dominates the design of the program.
Under the current system the ASC is the prime funder of NSOs and the AIS. NSOs should be in a
position to purchase their services from the AIS and/or other providers. However, there is a limited
capacity for the NSOs to choose their provider when the purse strings are held by a government
body. Submissions to the Task Force commented that the AIS and ASC are the same organisation
and, as a result, many believe that the AIS competes unfairly in the marketplace. The Task Force
does see the opportunity of opening up the market among providers of elite sports services to
introduce true competition. This would allow the AIS and State/Territory institutes to compete to
provide elite sports services.
The advantage of this approach is that competition would sharpen the edge of all organisations.
The Task Force also recommends that the funding agency, High Performance Sport Australia, be
separated from the delivery agency, the AIS, so that true competition can occur at the provider
level. This is unlikely to occur if one organisation was both the purchaser and the provider.
Ultimately, it is the aim of the Task Force to maximise the benefit derived from the given level of
input provided to elite sport.
Government Policy Environment
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Applying the purchaser/provider model to the funding arrangements in sport and recreation
means that responsibility for allocation of resources and for outcomes is in the hands of NSOs.
This could extend to issues such as whether a program is centralised or decentralised, the
placement of the program, selection and employment of coaches and, of course, selection of
athletes.
Self-sufficiency
As a general principle, the current Government believes that government should not be involved
in sport and recreation where the private sector can adequately provide appropriate goods and
services. Whilst sport and recreation are adequately provided for in a number of areas by the
private sector, there are also a large number of areas where there is either insufficient, or no,
private sector activity. In these situations, the Government must consider carefully the cost and
benefits of intervention. Apart from financial benefits, the Government needs to measure the
social, health, welfare, employment and community benefits derived from these decisions.
This approach was articulated by the Prime Minister in his address to the 47th Commonwealth
Council of the Liberal Party in July 1999.
I remain of the view that in economic matters the market solution is the preferred solution
but sometimes other solutions are needed as well.
The Task Force considers that, in line with this view, it is important to transfer functions from
public control to the private sector when there are appropriate skills within the private sector. This
has occurred in some areas, most notably in the education and training area which has been
deregulated.
The Government through the ASC encourages NSOs to become financially independent. This may
require them to invest in improved management practices, professional staff and increased
training. This is important so that a welfare mentality is not established among NSOs that have
the potential to be financially successful. It is the view of the Task Force that a well managed NSO
is more likely to be operationally and financially successful.
Ultimately, it should be sport, not government, that runs sport. The Task Force cannot emphasise
this point too strongly. In the 1970s when the current system was being planned, there was a
need for strong central control by government. Now there is increased professionalism and some
NSOs are more capable of managing their national programs without government direction,
albeit with accountability.
NSOs should be in the best position to determine what is best for their sport. Therefore they
should determine their own destiny.
The Task Force believes it is time for Government to step back and give selected NSOs the
opportunity to self-manage Government funds. It is important for Government to minimise non-
value adding administration of funds and this can be achieved by simplifying the procedures for
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the appropriation of grants to NSOs and moving to one-line appropriations. Of course, proper
accountability and acquittal measures relating to outcomes that are agreed in consultation
between Government and the NSOs, are vital to the process.
Australian sports participate in an intricate global environment against sophisticated rivals who
often have greater resources and lower costs (e.g. travel). In this environment, Australian sports
management needs to be astute, because without competent management of our scarce
resources, Australian sport will not be able to maintain international competitiveness.
Accountability
Sports that manage themselves must be accountable for the public funds they use. The
Commonwealths expenditure on elite sport is not limitless. These scarce resources must be
applied appropriately and effectively.
It is important for Government to maintain some strategic direction, but not to tie NSOs to
agreements that restrict their flexibility. Agreements on expenditure should be set out in simple
terms and an annual review of performance against key performance indicators should be
conducted.
The benefits of this approach would be increased contestability, simpler bureaucratic processes
and increased self-reliance.
Another issue relates to the stability of funding. While the ASC has entered into four year
cooperative agreements with NSOs, some sports advised the Task Force that the ASC altered
funding during the period of the agreement. NSOs emphasised their need for consistent funding
in order to meet agreed outcomes.
The Tasmanian Government submission suggested that:
A funding strategy for a six to eight year period in three or four year rolling cycles must be
considered a necessity to ensure longer term strategic planning for programs and building
confidence of individuals, and retaining the intellectual knowledge in the system.
One of the key lessons from the OAP is that sports are more likely to deliver improved success if
they have a specific goal (e.g. the 2000 Olympic Games), long-term financial commitment
(four years in the case of the OAP) and specific performance outcomes (e.g. tied to world
championships or other significant international competitions).
The system established with the OAP should be maintained. At the start of each funding cycle,
the individual sport should establish agreed outcomes with High Performance Sport Australia.
How these outcomes are achieved should be the sole responsibility of the sport. However, there
would be annual reviews, and if outcomes are not achieved at the end of the four year funding
cycle, High Performance Sport Australia would have the capacity, to modify funding in the
next cycle.
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The Task Force is of the opinion that, where a sport does not meet its agreed outcomes, funding
should be reduced in the following funding cycle. Thus where sport manages sport, there would
be both the attraction of management independence, counterbalanced by the potential of
reduced funding when the sport does not produce agreed outcomes.
Decentralisation
The establishment of State/Territory institutes and academies of sport as well as the emergence
of private training centres has meant that, spread across the major capital cities in Australia and
in some regional centres, are a vast number of facilities and individuals who have expertise in
high performance sport. It would be inefficient not to utilise these resources.
The AIS structure was developed in the late 1970s and implemented in the 1980s. It was
essentially based on the centralised eastern European model and in hindsight it must be said that
it has been very successful and appropriate. The decentralised programs of the AIS were part of
this centralised model, despite being located outside Canberra.
The question facing sport is how best to face the challenges post 2000 and to fully utilise the
resources that are now available for elite sport delivery without duplication and waste. In the
view of the Task Force, healthy competition and partnerships will drive elite sport in Australia to a
new level.
Services and programs should be delivered where they are the most effective. This is most likely
to be achieved through a deregulated and decentralised approach that utilises all the resources
available and provides the services in the environment where athletes are most likely to excel.
The key to successful implementation of this new approach is that these elite programs be
guided by the national plans of NSOs. Even though the delivery of the programs is out-sourced to
the AIS or State/Territory institutes and academies of sport, the responsibility for outcomes rests
with NSOs.
Partnerships and competition
In order to get the maximum benefit from the system there have to be both partnerships and
competition.
Partnerships allow knowledge and experiences to be shared and better integration of systems
and services. For elite athletes this means access to a wide range of experiences and information
that will assist in their international performances. Sport will get the best solutions if it is able to
bring together a diverse range of people and organisations to work on common issues.
Partnerships will be most effective in those areas with shared goals and the capacity to combine
resources to direct to those goals. The partnerships that Active Australia has established with
health and industry groups must be reinforced and the concept transferred to other areas.
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Competition is the engine which drives efficiency and efficiency is what provides the greatest
return from any given level of input. Thus if we want to get the best possible results from our
system, we should design one which allows for providers to compete against one another. In a
country with at least nine public bodies providing elite sports services and where other private
providers exist, it would appear obvious that competition between providers is likely to raise the
performances of our elite athletes.
The Task Force encourages competition in the area of high performance sport. This is the reason
that the funding (OAP and SAS) and delivery mechanisms (AIS) need to be separated.
Nevertheless, it is likely that in the future there will be joint ventures in bids for the provision of
services. Some sports might see an advantage in splitting their program between two or more
providers.
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1: An historical perspective on Commonwealth involvement in sport
Australian Commonwealth Governments have not always contributed as directly or as
substantially to sport as they do today. Until the 1970s there was an unspoken, but deliberate,
policy of non-involvement. Australian success in international sport was taken for granted and
achievements were thought to bring only personal rewards rather than benefits to the
community.
The Government had no articulated policy on sport and recreation and as a consequence there
was no direct support to sport other than occasional direct cash grants for specific projects
(mostly for competitive sport, for example, assisting athletes to travel to Olympic and
Commonwealth Games).
59
There was also some assistance for local facilities, and the
Commonwealth Government paid half the costs of capital works for the 1956 Melbourne Olympic
Games.
In the mid-1970s, when the Commonwealth Government acknowledged that it had a role to play
in sport, it was primarily in the context of an urban development strategy: building community
sport and leisure facilities to improve the quality of life in urban and suburban areas.
That philosophy recognised that there was a link between participation in sport and recreation
and social welfare. It was thought that mass participation would naturally follow as such centres
became a focus and social centre for the community. The Governments green paper on sport and
recreation in 1972, saw elite representative sport as a by-product of total community
participation.
60
The Government also realised that Australias international sporting reputation was important to
maintain and that this would be best achieved with well organised and managed sports.
The Hon Frank Stewart MP, Australias first Commonwealth Minister for Sport, said in 1974 that
Australian sport is among the most unorganised and uncoordinated in the world...in the past
our champions succeeded in spite of our organisation not because of it.
For this reason the Government introduced a Sports Development Program to assist with the
costs of competitive sport and to improve the administration of national associations.
Appendixes
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59
Assistance to the 1924, 1928, 1934 and 1936 Olympic and the 1958 Commonwealth Games.
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Cohen, Barry, House of Representatives debate, 19 September 1972, pp. 154849.
There was a brief period coinciding with a change in Government that the Commonwealth
sought to return to the philosophy of a hands-off approach in sport and recreation. In that system
sport was seen as a leisure time pursuit and Australian athletes were seen as true-blue amateurs
able to match the best in the world without the help of multimillion-dollar budgets and sporting
scholarships.
The scene changed when it became apparent at the 1976 Montreal Olympic Games that the
nature of international sport had changed and Australia had been left behind. Public response
demonstrated that the Australian public expected international sporting success, and felt that its
Government had a role to play in achieving it. The nexus between elite sport and Government
was set in concrete in 1981 with the establishment of the Australian Institute of Sport (AIS) by the
then Minister for Sport Hon Bob Ellicott QC.
At the time the Commonwealth Government formulated its policy direction in relation to elite
sport, participation in sport began to fall off. In the 1970s, Australians began showing a preference
for non-competitive sports and individual pursuits. The participation rate in sport was, on average,
29.9 per cent,
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showing a considerable drop from the 40 per cent of a 1948 survey.
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The
Commonwealth responded with sport participation programs for children and special groups by
adopting the Victorian Life. Be In It. campaign. In the mid-1980s the Australian Sports Commission
was established and took over the sport functions and grants system from the department.
The Government approach to the sport area formed a coherent policy basis for continuing
Commonwealth Government involvement:
recognition that successful international performances contributed to national pride;
acknowledgment of the social benefits of having a fit and active population; and
acceptance of sport and recreation as important factors in the lifestyle of Australians.
As Commonwealth Government involvement grew, so did involvement by State/Territory
Governments. Sports funding emerged in the 1970s with departments of sport and recreation being
established by 1975 in all States/Territories except Tasmania. Although largely focusing on grass-
roots sports development, State/Territory Governments also assisted sports through subsidies for
facilities, junior coaching, administration and financial assistance for high-performance athletes. The
first State/Territory sports institute was established in South Australia in 1981.
In 1987, the Australian Sports Commission and the Australian Institute of Sport combined and the
new body became responsible for implementing the Governments national sports policy. Some
sport and recreation functions remained with the department until 1994.
Despite these changes and growing Commonwealth interest and involvement in sport and
recreation, there was, at the time of the 1989 Parliamentary Inquiry into funding,
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a sense of
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61
Cohen, Barry. Green Paper on Sport and Recreation, 11 February 1980.
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Waters, E. Recreation in McLeod, A. L. (ed.) The Pattern of Australian Culture, Melbourne Oxford University Press 1963.
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House of Representatives Standing Committee on Finance and Public Administration Inquiry into Sports Funding and
Administration chaired by Steve Martin MP.
disillusionment and frustration by elite athletes, that they were not receiving enough support or
recognition. There was also a persistent view that the general administration of Australian sport
had not kept pace with the development of coaching and competition.
At the end of the 1980s funding for sport increased and continued to be enhanced over the next
10 years. The increases were in discrete packages:
1989 The Next Step, an additional $100 million over four years.
1990 Australian Sports Drug Agency established.
1992 Maintain the Momentum maintained the funding levels of The Next Step for another
four years.
1994 Olympic Athlete Program added $140 million over six years to prepare Australian athletes
for the Sydney Olympic Games.
Australian sport has changed enormously as a result of these policy and funding initiatives, which
have created:
growing professionalism in administration and coaching;
advances in sports science and sports medicine;
increased competition and training facilities for elite athletes;
increased political and business interest in sport;
improved opportunities for target populations to participate in sport;
improved international performance by Australians; and
a system of support for elite athletes to achieve competition goals.
The lesson from the history of Australias involvement in sport is that progress cannot be
achieved without a concerted effort involving partnerships between Government and the
sporting community.
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2: Budget funding for the ASC and ASDA
199899 19992000 2000-2001 20012002 20022003
Actual $m $m Estimate $m Estimate $m Estimate $m
ASC 89.284 112.894
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95.806
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90.709
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94.103
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OAP (ASC) 25.932 26.028 5.000
ASDA 4.069 4.615 4.702 4.614 4.573
3: Participation in organised sport and physical activities by Australians
aged 18 and over
199596 199697 199798
Males 2054.0 1936.7 2037.2
Females 1712.3 1576.7 1691.3
Total 3766.3 3513.4 3728.5
Percentage 28.9 26.6 28.1
Source: ABS (Population Survey Monitors). Information provided by the ASC.
4: Participation in sport and recreation activities in 1975
Age group Sport Sport Other Recreational
(participating) % (non-participating) % Activities %
1520 47.9 23.4 53.6
2025 37.5 23.3 53.2
2530 33.6 21.2 52.6
3040 30.7 25.1 53.9
4050 22.7 26.7 46.5
5060 20.5 21.3 44.2
60 + 16.5 14.4 37.7
Average for persons aged 20 and over 26.9
Average for all 29.9
Source: The Green Paper on Sport and Recreation, 1975, Barry Cohen.
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Includes accruals of $20.523 million.
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Includes accruals of $21.212 million
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Includes accruals of $20.987 million
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Includes accruals of $21.762 million
5: Registrations in sport 197598
Sport 1975 1998 % change
Archery 1,587 2,354 33
Athletics 20,334 18,163 -12
Aust Football 474,316 448,410 -6
Badminton 14,462 7,493 -93
Baseball 18,030 78,841 77
Basketball 192,000 456,191 58
Bocce 5,090 16,000 68
Bowls (M) 253,526 217,275 -17
Bowls (F) 121,800 112,619 -8
Boxing 4,150 2,225 -87
Canoeing 3,554 5,900 40
Cricket (M) N/A 285,400
Cricket (F) 1,293 26,532 95
Cycling 7,543 11,859 36
Equestrian 3,900 12,200 68
Fencing 957 2,095 54
Golf (M) 222,835 386,674 42
Golf (F) 119,500 105,955 -13
Gymnastics 10,410 67,372 85
Hockey (M) 36,000 77,874 54
Hockey (F) 18,441 34,000 46
Judo 33,100 3,242 -921
Karate 15,000 58,116 74
Lacrosse (M) 2,583 2,486 -4
Lacrosse (F) 717 1,067 33
Mod Pentathlon 1,000 70 -1329
Netball 173,877 338,212 49
Orienteering 3,279 3,576 8
Roller Sport 54,650 5,942 -820
Rowing 4,264 5,942 28
Rugby League 374,620 140,780 -166
Rugby Union 119,200 110,788 -8
Shooting 60,055 48,068 -25
Skiing 25,000 5,300 -372
Soccer (M) 171,200 308,925 45
Soccer (F) 2,150 25,622 92
Softball 25,400 55,424 54
Squash 29,000 44,000 34
Surf life saving 29,388 82,174 64
Surf riding 5,000 30,000 83
Swimming 78,538 98,154 20
Table tennis 24,863 7,343 -239
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continued over
Sport 1975 1998 % change
Tennis 350,764 200,907 -75
Tenpin bowling 25,000 64,651 61
Volleyball 5,153 29,000 82
Water skiing 7,555 5,200 -45
Weightlifting 1,568 521 -201
Wrestling 2,500 860 -191
OVERALL 3,155,152 4,051,802 22%
POPULATION 14,033,083 18,750,982 25%
Sources:
1998: Australian Sports Commission data submitted to Sports 2000 Task Force
1975: Department of Tourism and Recreation, Report of the Australian Sports Institute Study Group, chaired by Allan Coles.
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6: People who met the Task Force
Organisation Representatives
ACT Academy of Sport Ken Norris, Mark Owens, Dale Inabinet
ACT Bureau of Sport and Recreation Mark Owens, Ken Norris, Dale Inabinet
ACTSport Joan Perry, Peter McGrath, Jim Roberts,
Dick Cater, Graham Carter, Kingsley Barker
Ansett Australia Andrew Geils, Max Wood
Athletes Michelle Telfer, Craig Davies,
Amanda Simpa, Annette Huygens-Tholem
Athletics Australia Martin Soust, Simon Allatson , Ken Roche
Australian Rugby League Bill Palmar, Steve Palin
Australian Aboriginal and Torres Strait Islander Commission Jim Wright, Ann Weldon, Alex Woodcock,
Patricia Bucksin, Graham Trust, Sonny Martin,
Lucas Maynard, Tony Lovett, Glen Brennan
Australian Association of Veterans Athletics Clubs Brian Foley
Australian Baseball Federation Neil King
Australian Billiards and Snooker Council Don Stewart
Australian Blind Sports Federation Ian Fowler
Australian Canoeing Jon Bisset
Australian Commonwealth Games Association Sam Coffa, Perry Crosswhite
Australian Council for Health, Physical Education Jeff Emmel
and Recreation
Australian Cricket Board Tony Crafter
Australian Diving Association Valerie Beddoe
Australian Football League Tony Peek, Ed Biggs, Kevin Sheehan
Australian Golf Union Dominic Wall
Australian Gymnastic Federation Murray Chessell, Jane Allen
Australian Institute of Sport John Boultbee
Australian Little Athletics Brian Newton
Australian Olympic Committee John Coates, Craig McLatchey,
Michael Mercer, Simon Rofe, Richard Gelski
Australian Parachute Federation Graeme Windsor
Australian Paralympic Committee Greg Hartung, Brendan Flynn, Matt Favier
Australian Rugby Union Matt Carroll
Australian Shooting Association Rob Lindroth
Australian Softball Federation Neil Dalrymple
Australian Sports Commission
Australian Sports Institute (AIS) John Boultbee
AIS Hockey Unit WA Brian Glencross, Frank Murray, Terry Walsh,
Ray Dawson
AIS coaches Barry Prime, Stelio De Rocco, Warwick Forbes,
Ju Ping Tian, Julian Jones, Norma Plummer,
Brad Saindon, Istvan Gorgenyi, Chris Nunn,
Boda Andreass. Peter Bowman
Board and Executive Peter Bartels, Yvonne Rate, Margot Foster,
Ian Fowler, JimFerguson, Bob Hobson, Ann Fox,
Bob Murphy, Steve Arnaudon
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Organisation Representatives
Australian Coaching Council Kym Dowdell, Gene Schembri, Sean Scott,
Bill Mildenhall,
Active Australia Program Henny Oldenhove, Yvonne Rate, Colin Lane,
Shirley Willis
SportNet Jill Haynes, Bob Hobson, Ian Fowler
Sports Management Division Geoff Strang
Sports Science Sport Medicine Ross Smith, Peter Fricker, Allan Hahn
Australian Sports Drug Agency Natalie Howson
Australian Sports Foundation Cheryl Bart, Leanne Evans
Australian Sports Trainers Association Ken Hancock
Australian Touch Association Peter Topp
Australian Universities Sports David Cross, John White, Greg Harris
Australian Weightlifting Federation Sam Coffa
Australian Yachting Federation Tracey Johnstone
Badminton Australia Julia Phillips
Bloomfield, John John Bloomfield
Bowls Australia Mark Rendell
Cerebral Palsy Australian Sport and Recreation Federation Terry Biggs
Commonwealth Department of Health and Aged Care Judy Blazow, Fidelma Rogers, Penny Graham,
Colin Sandell
Commonwealth Department of Industry, Russell Higgins, David Mazitelli
Science and Resources
Confederation of Australian Sport Scott Derwin, Steve Haynes
Confederation of Sport Aviation Mike Alves
Cycling Australia Graham Fredericks
Field Archery Australia Peter Macey
Ice Skating Australia Deanne Graham
Judo Federation of Australia David Evans
Liverpool City Council Pip Bugden
National Centre for Cultural and Recreation Statistics Heather Latts, Ian Crettenden
National Elite Sports Council Frank Pyke, Graham Duff, John Boultbee,
Michael Scott, Wes Battams, Libby Darlison
National Rugby League John Brady
Netball Australia Pam Smith
Northern Territory Department of Sport and Recreation Philip Leslie, Shirley Worth, Richard Galton,
Dennis Hatcher
NSW Council of YMCAs Peta Gouge
NSW Department of Sport and Recreation Bill Gillooly, Justin Barwick, Wendy Gillett
NSW Institute of Sport Michael Scott, Phil Coles, Donna Ritchie,
Jack Ball, Libby Darlison, Alan Jones
Outdoor Recreation Council of Australia Phillip Fox, Elizabeth Ashman, Cathy Kingsford
Pistol Australia Warren Turk
Professional Golfers Association Terese Ritter, Max Garske, Ian Robilliard
Queensland Academy of Sport Wilma Shakespear, Doug Ryan, Warwick Cann,
Lindsay Ellis
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Organisation Representatives
Queensland Focus Group Alex Baumann, Michele Buck, Don Dixon,
Ashley Byron, Sean Collins, Paul Travis,
Peter Cummiskey, Nadene Dennis,
George Harvey, Richard Johnston, Mike Knowles,
David Speechley
Queensland Office of Sport and Recreation Fred Smith, Ian Whitehead, John Brown,
Tony Parker, Bruce Abernethy, Rhonda Bushby,
Gehann Molachino
Recfish Australia Ray Walker
Recreation Industry Council of Australia Terry Kearney
Recreation Industry Training Company Tim Ferguson
Riding for the Disabled Association of Australia Doug Denby
Roller Sports Australia Susan Avarell, Valerie Leftwich
Rowing Australia Colin Smith
Salisbury City Council Mark Band
Screen Time Productions Bob Campbell
Skiing Australia Steven Gotts
South Australian Office of Sport and Recreation Wes Battams, Robert Fletcher, Jim Daly,
Geoff Pearce
South Australian Sports Institute Wes Battams, Peter Bourdon, Geoff Pearce
Sport and Recreation Training Australia Tony Guihot, Bob Romanes
Sport and Recreation Victoria Ross Kennedy, Peter Hertan
Sport International Tom Hoad
Sport South Australia Barry Stanten
Squash Australia Paul Trenorden, Geoff Hunt
Surf Life Saving Australia Greg Nance, Alan Whelpton
Sydney Paralympic Games Organising Committee Lois Appleby
Tasmanian Institute of Sport Bridget Joscelyne
Tasmanian Office of Sport and Recreation Paul Sproule, David Buckingham, Gary Kelly
Tasmanian Sports Federation Peter Fehre, Mark West, Grahame Fish,
Peter Hobday
Tennis Australia Ian Bidmeade
Transplant Australia John Gava
VicSport Susan Holmes, Julie Sarll, Jack Riley,
Graham Dawson, John Howie
Victorian Institute of Sport Frank Pyke, Graham Duff, Frank Wilkes
West Australian Sports Federation John Fuhrmann, Craig James
Western Australia Institute of Sport Wally Foreman, Neil McKerrachen
Western Australia Ministry of Sport and Recreation Ron Alexander, Greg McLennan,
Graham Brimage, Heather MacGowan
Westpac Sam Sweig
Womens Cricket Australia Susan Crowe
Womens Hockey Australia Gwen Ford
Womensport Australia Margot Forster, Anne Gripper
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7: Submissions to the Task Force
The following organisations and individuals made submissions to the Task Force.
2001 Goodwill Games Brisbane
Aboriginal and Torres Strait Islander Commission
ACT Bureau of Sport and Recreation
Active Australia North West Melbourne
ACTSport
Albany Consulting Group
Athletics Australia
Australia Sport International
Australian Baseball Federation
Australian Chess Federation
Australian Coaching Council and National Officiating Program
Australian College of Physical Education
Australian Commonwealth Games Association
Australian Council for Health, Physical Education and Recreation
Australian Council for the Teaching of Swimming and Water Safety
Australian Deaf Sports Federation
Australian Football League
Australian Golf Union
Australian Gymnastic Federation
Australian Hockey Association
Australian Olympic Committee
Australian Parachute Federation
Australian Paralympic Committee
Australian Rugby League (joint with NRL)
Australian Softball Federation
Australian Sport Aviation Confederation
Australian Sports Commission
Australian Sports Foundation
Australian Sports Turf Industry
Australian Strength and Conditioning Association
Australian Subscription Television and Radio Association
Australian Swimming
Australian Touch Association
Australian Tug of War Association
Australian Universities Sport
Australian University Sport North
Australian Water Polo
Australian Water Safety Council
Basketball Australia
Bocce Federation of Australia
Brisbane City Council
Cable and Wireless Optus
Central Highlands Sports Assembly
Centre for Sport Studies, University of Canberra
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Cerebral Palsy Australian Sport and Recreation Federation
City of Salisbury
Commonwealth Department of Health and Aged Care
Community Recreation Council of Australia
Confederation of Australian Sport
Cuskelly, Mr Graham, School of Leisure Studies, Griffith University
Fitness Australia
Foxtel
Hogan, Kieran and Kevin Norton, School of Physical Education, Exercise and Sport Studies,
University of South Australia
Judo Federation of Australia
Macquarie University Sports Association
Melbourne 2002 World Masters Games
Melbourne 2006 Commonwealth Games Bid Committee
Mitchell, Ms Andrea
Motorcycling Australia
National Elite Sport Council
National Rugby League (jointly with ARL)
Nguiu Community Government Council
Outdoor Recreation Council of Australia
Parks and Leisure Australia
Queensland Department of Tourism, Sport and Racing
Recfish Australia
Recreation Industry Council of Australia
Recreation Industry Training Company
Regional Council of Western Sydney Parents and Citizens Associations
Roller Sports Australia
Rowing Australia
Safesports Australia
School Sport Australia
Soccer Australia
South Australia Office of Sport and Recreation
South Australian Amateur Football League
Sport and Recreation Training Australia
Sport and Recreation Victoria
Sports Federation of Victoria
Sports Assemblies Victoria
Sports Investments Australia (Fox Sports)
Sports Medicine Australia
Strategic Inter-Governmental Forum on Physical Activity and Health
Surf Life Saving Australia
Surfing Australia
Table Tennis Australia
Tasmanian Office of Sport and Recreation
Tasmanian Sports Federation
Tennis Australia
Victorian Amateur Football Association
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Victorian Institute of Sport
Western Australian Amateur Football League
Western Australian Ministry of Sport and Recreation
Western Australian Municipal Association
Western Australian Sports Federation
Wilson Sporting Goods
Womens Cricket Australia
Womens Hockey Australia
Womensport and Recreation NSW
Womensport Australia
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References
Australian Bureau of Statistics, 1995, National Health Survey: Aboriginal and Torres Strait Islander
Results, Cat. No. 4806.0 AGPS, Canberra.
1997, Sport and Recreation: A Statistical Overview, Cat. No. 4156.0 AGPS, Canberra.
1997, Involvement in Sport, Australia, Cat. No. 6285.0 AGPS, Canberra.
1996-97, Participation in Sport and Physical Activity, Cat. No. 4177.0 AGPS, Canberra.
Unpublished data for the first three quarters of the 1997-98 Population Survey Monitor.
Baum, Greg, 3 July 1999, Wired World of Sport, The Age.
Bauman, Prof. Adrian, Physical Activity Levels of Australians: Results of the Active Australia
Baseline Survey November 1997, unpublished report for Active Australia.
Bloomfield, John, May 1973, The role, scope and development of recreation in Australia, for the
Department of Tourism and Recreation of the Australian Government.
Carroll, Jak, 1995, Local Government Sport and Recreation Provision in Australia, Confederation of
Australian Sport.
Centre for Regional Economic Analysis, 1999, Economic Impact Study of the Sydney 2000 Olympic
Games, University of Tasmania.
Cohen, the Hon Barry MP, 11 February 1980, Green Paper on Sport and Recreation.
Commonwealth Department of Health and Aged Care and Australian Institute of Health and
Welfare, 1998, Cardiovascular Health: a report on heart, stroke and vascular disease, National
Health Priority Areas Report, AIHW Cat. No. PHE 9.
Commonwealth Department of Health and Aged Care, 1998, Developing an Active Australia: A
Framework for Action for Physical Activity and Health, Canberra.
Commonwealth Department of Sport, Recreation and Tourism and Australian Sports Commission,
1985, Australian Sport: A Profile, AGPS, Canberra.
Commonwealth Government Budget Strategy and Outlook 19992000, Budget Paper No. 1.
Commonwealth of Australia, 1985, Interim Committee for the Australian Sports Commission.
Report to the Minister for Sport Recreation and Tourism, chaired by Ted Harris, AGPS, Canberra.
Confederation of Australian Sport, 1998, An Economic Impact Study of Sport, Canberra.
Department of Tourism and Recreation, 1975, Report of the Australian Sports Institute Study
Group, chaired by Allan Coles, AGPS, Canberra.
Donnelly, Peter (ed), 1997, Taking Sport Seriously. Social Issues in Canadian Sport. Thompson
Educational Publishing Inc.
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Hillary Commission, 1993, The Business of Sport and Leisure: the economic and social impact of
sport and leisure in New Zealand.
House of Representatives Standing Committee on Environment, Recreation and the Arts, 1997,
Rethinking the Funding of Community Sporting and Recreational Facilities: A Sporting Chance,
chaired by I R Causley MP, AGPS, Canberra.
House of Representatives Standing Committee on Expenditure Parliament of the Commonwealth
of Australia, 1983, The Way We P(l)ay: Commonwealth Assistance for Sport and Recreation,
Chaired by Leo McLeay, AGPS, Canberra.
House of Representatives Standing Committee on Finance and Public Administration, 1989, Can
Sport be Bought? The Second Report on an Inquiry into Sports Funding and Administration,
chaired by Stephen Martin MP.
Ikeda, Masaru, 1999, World Trends and Strategies for Building Participation, Asiania Sport for All
Newsletter, Spring.
Mason, G and P Wilson, 1988, Sport, Recreation and Juvenile Crime: An Assessment of the Impact
of Sport and Recreation upon Aboriginal and non-Aboriginal Youth, Australian Institute of
Criminology, Canberra.
McLeod, A L (ed), 1963, The Pattern of Australian Culture, Melbourne Oxford University Press.
National Centre for Monitoring Cardiovascular Disease, 1999, Heart Stroke and Vascular Diseases.
Australian Facts, Australian Institute of Health and Welfare and Heart Foundation, AIHW Cat.
No. CVD 7.
Parliament of the Commonwealth of Australia. House of Representatives Standing Committee on
Finance and Public Administration, 1989, Going for Gold The First Report on an Inquiry into
Sports Funding and Administration, chaired by Stephen Martin MP, AGPS, Canberra.
Senate Standing Committee on Environment, Recreation and the Arts, 1992, Report on Physical
and Sport Education, chaired by Senator Rosemary Crowley.
Sport and Recreation Ministers Council, 1999, Business Sponsorship of Sport 1996-97, p. 4
The Age, 13 July 1999, Theyre still happy little Aussie mites, p. 4.
The Age, 1 September 1999, Blue ribbon beginnings, p. 15.
The Australian, 1 September 1999, p. 15.
The Bulletin, 7 September 1999, p. 26.
The Sunday Age, 11 July 1999, Sport moves us more than most, p. 22.
Vudri, I., P. Fentem, B. Svoboda, et.al., 1995, The Significance of Sport for Society: Health, Socialisation,
Economy - A scientific Review, Council of Europe Press.
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Acronyms and Abbreviations
ABS Australian Bureau of Statistics
ACC Australian Coaching Council
ACE Athlete Career and Education
ACGA Australian Commonwealth Games Association
ACHPER Australian Council of Health, Physical Education and Recreation
AFL Australian Football League
AGPS Australian Government Publishing Service
AIS Australian Institute of Sport
ANZSIC Australian New Zealand Standard Industrial Classification
AOC Australian Olympic Committee
ARL Australian Rugby League
ASC Australian Sports Commission
ASDA Australian Sports Drug Agency
ASF Australian Sports Foundation
ATSIC Aboriginal and Torres Strait Islander Commission
AUSF Australian Universities Sports Federation
CAS Confederation of Australian Sports
CSIRO Commonwealth Scientific and Industrial Research Organisation
GDP gross domestic product
HPE health and physical education
IOC International Olympic Committee
MIP Management Improvement Program
MIS Medical Incentive Scheme (AOC)
NCAS National Coach Accreditation Scheme
NESC National Elite Sports Council
NRL National Rugby League
NSIC National Sport Information Centre
NSL National Soccer League
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NSOs National Sporting Organisations
OAP Olympic Athlete Program
OJOP Olympic Job Opportunity Program (AOC)
ORCA Outdoor Recreation Council of Australia
PE Physical education
PPP Paralympic Preparation Program
RICA Recreation Industry Council of Australia
SAS Sports Assistance Scheme
SCORS Standing Committee on Recreation and Sport
SIGFPAH Strategic Inter-Governmental Forum on Physical Activity and Health
SIS/SAS State Institutes Sport, State Academies of Sport
SMA Sports Medicine Association
SOCOG Sydney Organising Committee for the Olympic Games
SRTAustralia Sport and Recreation Training Authority
SRMC Sport and Recreation Ministers Council
SS/SM Sports science / sports medicine
SSOs State sporting organisations
VIP Volunteer Involvement Program
YMCA Young Mens Christian Association
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