Re-development of Portrush Recreation Grounds

Project
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In January 2018 Council instructed officers to proceed with the Outline Business Case (OBC) for upgrade works at Portrush Recreation Grounds. In November 2018 Members approved the OBC and directed officers to proceed with project design, planning permission and procurement documents based on a design estimated to cost circa £4.85m.  In response to on-going affordability constraints the project was revised and in November 2019 Members approved an alternate concept design at a cost of £2.85m with associated partnership funding from Department for Communities of £1.3m. 

The current concept design comprises: bowling green, synthetic bowling training area; bowling pavilion (to include club room, changing rooms, tea prep area plus toilets and ‘Changing Places’ facility which will be accessible to public); large open recreational/event space; timber fitness area; low level urban sports area; upgraded and enhanced adventure style play park; designated disabled parking plus reinforced hard standing area; and public pathways / public realm.  

The following aims have been agreed for investment in Portrush Recreation Centre:

• To contribute strategically to the Portrush offer for ratepayers and visitors;
• To improve the presentation and functionality of the Ramore Head site to complement existing and planned strategic investment in Portrush’s regeneration and public realm; and
• To help distribute visitors and football across Portrush contributing to its functionality as a regional destination and as a service town for its indigenous population.

The following objectives have been agreed for investment in Portrush Recreation Centre:

• To meet the needs of 30,000 visitors and citizens for access to play and outdoor space annually from 2021;
• To support 300 people to try, train or complete in crown green bowling annually from 2021;
• To support bowling tournaments at provincial, all-Ireland and national levels which attract a minimum of 500 participants and 1,000 supporters from out of the Borough annually from 2021;
• To support bowling tournaments at provincial, all-Ireland and national levels which create 2,000 bed nights;
• To support two events annually attracting 20,000 people from outside the Borough; 
• To reduce the level of Council subvention. 

Who owns and who implements each element of the function, service, policy, procedure, project, strategy, plan or guidance?
The SRO for the project is the Director of Leisure and Development and the Sponsor is the Head of Sport and Wellbeing.  Implementation of the project will involve support from internal stakeholders (Capital Delivery Team, Estates, Operations and Events); and collaboration with external stakeholders (Portrush Bowling Club, Urban Sports Groups, Pipeband Championships, special interest groups and the general public). 

Other policies etc. which have a bearing on this function, service, policy, procedure, project, strategy, plan or guidance?

The OBC demonstrates the contribution of the project to the following Strategies:

• A Better Future Together – A Community Plan for Causeway Coast and Glens 2017 – 2030;
• The Way Forward for Tourism – Causeway Coast and Glens Tourism and Destination Management Strategy 2015-2020;
• Causeway Coast and Glens draft Play Strategy 2019;
• Causeway Coast and Glens draft Facilities Strategy 2018;
• Causeway Coast and Glens Local Development Plan 2030 - Open Space, Sport and Outdoor Recreation;
• Portrush Regeneration Strategy Western Peninsula 2007;
• Lansdowne Masterplan, Portrush 2014;
• NI Executive Office Outcomes Delivery Plan 2018;
• Draft Tourism Strategy for Northern Ireland to 2020 (DETI);
• DRD Regional Development Strategy 2035;
• People and Places 2003; and
• DfC Urban Regeneration and Community Development Framework 2013.

Studies, Publications, Statistics and Guidance:

• Northern Ireland Statistics & Research Agency – Census 2011;
• NINIS, Census 2001; and
• Northern Ireland Multiple Deprivation Measure 2017.

• Quantitative evidence has been sourced via the NI Census in 2011, the Northern Ireland Life and Times Survey 2018.
• Qualitative evidence has been gathered through sustained consultation prior to the development of the OBC including:     

                o Engagement with the Elected Members;
                o Direct consultation with existing users of the Portrush Recreation
                   Centre site;
               o Consultation with the wider public and casual users; 
               o Consultation with appropriate statutory sector representatives;
               o Consultation with internal stakeholders who will be impacted by
                   any investment decisions in the Portrush Recreational Centre
                   site (e.g. grounds maintenance, operations, events management,
                   Portrush regeneration); and
               o Specific interest consultation Surestart, Causeway Association
                  Urban Sport (CAUS) and Portrush Matters.

Details of Evidence/Information

• Mid-year 2018 NISRA statistics detailed the usual resident population of Causeway Coast & Glens Local Government District to be 144, 246, accounting for 7.7 % of the N.I. total.  Statistical information with regards to the Districts makeup and individuals therein was also reviewed;
• Council’s Equality Action plan and Disability Action Plan, specifically sport and wellbeing actions to:
              o Support persons with a disability to attend and fully engage in
                 Council events and programmes.
              o Improve accessibility for individuals with a disability to
                 participate in physical activity and improve well-being - by
                 supporting individuals with a disability to access specialist
                 equipment and facilitate exercise.
              o Improve social inclusion and leisure information for people with
                 disabilities.
• The Council does not currently hold Section 75 monitoring data for historical and existing users of the Portrush Recreation Grounds, however it does hold data on membership numbers for 11 bowling clubs in the Borough as part of the draft Pitches Strategy which indicates that only:
              o 5% of members are young people;
              o 25% of members are female.
• Sport NI’s Sport and Physical Activity Survey (SAPAS) in 2010 provides empirical evidence of NI wide participation levels by some of the Section 75 groupings:

• The consultation process with stakeholders has also identified particular needs of different user groups across the various components of the project as follows:
              o Bowling Club – the draft Pitches Strategy (which was
                 subjected to full EQIA) has guided the bowling facility 
                 development and consultation with Portrush Bowling Club has
                 informed particular needs of older members and members
                 with a disability;
              o Play Park – the draft Play Strategy (which was subjected to
                 full EQIA) has guided the projects development to take
                 account of the particular needs of young people and disabled
                 users;
              o Public changing/toilets and parking – particular needs of
                 people with a disability;
              o Inclusive cycling route – particular needs of people with a
                 disability;
              o General events – particular needs of visitors from surrounding
                 rural areas and ‘out of state’ visitors;
• All of the above needs of different user groups have to be weighed up to achieve a balance in terms of accessibility, safety, visibility and clarity of procedures across the site.
• It is also clear that the majority of the Borough is rural in composition and therefore the specific needs of those individuals will be considered further in the Rural Proofing Form.
   

The 2011 Census outlined:

In terms of religion or religion brought up in the 2011 Census indicates that our resident’s religious beliefs are comparable to those in Northern Ireland in that there are 2 predominant groupings i.e. Roman Catholic and Protestant.  However we also have a number of individuals (5.64%) who do not practice a specific religion or who do not wish to be grouped into a specific religion.  In addition we have a small number of individuals who practice other religions.

No issues regarding religious beliefs were raised during consultation to date with current stakeholders who have various religious beliefs and multiple identities.
The opening hours demonstrate that they are wide and varied to facilitate enjoyment by all 7 days a week to accommodate those of various religious and non-religious beliefs.)

In conclusion, this project should not impact upon any religious group and will be a shared space where everyone should feel welcome and therefore have a neutral impact on this Section 75 group.  

The Northern Ireland Life and Times Survey (2018) provides the following information on the political parties people in Northern Ireland feel closest to (this information is not available at Council area level) *:

In conclusion, this project should not impact upon any political affiliation and will be a shared space where everyone should feel welcome and therefore have a neutral impact on this Section 75 group.  
 

On Census Day 27th March 2011 the resident population was:

The signage proposed will use plain English and pictorial formats in-line with industry best practice to support the wide range and backgrounds of tourists expected.

The event space will be adopted to the specific needs of large events to accommodate the diverse needs of ‘out of state’ visitors.

This project should not impact upon any racial group and will be representative of the demographics above and therefore have a neutral impact on this Section 75 group. 
 

Age: (Mid Year 2018)   (NISRA statistics)

The site has been designed to provide a facility for all age ranges and a wide variety of abilities.  The play area will be used by children up to early teens (‘Neighbourhood Equipped Area for Play’) and those with young families.  The urban sports area by teens and young adults.  The open recreation and event space for all ages and those of varying levels of athletic ability - low level pathways for walks and cycling, seating for relaxation and breaks, open spaces for relaxation, sports and events space for social and community interaction between all ages.

Managing this diverse mix of provision with signage and clear procedures will be required to maximise this positive impact on these age groupings. Bowling is traditionally an older person’s sport, however Council will continue to work with the club to encourage usage from unrepresented groupings using the second synthetic training green.

In conclusion, the project will have a positive impact on young people and older people given the diverse nature of leisure provision on the site. 
 

Marital Status: 
Marital status by former legacy Council area (most recent figures available from Census 2011):

In conclusion, there is no evidence to assess the project’s impact on this Section 75 group and will be assumed as having a neutral impact.
 

There are no specific figures available on how many people may be Gay, Lesbian, Bi-sexual or Trans-gender or Trans-sexual (LGBT) specific to the Council area. 

The Northern Ireland Life and Times Survey (2018) provides the following information on the sexual orientation of people in Northern Ireland (this information is not available at local government level):

In addition the NI Rainbow Project estimates between 6-10% of any given population could be considered as LGBT. 

In conclusion, there is no evidence to assess the project’s impact on this Section 75 group and will be assumed as neutral impact.
 

Gender:  (Mid Year 2018 Population Estimates)* 

The inclusion of a drop down changing facility in the male and female public toilets will offer changing for all (research shows people with accessibility needs often find they have long waits for the accessible toilet as a result of people changing children). The facility will also welcome breastfeeding mothers.

In conclusion, the project will have a positive impact on men and women given the diverse nature of leisure provision on the site. There may be a minor negative impact on women because bowling is traditionally a male sport (as evidenced in the membership data above), however Council will continue to work with the club to encourage usage from underrepresented groupings using the second synthetic training area.
 

The Census information in 2011 showed:
People With or Without Dependents:

In conclusion, there is no evidence to assess the project’s impact on this Section 75 group and will be assumed as neutral impact.
 

People with a Disability/People Without:

The General Household Survey reports that around 19% of the NI population has some form of disability.

People with a long term condition/illness by former legacy Council area (most recent figures available from Census 2011):

 ____                                                              

Source: NINIS, Census 2011, KS302NI
Notes: 

1. ‘Communication difficulty’ means a difficulty with speaking or making yourself understood. 
2. ‘A mobility or dexterity difficulty’ means a condition that substantially limits one or more basic physical activities such as walking, climbing stairs, lifting or carrying. 
3. ‘An emotional, psychological or mental health condition’ includes conditions such as depression or schizophrenia. 
4. ‘Shortness of breath or difficulty breathing’ includes conditions such as asthma. 
5. ‘A chronic illness’ includes illnesses such as cancer, HIV, diabetes, heart disease or epilepsy. 
6. ‘Long-term’ refers to a condition which has lasted, or is expected to last, at least 12 months.

The bowling pavilion will be DDA compliant and include a designated ‘Changing Places’ facility to accommodate the needs of people with profound and multiple learning disabilities, as well as people with other physical disabilities such as spinal injuries, muscular dystrophy and multiple sclerosis often need extra equipment and space to allow them to use the toilets safely and comfortably.

The design plans have been adapted to support the use of inclusive exercise cycles on the cycle paths. 

Accessible parking will be provided adjacent to the pavilion in line with regulations.  In addition accessible parking is available near to the facility in the public Landsdowne carpark which is also in close proximity to additional toilets which can be used by all while visiting, exercising or watching/participating in events.

The adventure play park equipment contrasts visually from the walking surface with the inclusion of some equipment that is accessible to all.

Walk and cycle areas are wide enough to facilitate wheelchairs, the surfaces are tarmac and smooth for individuals with visual impairments, there are no unsuitably high gradients. 

Viewing areas are suitable for all users and have accessible access to them. Assistance dogs will be welcomed in all areas.

Picnic benches will be included to support people with disabilities allowing wheelchairs access and individuals to have exactly the same experience as other users.

The bowling areas will include auxiliary aids in the bowling areas for larger competitions along with portable screens for score keeping.

The facility will be promoted in many accessible formats including a video of the facility when ready to open to support individuals with autism as they would understand what to expect and how the different areas will operate.

In summary, this project could have a minor negative impact on people with a disability who traditionally are faced with many barriers to participating in sport and leisure (as evidenced by SAPAS above). 

However this can be mitigated through ongoing consultation with the stakeholders (some of which are identified above) in the detailed design of disabled access to the bowling pavilion and greens, accessibility of the play park and inclusivity of the cycling routes. 

As part of the mitigation measures, Council intends to conduct further consultation with disability groups to ensure the final facility design takes account of the specific health needs of the Borough highlighted above.
 

Neutral impact as noted above.

As noted above disabled persons face barriers to participating in sport and leisure activity.  This has been proactively addressed throughout this projects development and further / broader consultation required prior to final design.

The diverse nature of leisure provision provides opportunity for both older people and younger people to be positively impacted. However this mix of provision needs carefully managed to ensure benefits are realised by all.

Neutral impact as noted above.

The project’s sport and leisure offering has high potential for improving good relations between people from different religious beliefs, political opinions and racial groups. 

Generally speaking people can fall into more than one Section 75 category.  Taking this into consideration, are there any potential impacts of the function, service, policy, procedure, project, strategy, plan or guidance on people with multiple identities?  (For example:  disabled minority ethnic people, disabled women, young Protestant men, young lesbians, gay and bisexual people.)

The consultation process will support input and feedback from individuals with multiple identities and that interaction with individuals with multiple identities to date has not raised any additional concerns, although this will be considered as part of the review process detailed in the monitoring section.

If yes, please give further information and examples:
To date the project team has already taken steps to promote inclusion through the design and layout of the recreation and entertainment area; and also through the provision of some play equipment suitable for those with disabilities to allow family groups with and without disabilities to interact and socialise in the same area.  In addition this will be expanded through the inclusive cycle programme planned once the site is in operation and various events which can be attended by disabled people.

As highlighted above there may be further opportunities to promote attitudes towards disabled people which are to be identified through further / broader consultation prior to final design.
 

Screening Decision
Likely Impact
          ☐        Major                    ☒     Minor                     ☐     None

If the decision is to subject the policy to an equality impact assessment (i.e. likely impact – Major), please provide details of the reasons for this:
N/A

If the decision is not to conduct an equality impact assessment (i.e. likely impact = Minor) the Council should consider if the policy should be mitigated or an alternative policy be introduced: 
Whilst a full EQIA is not required for this project, the final design should be subjected to further consultation with disability user groups, including Mae Murray Foundation, Disability Sport NI etc.  

If the decision is not to conduct an equality impact assessment (i.e. likely impact = None), please provide details of the reasons for this:
N/A

If YES, give the reasons to support your decision, together with the proposed changes/amendments or alternative policy:

As noted throughout this form, Council has been proactive and adapted design plans to incorporate feedback from consultees in line with best practice and current regulations to support inclusion and target underrepresented groups.  For example, a potentially minor negative impact on women and individuals with a disability is being addressed proactively through plans for targeted sports development programmes for women and individuals with a disability which will be rolled out once the site is in operation. 

• Project Implementation Review  following construction has been completed after one year;
• Annual monitoring of user numbers and participants in sports development activities; and
• Post Project Evaluation of full project benefits at the end of five years.