Parish councils andchildren’s play

Community play briefing 7

This briefing is for

parish councils who

want to provide

better opportunities

for children’s play.

It provides

information on taking

a strategic approach

to play and ensuring

that provision

balances the risk and

the benefits of good

play opportunities.

www.playengland.org.uk

Parish councils are the lowest or firsttier of local government. They areelected bodies and have powers to raisetax (or precept) to support theiroperations and carry out local projects.Parish councils have limited powers butcan provide facilities themselves orcontribute towards their provision byothers. This includes the provision ofrecreation grounds, playing fields,children’s play areas and swimming baths.

They may also be responsible for other facilitiesthat have an impact on the opportunities forchildren’s play including the maintenance offootpaths and bridleways, control of litter andcleaning and drainage of ponds. They may alsoown or support village halls or other publicspaces that are used for children’s playactivities by organised groups.

Parish councils also have representative powersthat can impact on children’s play. They must benotified of all planning applications in their areaand are advised on contributions fromdevelopers in respect of new housing or buildingdevelopments.

Although they may have limited powers, thereare approximately 8,500 parish councils inEngland that represent 35 per cent of thepopulation. The design, installation and main-tenance of children’s play areas are likely to bethe most significant parts of the precept,outside the maintenance and upkeep of villagehalls and allotments.

However, even in parishes with several playareas, it is rare that there will be a skilled orexperienced play specialist as part of the parishcouncil either as a member or an officer.

That said, there is a range of support availableto help parish councils take on the mantle ofplay champions, and work to improve the playopportunities available to children in their area.

Introduction

‘Parish councils have a vital rolein supporting children's play inrural areas.’

Steve Chown, Play England

Most parish councils are in the enviable positionof having deep roots within the community.Parish councillors are known to residents andhave strong links to local businesses andlandowners. Children are often at the heart ofmany communities through the local school,youth groups and activities in the village hall orcommunity centre. Local parents and childrenmay also be involved in campaigning or workingtowards improvements in their local play areas.Parishes are increasingly using websites andsocial media – to promote what they are doingto improve children’s play and to involve childrenand parents.

Case Study: Hennock Parish CouncilThe friends of Chudleigh Knighton playparkgroup, supported by Hennock Parish Council, usea Facebook site created by a local parent tokeep in touch with developments on theplayground, make suggestions for improve-ments, report maintenance issues and advertiseevents. The Facebook site has 101 friends in avillage with a population of just over 1,000people. Children and parents are consultedon what they like and dislike about theplayground, and encouraged to put forwardideas for improvements.www.facebook.com/pages/Chudleigh-Knighton-Play-park/141177128177

One way to set out the priorities for a localcommunity is through a parish plan. To date3,000 parish plans have been produced acrossthe country. Parish plans give everyone in thecommunity an opportunity to influence thedevelopment of their surroundings. These arebased on surveys of local people and can beused to influence local planning decisions, howservices are provided and also form the basis ofgrant applications and proposals to fundingbodies. Parish councils should use the parishplanning process to consider how children playin their area, where they play, what the barriersmay be, how these can be overcome and how toenable children to make suggestions for

improvements. Parish councils also need toknow the play areas they provide are valued andsupported locally. Play England has created a setof Tools for Evaluating Play Provision based onparticipation, access, quality and satisfaction.

The Parish Plan should also consider how theparish fits into the wider play strategy of thedistrict or county council, or in other areas theunitary local authority. Most will have a writtenplay strategy and a local play partnership. Youshould contact your local leisure, parks or playdepartment to find out what support theyprovide for parishes. This may include advice andguidance on maintenance, insurance and otherissues. They may also provide or have contactswith voluntary organisations supporting freeplay opportunities through play ranger schemes,play days or other organised events oractivities.

Case Study: Wye with Hinxhill Parish Council Ashford Borough Council in Kent takes aproactive role in supporting play in partnershipwith local communities, including parish and towncouncils. Wye with Hinxhill Parish Council inAshford made a committment to developing aplay strategy as part of their bid for playbuilderfunding. This was part of a longer term strategyto improve play spaces in the villages includingdifferent play and ‘leisure and hangout’ pocketsaround the village, using existing locations andcreating new ones.

Developing a strategic approach

Children’s play areasMost parish councils rely on the clerk, supportedby part-time maintenance staff, contractors orlocal volunteers to maintain children’s play areas.They may also look to play equipment manu-facturers or insurers for advice. However, thisadvice can focus on the technical aspects of theinstallation and maintenance of play equipmentrather that a wider view of how to meet the playneeds of children who live in the parish.

In recent years there has been a significantchange in planning for play within the community.Parish councils engaging with designers and playequipment manufacturers through the play-builder programme have often led the way increating innovative, imaginative play areas forchildren. There is also a great deal of independentadvice available from national and local org-anisations such as Play England and countyplaying fields associations. There may also be alocal play network, play association or play forumthat operates at a district or county level. Theywill often organise play events but also providetraining, information or advice for small localgroups about children’s play.

Case Study: Devon Playing Fields Association Devon Playing Fields Association is anindependent charity devoted to the promotionof outdoor play and sports facilities forcommunities in Devon. This includes advice,guidance and training for parish councils on themanagement and maintenance of children’s playareas, including playground safety and insurance.Devon Playing Fields Association is part of theCounty Playing Fields Association that producesa quarterly newsletter with up to dateinformation for parish and town councils. Forfurther information visit:www.cpfas.org.uk/member.asp?id=5&pid=1

Design for playChildren have less freedom to play independentlythan their parents and grandparents. Less than10 per cent play in natural places (woodlands,countryside, heath land) compared to 40 percent adults when they were young.1 Therefore

well designed play spaces are an increasinglyimportant part of children’s lives.

Creating spaces where children can play freelyrequires careful thought and imaginative design.The challenge is to provide the best possible playopportunities, and to create play spaces that willbe attractive for children, capture theirimagination and give them scope to play in newand exciting ways. Too often in the past provi-ders have relied on narrow stereotypes andassumptions, rather than thinking about whatchildren need and how they will use a space forplay. A playground that consists of only basicequipment, fencing and safety surfacing catersfor only a narrow range of play experiences. Playproviders need to think about creating spacesthat offer all children opportunities for:

• Movement and physical activity• Stimulation of the senses – sound andsmell as well as sight and touch

• Social interaction with children ofdifferent ages and abilities

• Access to manipulate natural andfabricated materials

• Challenge and excitement

1 Natural England (2009) Childhood and Nature: a survey on changing relationships with nature across generations

The Play England publication Design for Play offersguidance for parish councils and others to createmore imaginative and exciting places for childrento play. This includes advice on planning, design,care and maintenance and how to review whathas been provided so it meets children’s needswhile considering the long-term environ-mentalimpact. Design for Play also shows how thecommunity, children and parents, can be involvedat every step of the design process.

Risk and safety

Responsibility for managing and maintainingchildren’s play areas can seem quite daunting.Parish councils have a duty of care towardsemployees, contractors and the public who usethe play facilities they own or manage. Playprovision is governed by the Health and Safetyat Work Act 1974 and the Occupiers LiabilityActs of 1957 and 1984. Providers, includingparish councils, have a legal and moral respon-sibility to ensure children’s play areas in theircontrol are in as safe condition as reason-ably practicable. The Management of Health andSafety at Work Regulations 1999 require pro-viders to carry out risk assessments. Playprovision also has to meet the requirementsof the Disability Discrimination Act 1995 andother directives such as the Disability EqualityDuty 2006.

A technical inspection of play equipment, fencingand surfacing should be carried out at leastonce a year by an external expert. Routinechecks made throughout the year will bedetermined by the level of risk identified and tomanage wear and tear, damage, maintenanceand cleanliness. Parish councils should have aclear policy towards site inspection, with clearlydefined responsibilities for the employees orcontractors undertaking the inspections andgood record keeping. The Register of PlaygroundInspectors International (RPII) examines,accredits and certificates technical inspectorsand provides advice on where to find them.

When thinking about design, it is important toremember that all risks cannot be eliminatedand some element of risk is beneficial tochildren. The Play England publication Managing

Risk in Play Provision guide outlines a commonsense approach to risk-benefit assessments.This should be underpinned by a play policy thatoutlines the values, understandings, principlesand criteria on which judgements about riskbenefit are made. This should take into accountthe features and local context of each play areanot just the equipment it contains. This meanschildren’s play areas can be designed to providerisk and challenge. For instance, most adultsknow the value of children playing on rockyareas, beaches and with water. Because of thebenefits boulders, sand and water can beincluded in a play space.

InsuranceThe role of insurance is to provide a financialsafety net for providers in the aftermath ofaccidents or other claims. It should not bethe driver of risk management. The risk-benefitassessment should assist providers andinsurers in dealing with claims if they are made.

Parish councils should seek insurance that meetstheir specific needs. Public liability insurance isessential, and providers with employees arerequired to have employers’ liability insurance. Itis worth seeking an insurance broker with a goodunderstanding of children’s play needs as well astechnical expertise.

Parish councils should:

• Consider children’s play in their parish plan• Contact the local leisure, parks or playdepartment to find out what support theycan give to parish councils

• Find out about staffed play services thatmay be delivered in the area

• Organise an event or activity for Playday• Join the county playing fields association

• Join the local play network, play associationor play forum if one exists in their area

• Involve children, parents and the widercommunity in thinking about and planningfor children’s play.

Recommendations

Parish councils may find it useful to shareexperiences with each other or talk to theircounty playing fields association. Some may haveumbrella schemes that help spread the financialrisks. It is worth reviewing your insurancearrangements regularly, making sure you notifyyour insurance broker of any changes toprovision or risk-benefit policy.

PlanningParish councils have to be notified of all planningapplications in their area. It should be remem-bered that children have the same right asadults to use public space. Planning decisionsabout streets, green spaces, parks and newhousing developments can have a significantimpact on children’s play and places wherechildren can experience nature, explore theenvironment or meet friends. Parish councils,with their local knowledge, can act as advocatesfor children’s play in planning decisions.

Case Study: Treloweth Estate, Pool The residents of the Treloweth estate andAgar Road in Pool near Redruth campaigned tosave a play area threatened by a housingdevelopment. They were supported by CarnBrea Parish Council. Despite objections fromthe Parish Council and Cornwall County Councilthe developer appealed to the Home OfficePlanning Inspectorate. The appeal was dismissedand the Parish Council have voted unanimouslyto take over ownership of the land fromCornwall County Council

Planning obligations under S106 or the futureCommunity Interest Levy are a good source ofinvestment for play spaces. This is where acommitment to play in the parish plan and aclear set of proposals for improvements isinvaluable. Parish councils can recommendplanning obligations be used to securedeveloper contributions for the provision of newor improved play opportunities ‘off site’ whereit is inappropriate to seek provision within thedevelopment. Play provision is frequentlyaccepted as qualifying ‘infrastructure’ in thisregard, particularly in housing developmentsintended for families.

Case Study: East Devon District CouncilEast Devon District Council involves communitiesin its budgeting. This includes consulting childrenand local people on the allocation of S106contributions from new housing developments toprovide funding for play and sports facilities inthe area. East Devon District Council is currentlyworking with Exton Parish Council to improve alocal playground. Consultation has been carriedout with children who want something that spins,a zip wire slide and a replacement for the oldtrain. For further information and case studiesvisit:www.swresourcecentre.org.uk/swrc-index/swrc-sw-councils.htm

Design for Play - A guide to creating successful play spacesThis Play England guide shows you how to design good play spaces and provides advice on how toengage and involve the community at all stages of the design process.www.playengland.org.uk/designforplay

Better Places to Play through PlanningThis Play England publication provides information on how opportunities for play can be maximisedthrough the formal spatial planning process.www.playengland.org.uk/betterplaces

Managing Risk in Play – implementation guideThis guide has been written for those responsible for managing play provision, and for those involvedin designing and maintaining such provision. This guide is endorsed by RoSPA and the Health andSafety Executive.www.playengland.org.uk/managingrisk

Tools for evaluating play provisionPlay England provides a range of tools for assessing the quality of play spaces, including throughsurveys and consultation with children and young people.www.playengland.org.uk/resources/tools-for-evaluating-play-provision

PlaydayPlayday is an annual celebration of the child’s right to play. The website provides information andresources for community groups and others to organise local events on Playday, held on the firstWednesday in August.www.playday.org.uk

Playful CommunitiesThe Playful Communities website provides information, advice and resources for individuals, localcommunity groups, third sector organisations and others who are developing play provision in theirlocal neighbourhood. The website includes resources for local people involved in managing staffedplay projects and volunteering, as well as for those supporting or maintaining play areas.www.playfulcommunities.org.uk

Fields in TrustFIT, formerly known as the National Playing Fields Association, is an independent organisationdedicated to protecting outdoor sports and play spaces. Their website includes campaign toolkitsfor community groups and links to county playing fields associations.www.fieldsintrust.org

Register of Playground Inspectors InternationalThe RPII provides a register of accredited play inspectors widely available to individuals andorganisations who may require their services.www.playinspectors.com

Useful resources

Play England is part of NCB and is supported by the Big Lottery Fund.Published by NCB, for Play England, June 2011.

Play England8 Wakley Street, London EC1V 7QETel: 0207 843 6300 Email: playengland@ncb.org.uk Web: www.playengland.org.ukTwitter: @playengland Facebook: www.facebook.com/playengland

This briefing was produced as part of Play England's Engaging Communities in Playprogramme funded by the Department for Education.

For further information about the Engaging Communities in Play programme visitwww.playengland.org.uk/our-work/engaging-communities-in-play

Play England promotes excellent free play opportunities for all children.

We believe that all children should have the freedom and space to play enjoyed by previousgenerations.

This involves more than just providing well-designed play areas; it requires the commitmentof local and national decision makers to create more child-friendly communities.

By making play a priority we can create healthier and happier communities for all.