Pavilion Management Strategy 2026-2031
Author:
Sam Horwill - Property, Estates, and Facilities Manager
Consultees:
Parks and Cemeteries Manager
Business Development Manager
Climate Change and Sustainability Manager
Capital Accountant
Senior Property Lawyer
Revisions:
| First draft | 11 June 2026 - Agreed form as per Economy Committee resolution |
|---|
Pavilion Management Strategy 2026-2031[pdf] 402KB
Contents
- Purpose
- Background
- Strategy Aim
- Marketing and Management General Principles
- Financial Considerations
- Risk
- Corporate Implications
- Appendix A
- Appendix B
1. Purpose
The purpose of this strategy is to set out the following:
- The council's objectives for identifying, selecting, and appointing appropriate alternative uses for pavilion buildings across the district.
- The expected benefits of the Pavilion Management Strategy.
- The identification of any risks associated with the operation of the Pavilion Management Strategy and proposed mitigation.
- The corporate implications of the Pavilion Management Strategy.
2. Background
The council outsources its outdoor recreation service to Tivoli Group Limited, which also provides the council's grounds maintenance service. This offer is branded as Tivoli Lifestyle and operates across multiple sites in the district, delivering activities such as adventure golf, putting, par 3 golf, bowls, tennis, football, rugby, cricket and baseball.
Several of these sites include buildings primarily used as changing facilities or wider pavilion spaces for club meetings and associated use. However, there is inconsistency across the district, as some of these assets are leased directly to clubs. In these cases, Tivoli has no management oversight of the buildings, although the council generally remains the freeholder.
The current arrangement with Tivoli for the management of pavilion buildings under its contract with the council is not financially viable within Tivoli's operating model. As a result, the council remains exposed to ongoing costs associated with these structures, particularly at sites where organised sports are no longer taking place.
This presents an opportunity to transfer occupation of these buildings to clubs or other commercially minded organisations, enabling alternative uses such as cafés or similar community-focused facilities where appropriate. Clubs are also able to access grant funding that is not available to either Tivoli or the council, meaning any future asset transfer could not only reduce costs to the council but also support the development of improved facilities for the community.
The current uncertainty regarding central government funding means that councils need to identify alternative methods of generating income. As a result, there has been increasing pressure on councils to generate income from their assets. The aim of the Pavilion Management Strategy is to provide a broad set of principles for the council to identify new and creative uses which support the continued delivery of recreational sport, while reducing council liabilities and enabling these assets to contribute to the council's revenue income stream.
Assets currently identified as pavilions are listed at Appendix A.
Asset reviews process and pavilion definition
Asset reviews are undertaken to establish the extent to which assets are to be retained, disposed of or amended to bring the performance of those assets into line with the council's policies and requirements. Where possible, this involves lease regear, reviewing existing use and lease terms. This can sometimes be restricted by the terms of a prevailing lease, and each case must be reviewed individually.
In drafting this strategy document, the council has reviewed the definition and categorisation of pavilions. Pavilions are buildings which have been constructed to provide changing and storage facilities for community sports activities, usually located on a recreation ground. An up-to-date list of pavilion buildings can be found in Appendix A. This list and the categorisation of assets may be adjusted from time to time in accordance with council policy and business need.
The availability of pavilion buildings and their suitability for any proposed use is subject to full due diligence and consideration of any necessary planning consents or restrictive covenants and the like, as well as an assessment of current utilisation. For this reason, not all assets identified in Appendix A will be immediately available.
3. Strategy Aim
The aim of this Strategy is to set out a streamlined process for assessing existing pavilion assets and, where appropriate, selecting new tenants for underused or disused pavilion buildings, or facilitating the asset transfer to local sports organisations. . This approach will enable the council to consider community need against the liabilities associated with pavilions on a case-by-case basis and identify opportunities that may improve revenue.
Where it is considered appropriate to seek a commercial operator for a pavilion, the council will aim to:
- Maximise rental income and minimise operational and management costs to ensure a commercial return is generated for the council.
- Ensure the proposed use is appropriate to the location.
- Contribute to the amenity of a space, encouraging footfall.
- Generate positive local social and economic benefits.
The Pavilion Management Strategy covers an initial 5-year period (2026 - 2031). Officers will keep the strategy under review.
4. Marketing and Management General Principles
Opportunities will be marketed on the council website, inviting proposals and expressions of interest for each available site, with clear explanation of any formal assessment criteria or requirements, and deadlines as appropriate.
The Pavilion Management Strategy recognises that financial return is not the sole factor for determining the value of bids received. It recognises the importance of wider social and economic impacts and will give due regard to these in line with the Council's overall strategic objectives. Any and all received bids will be assessed by a panel of officers representing relevant stakeholder services (a template assessment matrix can be found at Appendix B). Bid assessments may require one or more rounds of clarifications, and any offer to a preferred bidder may be subject to further negotiation.
All pavilion operators will be required to enter into either a lease or license agreement, to be determined on a case-by-case basis subject to the circumstance of each operation.
Any pavilion lease or license agreement will be subject to the following:
- Any lease to be excluded from the security of tenure provisions of Part II of the Landlord and Tenant Act 1954.
- Any agreement less than 18 months duration will not be transferable. Alienation provisions may be included for longer agreements but agreed use clauses shall not be altered.
- All leases to include 'green' clauses, requiring tenants to provide utility usage to the council where possible and reasonable. Exact wording to be drafted and agreed between the parties' respective solicitors.
- The pavilion operator will be responsible for all associated outgoings and compliance with all statutory provisions.
- Any food outlet to achieve and maintain a minimum Food Hygiene Rating Scheme score of 4.
- All pavilion operators will provide usage data to the council on an annual basis in accordance with the 'green clauses' included within the leases. These clauses are not intended to be onerous but will provide the council's climate change & sustainability team with the opportunity to monitor energy usage.
- All pavilion operators to take all reasonable steps to reduce the use of single use plastics and actively seek to reduce and mitigate any impacts on the environment.
- All pavilion operators to be prohibited from providing single use plastics for the sale of food or beverages to members of the public including plastic containers, plastic straws, and plastic cutlery.
- All pavilion operators must ensure that all recyclable waste produced by the tenant is recycled in the appropriate manner, and that all trade waste is managed appropriately under a trade waste or similar arrangement.
- Full due diligence, including but not limited to the health and safety and repair and maintenance obligations of all parties, as well as statutory compliance.
- All pavilion operators will use reasonable efforts to procure electricity supplies backed by Renewable Energy Guarantees of Origin (REGO) certification, or an equivalent recognised scheme.
- Approval by delegated authority in accordance with the council's constitution.
Any pavilion sites currently operated under existing agreements to be brought into line with this strategy at the expiry of existing agreements, or where an Expression of Interest is received.
The council will not hold any waiting list in relation to pavilion opportunities and will not be obliged to consider any unsolicited representations outside of the marketing process outlined above.
5. Financial Considerations
The Pavilion Management Strategy sets out the broad principles governing the marketing and management of pavilion sites that will be undertaken by the council in the future.
The outcome of implementing the strategy should provide a useful revenue stream that contributes to improving the council's financial resilience.
6. Risk
The property and estates team continues to improve practices and processes, reducing exposure and improving revenue streams. The implementation of this policy carries no significant risk to the council, but as with all other service improvements, there will be resource implications. Although this strategy outlines a streamlined approach to assessment, marketing and management, its implementation will effectively generate a new workstream for the service that may prove challenging to deliver.
7. Corporate Implications
Legal Considerations
In accordance with Section 123 of the Local Government Act 1972, this Strategy does not set fixed minimum or maximum terms for lease or licence agreements. Each letting will be considered on its individual merits, with regard to the requirement to obtain the best consideration reasonably obtainable for the disposal of a council asset.
Where appropriate and where it represents best value, officers will normally seek to agree lease terms of at least three years. This approach supports continuity of occupation and avoids the inefficiency and cost associated with frequent renewals. A proportionate and streamlined marketing framework has therefore been adopted to ensure compliance with legal and best value obligations.
Any pavilion located upon public open space shall require a notice to be published in accordance with Section 123(2A) of the Local Government Act 1972, and any objections considered, ahead of entering into any agreement with an operator.
Resources
The implementation of this strategy will require officer resources from across the organisation (finance, legal, parks, economic regeneration, and property) in relation to the marketing and ongoing management of any lease agreements.
Appendix A
Pavilion Assets (as of April 2026)
| Asset reference | Address | Strategic group |
|---|---|---|
| LM0002 | Felpham Sports Pavilion, Brooks Lane, Bognor Regis, PO22 8AT | Pavilion |
| LM0004 | Queensfield Sports Pavilion, Queens Field West, Aldwick, PO21 5SB | Pavilion |
| LM0005 | Avisford Sports Pavilion, Nyetimber Lane, Aldwick, PO21 3HG | Pavilion |
| LM0006 | Laburnum Sports Pavilion, Laburnum Grove, Bognor Regis, PO22 9HT | Pavilion |
| LM0007 | Hawthorn Road Pavilion, Hawthorn Road, Bognor Regis, PO21 5JH | Pavilion |
| LM0009 | Waterloo Square Bowls Pavilion, Waterloo Square, Bognor Regis, PO21 1SU | Pavilion |
| LM0010 | Swansea Gardens Pavilion Site, Swansea Gardens, Bognor Regis, PO21 2JG | Pavilion |
| LM0011 | Norfolk Gardens Pavilion Site, Sea Road, Littlehampton, BN17 5GB | Pavilion |
| LM0012 | Maltravers Sports Pavilion, Maltravers Drive, Littlehampton, BN17 3AL | Pavilion |
| LM0014 | King George V Sports Pavilion, Summerley Lane, Felpham, PO22 7HP | Pavilion |
| LM0015 | Southfields Changing Rooms, Southfields Road, Littlehampton, BN17 6AE | Pavilion |
| LM0016 | Felpham Community Centre Changing Rooms, Meaden Way, Felpham, PO22 8FA | Pavilion |
| LM0017 | Kingley Gate Changing Rooms, Benjamin Gray Drive, Littlehampton, BN17 7FA | Pavilion |
| LM3067B | Lashmar Recreation Ground Pavilion, Lashmar Road, East Preston, BN16 1ES | Pavilion |
| LM3070 | Glebelands Sports Pavilion, Greystoke Road, Ferring, BN12 5JU | Pavilion |
| LM5005 | Swansea Gardens Changing Pavilion, Swansea Gardens, Bognor Regis, PO21 2JG | Pavilion |
| LM7061 | Little Twitten Pavilion & Pitch (Ferring Cricket Club), Sea Lane, Ferring | Pavilion |
| LM7062 | Palmer Road Rec Pavilion Site, Palmer Road, Angmering, BN16 4DN | Pavilion |
| - | Bersted Park Changing Rooms | Pavilion |
Appendix B
| Criteria | Property and Estates | Parks | Economic Regeneration | Total | Out of |
|---|---|---|---|---|---|
| - | Score (0-5) and Comment | Score (0-5) and Comment | Score (0-5) and Comment | - | - |
| Social impact | 15 | ||||
| Environmental impact | 15 | ||||
| Economic impact | 15 | ||||
| Commercial offer | 15 | ||||
| - | 0 | 60 |