European Commission Expert Group On strengthening-NC0223102ENN

European Commission Expert Group on
"Strengthening the recovery and the

crisis resilience of the sport sector during
and in the aftermath of the COVID-19
pandemic"
Final report
EUROPEAN COMMISSION
Directorate-General for Education, Youth, Sport and Culture

Directorate D — Culture, Creativity and Sport
Unit D.3 — Sport
E-mail: [email protected]
European Commission
B-1049 Brussels
EUROPEAN COMMISSION
European Commission Expert

Group on "Strengthening the
recovery and the crisis resilience
of the sport sector during and in
the aftermath of the COVID-19
pandemic"
Final report
Directorate-General for Education, Youth, Sport and Culture
2024 EN
Manuscript completed in December 2023
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Print ISBN 978-92-68-08207-2 doi:10.2766/80257 NC-02-23-102-EN-C

PDF ISBN 978-92-68-08208-9 doi:10.2766/045032 NC-02-23-102-EN-N
European Commission Expert Group on "Strengthening the recovery and the crisis resilience of
the sport sector during and in the aftermath of the COVID-19 pandemic"
Contents
Foreword ........................................................................................................... 6
Executive Summary ......................................................................................... 6
1. Introduction ............................................................................................ 10
2. Background and context ....................................................................... 11
3. Lessons learnt........................................................................................ 12
4. Looking ahead........................................................................................ 26
5. Annex: Good practice examples .......................................................... 32
5
Foreword
The profound significance of sport, deeply interwoven with our culture and our
communities is crucial for our society. Sport has been a beacon of hope and resilience in
tumultuous times, a platform for expression, and an arena where the indomitable human
spirit, tenacity and collaboration shine brightly.
The past couple of years have been, by all measures, extraordinary. The COVID-19
pandemic has shaken the foundations of our lives, societies and economies. Geopolitical
events such as Russia’s war of aggression against Ukraine have added to the challenges
we face, including in the sports sector.
I express my gratitude to the Expert Group for their thorough analysis of these events’
impact on both professional and grassroots sports. Their extensive study delved into
critical issues such as environmental sustainability, climate change and governance
within the sports sector.
This report uncovers the wide-ranging impact of the pandemic on sports, affecting
everyone from policymakers to the general public. It outlines key recommendations from
the Expert Group, including enhancing coordination among Member States,
disseminating information on funding opportunities, promoting standardised data
collection and bolstering grassroots sports. It suggests national authorities prioritise sports
during potential lockdowns and foster a health and safety-conscious economy oriented on
well-being. The report also urges the broader sports community to invest in grassroots
projects, work closely with athlete associations and embrace the digital transition.
The multifaceted effects of the pandemic, as the report indicates, span the entire sports
sector. This report touches on the challenges policymakers face, the economic pressures
on sports organisations, the mental and physical hardships endured by athletes, and the
significant shifts in the general population's lifestyle and habits. This comprehensive
analysis underscores the depth and breadth of the challenges encountered.
Despite this adversity, our spirit of unity, collaboration, and resilience shines brighter than
ever. The swift adaptation of clubs and organisations to new realities, the embrace of
digital transformation and the sharing of insights and best practices across the EU
highlight the strength of our solidarity and innovation.
This report stands as a testament to our shared values and the enduring spirit of our sport
community. I commend the Expert Group for their invaluable contribution and extend
heartfelt thanks to every individual, organisation and institution that has played a role in
strengthening the resilience of our sports sector in these trying times.
Iliana Ivanova
European Commissioner for Innovation, Research, Culture, Education and Youth
6
Executive Summary
This report stems from an Expert Group established by the European Commission in 2021
to address the challenges faced by the sport sector during and post the COVID-19
pandemic. Their task was to comprehend the pandemic's enduring impacts on both elite
and community sports, disseminate effective strategies, and propose recovery
recommendations. Notably, as the group's work deepened, other crises, including the
Ukraine conflict and rising energy costs, further intensified the challenges in sports. The
report's focus is not only on the pandemic's direct impacts but also on broader matters like
environmental sustainability, climate change, and governance.
The COVID-19 pandemic significantly impacted the sports sector across European
Member States, with both short-term and long-term consequences. These effects were felt
across different stakeholder groups, namely sport policymakers, sport organisations and
the related industry, athletes and professionals, as well as the general population. The
impacts and responses across each group are summarised as follows:
Sport Policymakers:
• Sport policy makers grappled with balancing health risks against social and
economic impacts. Lockdowns led to event cancellations, facility closures, and a
stark decline in physical activity.
• The European Council highlighted the crisis's toll and called for measures to
lessen its effects. Regular exchanges amongst EU Member States focused on
COVID-19 measures in sports.
• Exceptions were made for elite athletes in some areas, and sports places were
repurposed for health needs in others. The urgency to support grassroots sports
and infrastructures became prominent.
• The EU rolled out the Recovery and Resilience Facility (RRF), with 21 Member
States pledging €2.2 billion for sports. At the national level, financial supports
varied; for example, Estonia used its Sports Register data for fund allocation.
Sports Organisations, Clubs, and Industry:

• Revenue sources for sports organisations, including ticket sales and memberships,
faced substantial decline, causing many to downsize or limit their activities.
• The estimated economic impact on the sector reached a staggering EUR 50 billion,
with service industries like tourism and transport heavily affected.
• Many establishments adapted rebounding from losses due to the coronavirus
pandemic. Many turned to online solutions or virtual events for alternative
revenue.
• The fitness segment confronted challenges, though there were signs of recovery
towards the end of 2021.
7
Athletes, Coaches, and Employment in Sports:

• Athletes and sports practitioners in general grappled with physical and mental
challenges. Training restrictions led to physical deconditioning, while lack of
competitions caused significant mental distress.
• Individual athletes faced higher distress levels than team sports members. Gender
disparities were evident, with sportswomen more adversely affected in terms of
mental health and financial stability. EU Athletes surveys emphasised the critical
role of athletes' unions, with a surge in demand for legal, financial, and mental
health support.
• While employment in sports dipped in 2020, there was a mild recovery the
following year. Notably, there was a decrease in volunteer participation across
sports organisations.
• The role of coaches evolved, with many transitioning to online training.
General Population:
• There was a significant reduction in physical activity due to pandemic restrictions.
• Home and outdoor workouts saw an uptick, supported by digital platforms.
• The importance of regular physical activity, both for physical and mental health,
was accentuated during the pandemic, offering potential cost savings for EU
nations.
• Mental health, especially amongst the younger generation, became a focal
concern. In 2023, a comprehensive approach to mental health was introduced by
the European Commission.
Conclusions
Expert feedback reveals the value of networking and sharing best practices. The early
phases of the pandemic saw the Working Party on Sport partially serving as a forum for
exchange. Having digital tools to facilitate these exchanges is advantageous, especially
during emergencies, as demonstrated by Estonia's effective use of databases.
The pandemic, coupled with events like Russia’s war of aggression against Ukraine and
the rise in energy prices, highlighted the importance of risk preparedness. Organisations
must adopt strategic approaches to crisis management, foreseeing risks and ensuring the
welfare of athletes and stakeholders. The need for consistent medical protocols and
insurance policies for unforeseen cancellations became clear.
With physical activity levels dropping due to the pandemic, the health benefits of regular
exercise emerged as an essential preventive measure against severe COVID-19 effects
and other non-communicable diseases. Emphasising these benefits could serve as a health
investment, potentially bolstering immunity and curbing prevalent comorbidities.
Moreover, digital tools have enhanced sport and fitness experiences, though their
unchecked use on platforms can pose risks.
8
The EU's commitment to promoting public health has surged, as seen in the increased
funding, like the Erasmus+ programme's allocation for sport-related activities and the
HealthyLifestyle4All initiative.
Athletes, the very heart of the sport, were significantly impacted. Their welfare and rights,
along with robust governance, must be central to decision-making. The precarious nature
of athletes' employment during the pandemic has raised concerns about their rights, social
protections, and health. It's paramount to ensure gender equality and acknowledge the
role of athletes and their associations, ensuring their representation in decisions impacting
the sport.
Regarding sustainability, the environmental footprint of significant sports events and the
energy inefficiency of sports facilities have been under scrutiny. Climate change directly
affects outdoor sports, especially winter sports. As we seek to recover from the pandemic,
it's vital to prioritise environmental sustainability. This crisis has showcased the intricate
link between global health and environmental vulnerabilities, underscoring the
importance of fostering a sustainable coexistence between sport and the environment.
Recommendations
The European Commission has an important role for enhancing coordination among
Member States for streamlined decision-making and for diminishing disparities. The
Commission is also encouraged to spread information about available funding options
and support standardised data collection at both EU and Member States levels.
Additionally, collaboration with Member States on enhancing grassroots sports support
systems is advised. Finally, it would be useful to explore options for establishing a
European Crisis Management Network or Group that can swiftly convene on an as-
needed basis during emergencies.
National authorities are recommended to prioritise sporting activities during possible
future lockdowns while ensuring safety and respecting necessary health precautions. It
would be beneficial to actively collect and disseminate essential data for effective
policymaking, recognising the immense value of sports to multiple sectors including
health, economy, and environment. Addressing precarious employment situations in
sports and promoting a wellbeing-focused economy is also vital. National authorities are
also advised to maintain access to sports facilities, provide reopening guidelines, and offer
organisational resilience and risk management guidance, recognising the valuable
contribution of volunteers.
It is crucial for the sport movement at both international and national levels to share
important data during crises. They are urged to earmark specific funds for grassroots
sports and collaborate with athlete associations for their welfare. Recognising and
supporting volunteers, offering resilience and risk management guidance, and seeking
diverse funding avenues, including private sector partnerships, are also essential. They
should further facilitate access to resources for grassroots sports and embrace innovative
practices to adapt during volatile situations.
Sport clubs, especially smaller ones, should strategise stakeholder management and
consider forming beneficial partnerships for peer support. They must ensure robust
financial planning, explore diverse funding sources, and fully utilise digital
transformation while enhancing its accessibility and adaptability for their members.
9
1. Introduction
This report is the result of the work of a European Commission Expert Group on
Strengthening the recovery and the crisis resilience of the sport sector during and in the
aftermath of the COVID-19 pandemic, established in 2021 by the Resolution of the
Council on the EU Work Plan for Sport (1 January 2021 - 30 June 2024).
The mandate of the Expert Group included an analysis of the medium and long-term
impact of the pandemic on professional and grassroots sport and physical activity, the
exchange of good practices and the formulation of recommendations for recovery and
crisis resilience.
The Group started its work in spring 2021, approximately one year after the beginning of
the pandemic. A total of eight meetings were held, providing the Group with a platform
to discuss and exchange about the challenges public authorities and the sport movement
were facing during the COVID-19 pandemic.
Each meeting focused on a specific topic:
- EU and national measures to support the sport sector to overcome the negative
effects of the COVID-19 pandemic
- Key challenges of the sport movement
- The COVID-19 pandemic and the European Fitness and Physical Activity sector:
impact and recovery
- Education and skills in and through sport: the impact of COVID-19 on sport
coaching
- The impact of COVID-19 on elite sport
- Health and wellbeing of citizens as well as the role of sport and physical activity
in society
- Volunteering and grassroots sport
- The COVID-19 pandemic in a broader context
As the work of the group was ongoing, other crises arose and their effects started to
cumulate on an already affected sport sector. In addition to the severe economic
consequences of pandemic, the rise of energy prices due to the war in Ukraine, for
example, took an additional toll on sport facilities and clubs. Starting from early 2022,
the public attention to the pandemic started to decrease, partially due to the progressive
loosening of all restrictions in place, but also due to the beginning of the war in Ukraine
and the rise of energy prices a few months later.
The aim of this report is to offer an overview of the impact of the COVID-19 pandemic
on the sport sector and some general orientations and recommendations for the recovery
of the sport sector from the pandemic, while considering the broader context and other
concerns such as sustainability, climate change and good governance.
10
2. Background and context

The COVID-19 pandemic outbreak in Europe started in early spring 2020, when all EU
Member States introduced, one after the other, several measures and restrictions to try
and contain the spreading of the virus. The two following years were marked by various
lockdowns, curfews, alternated with looser restrictions when the number of positive cases
was low. The situation was closely monitored by the European Union through the
adoption of legislation and coordination with Member States to share information and
ensure a coherent response. (1) The sport sector was no different from other activities and
had to close and follow the countries’ public health regulations on COVID-19.
EU Sport Ministers met throughout the acute phases of the pandemic and discussed the
measures introduced in the different Member States, underlining how the situation has
impacted the functioning of sports federations and the major economic losses of the
sector, as well as the continuity of athletes’ training and preparation, and the physical
activity levels of the population. (2) In their first video-conference meeting during the
pandemic, on 21 April 2020, Ministers also stressed the importance of exploring options
within the new funding initiatives, such as the “Coronavirus Response Investment
Initiative” and the “Support to mitigate Unemployment Risks in an Emergency (SURE),
in cooperation with the relevant institutions, and ensuring the recognition of sport as an
important part of regional development and policies. (3)
The following meeting on 2 June 2020, showed that some Member States, with more
favourable epidemiological circumstances, had started to relax the restriction and to make
safety and hygiene recommendations to ensure the protection of all participants in training
and sport activities. (4) However, most sport events and competitions remained cancelled
or postponed.
As the situation linked to COVID-19 gradually improved, the sport sector was faced with
other crises, which ultimately overlapped with the end of the pandemic and exacerbated
an already complicated situation: Russia’s war of aggression against Ukraine, its
repercussions on energy prices in Europe, and, in parallel, a steadily increasing inflation.
The challenges to the sector have become increasingly diverse and complex, demanding
adaptability and the pursuit of innovative solutions from all stakeholders involved.
As of late spring 2022, the sport movement has been confronted with higher energy cost,
which affected mostly sport facilities, especially for energy intensive facilities, such as
(1) What is the EU doing in response to the COVID-19 coronavirus pandemic - Consilium (europa.eu)
(2) Croatian Presidency summary of the discussion from the Informal Videoconference of the EU Ministers of Sport,
21 April 2020, https://eu2020.hr/Home/DocumentDownload/214
(3) Ibid
(4) Croatian Presidency summary “Addressing the impact of the COVID-19 pandemic on the sport sector”, 2 June
2020, https://eu2020.hr/Home/DocumentDownload/231
11
swimming pools (5), but also the sporting goods industry, in both the production and sales
of equipment. Gas and electricity prices reached record levels in 2022, peaking in the
month of August. The resulting increase of inflation in the European Union, more than
tripled in 2022 compared to the previous year (6), did not spare sports goods and services
either. According to Eurostat, the prices for recreational and sporting services increased
by 4,7% between 2021 and 2022, marking the highest increase in the last 10 years. (7)
EU Sport Ministers, during the Education, Youth, Culture and Sport Council on 28-29
November 2022, discussed how to turn these multiple crises into opportunities for the
sport sector. As the pandemic led to the deployment of new technologies, the energy crisis
highlighted the need for a larger discussion on the energy transition and efficiency of
sport infrastructure and, more generally, around sustainability and the contribution of the
sport sector to the EU’s climate and environmental objectives, as well as to the UN
Sustainable Development Goals. (8) (9) The aftermath of the COVID-19 pandemic, while
disruptive, can be seen as an opportunity to learn from the experience and develop
strategies to tackle global challenges effectively, involving the entire sport community.
Throughout the work of the Expert Group, valuable expertise has been gathered,
showcasing the sector's resilience and the European sport community's capacity to
confront future crises. This collective effort demonstrates the determination of those
involved to overcome obstacles and foster a stronger, more prepared sport sector in the
face of adversity.
3. Lessons learnt
When the COVID-19 pandemic first started, in March 2020, the reaction of Member
States was immediate. Initially most adopted stringent measures, based on infection-
prevalence criteria, with a diversity of approaches taking place around April or May.
Focusing specifically on the sport sector, the impact of the COVID-19 pandemic has been
substantial, both at the professional and grassroots level. Depending on the severity of the
restrictions put in place in each Member State, competitions and events were cancelled or
postponed, facilities were closed and the possibilities for outdoor physical activity were
strongly limited.
(5) Education, Youth, Culture and Sport Council - Consilium (europa.eu)
(6) Annual inflation more than tripled in the EU in 2022 - Products Eurostat News - Eurostat (europa.eu)
(7) Price of sports goods & services: sharp increase in 2022 - Products Eurostat News - Eurostat (europa.eu)
(8) Education, Youth, Culture and Sport Council - Consilium (europa.eu)
(9) Conclusions of the Council and the representatives of the Governments of the Member States meeting within the
Council on sustainable and accessible sports infrastructure, EUR-Lex - 52022XG1228(01) - EN - EUR-Lex
(europa.eu)
12
The main challenges posed by the COVID-19 pandemic affected four main categories of
stakeholders:
- Sport policy makers
- Sport organisations, sport clubs, sporting goods industry and the fitness sector
- Athletes, coaches, and sport employment
- General population
Sport policy makers
The COVID-19 pandemic confronted public authorities with considerable challenges

when making crucial decisions. In the face of uncertainty, with public health at risk,
governments were tasked with safeguarding their citizens while lacking comprehensive
knowledge about the virus, its transmission mechanisms, and the effectiveness of
potential measures on both direct and indirect health outcomes. (10) Especially in the early
stages, they had to rely on constantly changing scientific evidence and to find a balance
between protecting public health and preventing severe economic and social
disruptions. (11)
At the European level, the Education, Youth, Culture and Sport Council acknowledged
the multifaceted impact of the crisis (economic, social, and sanitary) and urged Member
States, the European Commission, and the sports movement to take measures to mitigate
the pandemic's consequences. Recognising the diverse circumstances faced by Member
States, the Council also encouraged efforts to support the sports sector and promote
physical activity among citizens. (12) The Council’s Working Party on Sport served as a
platform for exchanging information about the situation in each Member State and to
adopt a coordinated approach on how to address the challenges faced by the sport sector.
Particularly, during the Croatian, German, Portuguese and Slovenian Presidencies of the
Council of the EU (in the period March 2020 until December 2021), a regular exchange
of information took place among EU Member States regarding Covid-19 measures in the
sport sector. Example topics include resuming sport and physical activity, public use of
sport infrastructure and facilities, preventive measures in force, attendance of spectators
at sport events and obligations regarding RVT (recovered, vaccinated, tested) conditions.
As of April 2020, most Member States had imposed lockdowns or major movement
restrictions to the population, with important repercussions on the sport sector as well.
(10) Rational policymaking during a pandemic | PNAS
(11) Ibid.
(12) Council Conclusions on the impact of the COVID-19 pandemic and the recovery of the sport sector
13
Sport events and competitions were cancelled, and all sport facilities were closed,
including gyms and fitness centres. Most countries allowed open-air individual exercise,
however in some cases within a certain distance from the place of residence. Elite athletes
were included in the restrictions and were not allowed to use training facilities, except for
Finland, where some facilities remained accessible exclusively to elite athletes, and
Portugal, where elite athletes, coaches and their support staff, including in parasports,
were included in an exception regime that allowed them to continue training. In some
cases, as reported by Cyprus and Spain, sport facilities were put at the disposal of health
authorities to set up testing centres or store medical resources. (13)
Throughout these months, Member States had to face some challenges to which they had
to pay particular attention. Firstly, it was important to find a balance between the strict
measures taken to limit the circulation of the virus and mitigating the consequences of
such measures on people’s physical activity habits. (14) The decline in the population’s
physical activity levels quickly became one of the main challenges to face. Several
Member States put in place campaigns to encourage physical activity at home. From the
#BeActiveAtHome Challenge in Cyprus to the #YoMeMuevoEnCasa in Spain, Member
States involved high-level athletes as role models to inspire people to still be active during
lockdowns. (15) A Europe-wide #BeActiveAtHome campaign was also launched by the
European Commission in April 2020, at the occasion of the European Week of Sport
2020. Outdoor individual sport activity and online fitness training platforms gained in
popularity and the practice of sport and physical activity in informal settings increased.
Another issue that emerged as a priority for the sport sector was putting in place financial
support for grassroots sport, sport organisations and federations, as well as for the
maintenance of sport infrastructure and facilities, which in some cases proved to be
inadequate and needed adaptation to health measures, but also renovation and energy
efficiency works. However, the uniqueness and uncertainty of the situation required
policy makers within the sport sector to adapt and the consequences of the outbreak
delayed the adaptation of common regulatory frameworks and funding schemes, which
were designed for more stable times. At the European level, EU programmes and funds
played a crucial role in mitigating the impact. (16) In February 2021, the Council adopted
the Recovery and Resilience Facility (RRF), to support Member States in addressing the
economic and social impact of the COVID-19 pandemic. (17) Within the work of the
SHARE initiative, sport stakeholders were encouraged to establish contacts with national
and local public authorities to ensure sport was included in the National Recovery and
(13) Replies to the survey conducted by the Croatian Presidency of the Council of the European Union in April 2020
(14) First meeting of the European Commission Expert Group on Strengthening the recovery and the crisis resilience
of the sport sector during and in the aftermath of the COVID-19 pandemic, 21 May 2021
(15) Replies to the survey conducted by the Croatian Presidency of the Council of the European Union in April 2020
(16) Council Conclusions on the impact of the COVID-19 pandemic and the recovery of the sport sector
(17) Timeline COVID-19 coronavirus - Consilium (europa.eu)
14
Resilience Plans (NRRPs). (18) 21 Member States addressed sport and physical activity
in their plans, including investments in sustainable mobility, in renovating public sport
infrastructure and in the promotion of healthy lifestyle and social cohesion, for a total of
EUR 2.2 billion across the EU. (19)
At the national level, Member States put in place measures aiming at supporting the sport
sector financially, including new structural grants to support organisations to continue
their activities or compensate for revenue losses, postponement, or exemptions of
obligations such as tax and debt payments, or adjustment of pre-existing support measures
and redirecting existing funds. Moreover, support also included providing information
resources, guidance, and allowances for freelancers and athletes. (20)
In Estonia, for example, the government put in place both general and sport-specific
financial support measures. General measures included support for employees, private
providers of informal education and recreational activities, commercial and service
businesses, including in tourism. Sport specific financial support targeted coaches,
federations, professional leagues and clubs, indoor sport facilities (both private and
public) and event/international competition organisers. Both general and sport-specific
measure were disbursed in three waves. In the case of Estonia, the availability of reliable
and comprehensive data made it easier to take fast decisions and to put in place clear
principles. Preconditions and eligibility criteria for financial support were established
based on the information from the Estonian Sports Register, a regularly updated database
of sports organisations, schools, facilities, coaches, athletes’ allowances and scholarships
and sports results. Any organisation or individual, to receive financial support, had to be
registered and updated their information in the Estonian Sports Register, in addition to
other criteria. (21) For coaches, the need to have valid EQF qualifications and to be in the
Register served as an incentive for many unlicensed coaches to obtain their
certification. (22) Between 2019 and 2020, the number of licensed coaches increased by
almost 15%. With these measures, in 2020 and 2021 the Estonian government provided
financial support to 900 sport organisations and facilities, for a total of EUR 31
million. (23)
Involving sport stakeholders in the decision-making and establishing good

communication also proved to be a valuable tool in understanding the needs of the sector
(18) SHARE LAB - Next Generation EU guidance - FINAL.pdf (europa.eu)
(19) Sport in the recovery and resilience plans - Publications Office of the EU (europa.eu)
(20) European Commission, Mapping study on measuring the economic impact of COVID-19 on the sport sector in
the EU, https://op.europa.eu/s/yW4z
(21) Second meeting of the European Commission Expert Group on Strengthening the recovery and the crisis
resilience of the sport sector during and in the aftermath of the COVID-19 pandemic, 14 June 2021
(22) Third meeting of the European Commission Expert Group on Strengthening the recovery and the crisis resilience
of the sport sector during and in the aftermath of the COVID-19 pandemic, 3 December 2021
(23) Ibid.
15
in times of crisis. In Denmark, sector partnership meetings with government bodies, sport
federations and the Danish Olympic Committee were held regularly to discuss legislation
proposals, guidelines and financial support. (24)
In April 2021, in a survey circulated by the Portuguese Presidency of the Council of the
EU, most Member States (15 out of 22 total replies) reported that some sport activities
had resumed, but mostly for elite athletes and/or only for outdoor sports. Only in four
Member States (Bulgaria, Romania, Spain and Sweden) all sport activities were allowed
at that time. In all cases, health and safety measures were put in place, such as mask
wearing, social distancing and limited maximum capacity for facilities. Only in three out
of the 22 participating Member States (Czech Republic, Ireland and Malta), no sport
activity was allowed then. Events had resumed as well, although behind closed doors in
most cases. (25)
The measures adopted by the Member States yielded varying results in controlling the
pandemic and in mitigating the impact on individuals. The well-being of Europeans
declined, and national economies were significantly affected. In Spain, for example, the
estimated loss resulting from the disruptive effects of the COVID-19 pandemic on the
Spanish sport ecosystem was 38.5 % for the financial year 2020, amounting to
approximately EUR 4.6 million. (26) In France, according to a study published in February
2021 by the BPCE Observatory, the sport sector would experience a drop of about 21 %
in 2020 compared to 2019, a much deeper recession than that estimated in the French
economy as a whole (8 % according to INSEE). Considering the expected growth in 2020,
the loss of activity due to the pandemic can be estimated at 25 %, with one in four sport
companies reporting a decline of over 50%. (27)
In September 2021, sport and physical activity had resumed in all Member States and
sport facilities were open for public use. Some restrictions were still in place, such as
limitations on the maximum capacity of facilities, physical distancing, mask wearing and
limitations to the use of changing rooms. Spectators were slowly readmitted at sport
events as well, although with restrictions. (28) With the gradual reopening of the sector,
Member States also started to take stock of the impact of the first year of the pandemic.
The most common challenges at this stage were the decline in sport participation (-3% in
(24) Second meeting of the European Commission Expert Group on Strengthening the recovery and the crisis
resilience of the sport sector during and in the aftermath of the COVID-19 pandemic, 14 June 2021
(25) Replies to the survey conducted by the Portuguese Presidency of the Council of the European Union in April 2021
(26) Fundación España Activa, Estudio del impacto del COVID-19 sobre el ecosistema del deporte español,
http://espanaactiva.es/wp-
content/uploads/2020/06/Informe_estudio_FEA_ADESP_CSD_impacto_covid19_compressed.pdf
(27) Groupe BPCE, La filière sport retient son souffle, https://groupebpce.com/etudes-economiques/carnets-eco-sport-

2021
(28) Replies to the survey conducted by the Slovenian Presidency of the Council of the European Union in September
2021
16
Germany, -12% in Portugal), the financial situation of clubs, sport organisations and the
fitness sector.
During the pandemic, the Expert Group allowed Member States to exchange with peers
and discuss the most challenging issues. However, stakeholders deemed the coordination
insufficient as the measures and criteria used for the restrictions were not harmonised
among Member States.
Sport organisations, sport clubs, sporting goods industry and the fitness
sector
Sports organisations, clubs, gyms, and fitness centres constitute the beating heart of the
sport and physical activity sectors, making them particularly vulnerable to the harsh
repercussions of the COVID-19 pandemic. Lockdowns and restrictions had a
considerable impact on the sport movement, which largely relies on small not-for-profit
clubs and organisations with limited financial reserves. The impact has been acutely felt
by these organisations, which have grappled with the loss of income stemming from
sports events, competitions, and membership fees. As a result, many found themselves
strained to cover fixed expenditures, often resorting to painful measures such as
workforce reductions and curtailed activities in order to preserve their financial viability.
(29)
Over 40 sport organisations in Europe, in a joint position paper underline the gravity of
the COVID-19 crisis on the sector. Beyond its immediate health implications, this crisis
casts a long shadow over the daily lives of individuals, their well-being, and the economy
at large. The economic toll, estimated at approximately EUR 50 billion, has been
especially pronounced in service industries such as tourism, food and accommodation, as
well as transportation and sports. The pandemic's ripple effect has also reduced potential
spill-over into domains like research, innovation, and healthcare. (30)
The sport sector, in particular grassroots organisations, bore the brunt of movement
restrictions and lockdown measures. This comprehensive ecosystem encompasses a
diverse array of stakeholders, from athletes, coaches, and instructors to other employees,
volunteers, and officials. The commercial side of the sport sector, from fitness clubs and
gyms to event organisers and retailers, also had to adapt to these unprecedented
circumstances. (31)
The pandemic has struck these organisations at their core, exacerbating in some cases an
already precarious position. At the local level, within grassroots organisations, the
(29) European Commission, Mapping study on measuring the economic impact of COVID-19 on the sport sector in
the EU, https://op.europa.eu/s/yW4z
(30) Position paper on the impact of the COVID-19 crisis on the sport sector,
https__www.euoffice.eurolympic.org_files_position_paper_COVID-19-final_revision.pdfIbid.
(31) Ibid
17
economic crisis has provoked major losses, including bankruptcy, for numerous clubs. In
Spain, for example, the losses for sport clubs have been estimated at -53%. (32)
Traditionally, sport clubs derive income from membership fees, ticket sales,
sponsorships, and community events. Membership losses and event cancellations led to
substantial financial setbacks, echoing through the entire sport pyramid—federations,
clubs, leagues, athletes, and various stakeholders including coaches, instructors,
administrators, competition officials, and business owners. (33)
The situation is similar when considering major sport federations. The World Players
Association, in their biennial report “The Economics of International Sport Governing
Bodies: A Comparative Review”, shows that most of the analysed federations did suffer
revenue losses due to the pandemic and ended the financial year 2019/2020 in deficit, but
the availability of financial reserves on one side, and the resumption of events on the
other, allowed them to maintain a solid financial situation. (34) In Europe, for example,
UEFA’s financial year 2019/2020 ended with a net loss of EUR 73.4 million (35), while
the following year ended with a net profit of EUR 22.1 million (36), mainly thanks to the
revenues from the Euro2020, which was postponed to 2021.
Similarly to Member States, federations also offered financial support to their members,
such as one-off payments, low-interest rate loans, solidarity and relief funds, waiving
membership fees as well as adapting competition rules and formats to increase health
safety. Some governments also facilitated the access to unemployment benefits and
provided access to online training and education programmes. (37)
Some clubs made use of technology to generate new income sources, such as social media
platforms, online home training programmes, virtual tickets and e-sports with virtual
races. FIFA, for example, exceeded its budgeted income for 2020 by 7%, mainly thanks
to licensing opportunities and to the growth of e-sports, where the revenue exceeded
expectations by 24%. (38) Digitalisation also favoured athletes, who could connect
virtually with their team or coaches and access training sessions or professional advice
(32) Fundación España Activa, Estudio del impacto del COVID-19 sobre el ecosistema del deporte español,
http://espanaactiva.es/wp-
content/uploads/2020/06/Informe_estudio_FEA_ADESP_CSD_impacto_covid19_compressed.pdf
(33) Position paper on the impact of the COVID-19 crisis on the sport sector,
https__www.euoffice.eurolympic.org_files_position_paper_COVID-19-final_revision.pdf
(34) World Players Association, The Economics of International Sport Governing Bodies: A Comparative Review,
WPA_Economics-of-ISFs-2020_FINAL.pdf (uniglobalunion.org)
(35) Ibid
(36) UEFA Financial Report 2020/2021, en_ln_uefa_financial_report_2020-2021.pdf
(37) ILO, “Sectoral Brief COVID-19 and the Sport Sector”, February 2023.
(38) World Players Association, The Economics of International Sport Governing Bodies: A Comparative Review,
WPA_Economics-of-ISFs-2020_FINAL.pdf (uniglobalunion.org)
18
from physiotherapists, doctors or nutritionists. (39) The retail sector also moved towards
digital solutions and online sales increased between 20 and 60%. (40) In some cases,
online sales compensated the loss of revenues by more than 60%, but smaller companies
without an online store were excluded from this the e-commerce boom. (41)
The fitness market experienced a similar contraction in size, revenue, and membership
levels due to the pandemic's impact. Extended lockdowns resulted in fitness operators
losing over 40% of operational days in 2021. Enhanced safety measures and admission
protocols, including capacity constraints and sanitation, challenged the post-lockdown
resumption of activities. (42) The recovery was not homogeneous in EU Member States,
but a EuropeActive survey revealed that membership levels started to grow again in 2021,
after months of decline. Development of clear guidelines to support fitness facility
reopening, such as the COVID-19 Risk Assessment Tool and Mitigation Checklist. (43)
The sporting goods industry also saw an important decline in sales in 2020, with a loss of
turnover between 10 and 30%, according to a survey conducted by the Federation
European of Sporting Goods Industry (FESI). (44) The pandemic severely hit the ski
sector in particular, with a loss of 50% of turnover for the period 2020-2021. (45) In 2021,
most equipment manufacturers started to witness positive revenue trends, driven by
increased demand for outdoor and at-home training equipment and kits. (46)
Athletes, coaches, and sport employment
Due to the restrictions and their consequences on the sport movement and sport
organisations, many athletes and employees of the sport sector were left in a vulnerable
situation.
(39) Ibid.
(40) Federation of European Sporting Goods Industry, FESI survey on COVID-19, https://fesi-sport.org/wp-
content/uploads/2020/11/Results-2nd-FESI-survey-on-COVID-19-November-2020-1.pdf
(41) Ibid.
(42) EuropeActive European Health and Fitness Market Report 2022, Bestsellers - EuropeActive - EuropeActive
(blackboxpublishers.com) Bestsellers - EuropeActive - EuropeActive (blackboxpublishers.com)
(43) https://www.ihrsa.org/publications/safety-considerations-for-sport-fitness-clubs-in-the-context-of-covid-19/
(44) Federation of European Sporting Goods Industry, FESI survey on COVID-19, https://fesi-sport.org/wp-
content/uploads/2020/11/Results-2nd-FESI-survey-on-COVID-19-November-2020-1.pdf
(45) WINTER SPORTS BUSINESS 2021/2022 – ANOTHER CATASTROPHIC SEASON MUST BE AVOIDED |
FESI (fesi-sport.org)
(46) Presentation from Deloitte’s Sports Business Group on “The COVID-19 pandemic and the European Fitness and
Physical Activity sector: impact and recovery”, 3rd meeting of the Expert Group on strengthening the recovery
and the crisis resilience of the sport sector during and in the aftermath of the COVID-19 pandemic.
19
Surveys and research highlighted that the athletes’ financial security, mental health, as
well as physical health and safety were profoundly affected during the pandemic. While
athletes with labour contracts were normally able to benefit from the income support
schemes, many athletes could not receive financial support due to their employment status
or contract type. Additionally, many athletes had their contracts unilaterally and
unlawfully modified or terminated by their employers. Many athletes found themselves
at risk of losing their contracts, sponsorships and primary source of income due to lack
of events, especially for those without an annual contract who rely primarily on prize
money and event participation bonuses as their main source of income. (47) In addition,
due to the absence of recognised employment contracts, many athletes, especially
sportswomen, were ineligible to receive any financial support from the government. (48)
The lack of basic worker rights and protection as well as health insurance and medical
coverage left athletes in a vulnerable situation. (49)
The COVID-19 pandemic has been an opportunity to stress the importance of having
proper employment contracts and respecting athletes’ rights. Moreover, the pandemic
was a driving force for athletes' unions to emphasise the pivotal role of players
associations, especially in this time of crisis. In a survey conducted by EU Athletes, 74%
of the member associations reported a substantial increase in the demand for services
from athletes, particularly in the areas of legal and financial support and advice, followed
by dual career and transition support and mental health and well-being. (50)
The prolonged restrictions and absence from competitions also had a significant impact
on athletes’ mental and physical health. First, athletes could not maintain their training
practices nor have access to their coaches and specialist facilities, resulting in
deconditioning. Secondly, many athletes experienced the loss of a core component of
their self-identity because of the absence of competition. Altogether, this led to increased
psychological distress among athletes, with individual athletes reporting higher degree of
psychological distress than team sport athletes. (51) (52) At the resumption of competition
(47) ILO Sectoral Brief - COVID-19 and the sports sector https://www.ilo.org/wcmsp5/groups/public/---ed_dialogue/-
--sector/documents/briefingnote/wcms_870973.pdf
(48) EU Athletes, “Preliminary Research on the Impact of the COVID-19 Pandemic on Players and their Player
Associations”, June 2020.
(49) ILO, “Sectoral Brief COVID-19 and the Sport Sector”, February 2023.
(50) EU Athletes, Research on the long-term impact of the COVID-19 Pandemic on Players and their Player
Associations, EUA REPORT_FINAL_2 (euathletes.org)
(51) Neil Dagnall et al., “The Potential Benefits of Non-Skills Training (Mental Toughness) for Elite Athletes: Coping
with the Negative Psychological Effects of the COVID-19 Pandemic”, Frontiers in Sports and Active Living 3,
article 581431 (September 2021).
(52) Clifford C. Uroh and Celina M. Adewunmi, “Psychological Impact of the COVID-19 Pandemic on Athletes”,
Frontiers in Sports and Active Living 3, article 603415 (April 2021).
20
following lockdown more intensive training and playing schedules led to a significant
increase in injuries in comparison to previous seasons in several sports. (53)
In addition, it is important to underline the gender differences that emerge from studies.
For example, some studies have shown that female athletes were more likely to report
mental health issues during lockdown than their male counterparts, as well as more
concerns about the impact of the restrictions on their athletic performance. This is also
linked to the financial strain women’s sport is under, as women were more likely to be
among the athletes who lost their employment contract, or who did not have one at all,
which was an additional source of stress and anxiety. (54) (55)
Athletes’/ players’ associations have been particularly vocal about athletes’ safety in
return to play protocols, but they were not often involved or consulted by decision makers.
A survey conducted by EU Athletes showed that just over half of their member
associations reported they had been involved with their league, federation or government
on decisions that directly affected athletes, such as health and safety protocols or the
scheduling of competition season. (56)
Athletes with a disability paid an even higher price for the disruption of competitions and
sport activities, as the access to specific training facilities is even more vital for para-
athletes. In turn, the resumption of sport activities also posed a higher risk for para-
athletes, as some have underlying medical conditions that make them more vulnerable to
infection. (57)
The situation appears to be similar when looking at sport employment in the EU58.
According to Eurostat, in 2019 employment in sport represented 0.69% of total
employment in the EU. After steady growth over the previous 20 years, in 2020 the
(53) Igor Tak et al., “Sports Participation and Injury Related to the COVID-19 Pandemic: Will Data Support
Observations from Clinicians and Athletes?”, BMJ Open Sport & Exercise Medicine 8, No. 1 (2022): e001317;
Dhruv R. Seshadri et al., “Case Report: Return to Sport Following the COVID-19 Lockdown and its Impact on
Injury Rates in the German Soccer League”, Frontiers in Sports and Active Living 3, article 604226 (February
2021); FIFPRO, 2021 FIFPRO Player Workload Monitoring: Annual Workload Report – Women’s Football and
2022 Player & High Performance Coach Surveys.
(54) Bruinvels G, Lewis NA, Blagrove RC, Scott D, Simpson RJ, Baggish AL, Rogers JP, Ackerman KE and Pedlar
CR (2021) COVID-19–Considerations for the Female Athlete. Front. Sports Act. Living 3:606799. doi:
10.3389/fspor.2021.606799
(55) FIFPRO survey on impact of Covid-19 on women footballers - FIFPRO World Players' Union -
https://fifpro.org/en/supporting-players/health-and-performance/covid-19/global-survey-shows-ongoing-impact-
of-covid-19-pandemic-on-women-footballers/
(56) EU Athletes, Research on the long-term impact of the COVID-19 Pandemic on Players and their Player
Associations, EUA REPORT_FINAL_2 (euathletes.org)
(57) The impact of COVID-19 on sport for athletes with disabilities - Play by the Rules - Making Sport inclusive, safe
and fair
(58) The terms sport employment includes people having a sport specific occupation (ISCO 342) in any type of
organisation and people having a non-sport specific occupation within an organisation whose main business is
the provision of sport (NACE 93.1) (e.g., in administrative positions).
21
number of people employed in sport fell by 4.3%, bringing the share of total employment
down to 0.68%.59 This decrease was not even, neither in terms of geographical
distribution (Finland +5.6%, Croatia -46%), nor in terms of categories, as the most
impacted were youth sport workers (-2.6%), female sport workers (-8.4%), and sport
workers with no or low qualifications (-18.3%). The greatest impact was on young female
workers. Self-employed workers in the sport sector, more vulnerable to income losses
and with lower social protection, saw an increase of 6.7%, an acceleration of a trend seen
in the period 2011-2019.60
The reasons for this increase in self-employment and the negative impacts on youth and
female workers and the less qualified are not yet clear and may be as a result of a number
of complex factors which may differ on a country-by-country basis. They may prove to
be significant longer-term impacts of the pandemic and require further exploration once
the full statistics for more recent years are available.
According to Eurostat, in 2021, the sector showed a good capacity for recovery and the
sport workforce went almost back to pre-pandemic numbers.61 However, further analysis
of the Eurostat figures by the European Observatoire of Sport and Employment (EOSE)
may suggest a less optimistic picture. The apparent recovery was mainly due to large
increases in nine Member States (Slovenia, France, Cyprus, Hungary, Lithuania, Greece,
Belgium, Finland and Spain). The very large increase in France (+ 93 700 or 54% from
2019 to 2020) should be further analysed and taken into consideration with scrutiny as it
is mainly explained by Eurostat as a definitional change, rather than a real increase. The
majority of EU Member States (18 of 27) were still below 2019 levels in terms of sport
total employment, including countries with large populations, like Italy or Germany, and
those with traditionally high percentages of sport employees, like Sweden or Denmark.62
Coaches, in particular, had to show great resilience and proactivity to adapt to the new
circumstances. Many turned to online coaching and online learning, which allows for
more flexibility but also removes the more practical aspects of coach education.63 The
COVID-19 pandemic also accentuated the differences in the recognition of coaching as a
profession and, consequently, of their skills and competences among Member States. As
highlighted in the “Guidelines regarding the minimum requirements in skills and
(59) Employment in sport - Statistics Explained (europa.eu)
(60) EOSE presentation at 4th XG meeting
(61) Employment in sport - Statistics Explained (europa.eu)
(62) Presentation from EOSE 7th meeting of the XG
(63) 4th XG meeting presentations
22
competences for coaches”, as of February 2020 the coaching profession was regulated in
just over 50% of EU Member States.64
Sport organisations in Europe heavily rely on the contributions of volunteers, not only for
punctual support in events and competitions, but also as coaches and for the day-to-day
running of sport organisations and sport activities.65 The restrictions linked to the
pandemic also resulted in a loss of volunteers, who were unable to continue engagement
with their organisations. As part of their V4V project funded by the European
Commission under Erasmus+ Sport66, the European Observatoire of Sport and
Employment (EOSE) launched an EU-wide survey on volunteering in the sport sector in
the period May-July 2022 which gathered a total of 2,226 responses from sport
organisations. This survey covered many aspects of sport volunteering such as
recruitment, management, retention and training but also included some questions
relevant to the impact of the pandemic. Most respondents were from sport clubs and sport
federations from 115 different Member States. 54.1% of those responding to these
questions reported that levels of volunteering remained the same, but 36.4% reported a
decrease in the number of volunteers compared to before the start of the pandemic. When
they were asked to predict levels of volunteering in their organisation when the direct
impact of the pandemic was over, only 35.8% thought that levels would return to pre-
COVID levels. Nearly one quarter (24.3%) felt levels would not return to those in the pre-
COVID period and 12.8% thought levels may actually increase. The remainder replied
that they did not know. When asked about barriers which deter people from sport
volunteering, 30% selected ‘COVID pandemic’ and 36.9% selected ‘COVID pandemic’
as a difficulty which sport organisations face when trying to attract/recruit sport
volunteers. The longer-term impact of the pandemic on sport volunteering should be
further explored because volunteers are so crucial to the sector.
General population
The various restrictions taken during the first year of the pandemic disrupted many
aspects of daily life, including the physical activity levels of the population. The length
of lockdowns and the severity of restrictions varied greatly among countries resulting in
uneven opportunities for the population to be physically active.
The closure of sporting facilities generated a decrease in physical activity levels, loss of
physical fitness and increased sedentarism, making the WHO recommendations of 150
minutes of moderate-intensity or 75 minutes of vigorous-intensity physical activity per
week hard to reach. Despite the well-known role of sport in supporting health, preventing
(64) European Commission, Directorate-General for Education, Youth, Sport and Culture, Čujko, A., Jeričević, M.,
Lara-Bercial, S.et al., Guidelines regarding the minimum requirements in skills and competences for coaches – ,
Publications Office, 2020, https://data.europa.eu/doi/10.2766/69405
(65) Ibid.
(66) https://www.v4v-sport.eu
23
diseases, and fostering mental health, the Special Eurobarometer 525 shows that physical
activity level slightly declined during the pandemic, with 52% of respondents either
reducing the frequency of sport or physical activity (34%) or stopping it completely
(18%). (67)
A survey from 2022 conducted by EuropeActive showed similar results in the fitness
behaviour of the consumers. In 14 out of 19 participating countries, the share of
respondents who reduced their exercise routines was higher compared to those who
increased their fitness frequency. About two thirds of the fitness club users included in
the study were not able to continue their training routines due to the restrictions placed
on fitness centres, impacting negatively their physical and mental health and well-
being. (68)
Conscious of the decline in physical activity levels, several Member States developed
campaigns, including on public media and broadcasting channels, to encourage citizens
to maintain an active lifestyle despite the restrictions and the closure of sport facilities
and gyms. The European Commission, following the successful example of Member
States, launched the #BeActiveAtHome concept, giving people ideas and resources to
exercise and remain physically active from home. Home workouts played an important
role in both mental and physical health, which have been put to a test, especially during
lockdowns. National Coordinating Bodies and partners of the European Week of Sport,
as well as ambassadors and influencers, also played a key role in the campaign, as the
inspiring voices spreading the message around mental and physical well-being.
Data from the Special Eurobarometer 525 also show a shift in the setting in which people
are physically active. Respondent indicated exercising mostly outdoors (47%, +7
compared to 2017) or at home (37%, +5), with few regional differences among Member
States. The share of respondents engaging in sport and physical activity outdoors or at
home has gained ground in 20 Member States. While this cannot be fully and solely
attributed to the pandemic, the restrictions in place on indoor sport facilities and sport
clubs are likely to have resulted in an increased popularity of more informal sport and
physical activity settings. Outdoor individual physical activity was allowed in most
countries even during lockdowns, and online training sessions and fitness training
platforms started to become increasingly popular, from elite athletes to fitness centres.
However, when it comes to online tools, the access to such resources is far from universal
and the risk of amplifying the digital divide needs to be taken into consideration. (69)
(67) Special Eurobarometer 525 - Sport and Physical Activity, September 2022, Sport and physical activity -
September 2022 - - Eurobarometer survey (europa.eu)
(68) EuropeActive European Health and Fitness Market Report 2022, Bestsellers - EuropeActive - EuropeActive
(blackboxpublishers.com)
(69) United Nations Department of Economic and Social Affairs, Policy Brief 73: The Impact of COVID-19 on sport,
physical activity and well-being and its effects on social development, The impact of COVID-19 on sport, physical
activity (un.org)
24
In the middle of the COVID-19 pandemic, the role of sport in preventing disease and
supporting health has become increasingly important. (70) Policies to increase the physical
activity level can translate into healthier populations, less vulnerable and more resilient
in the face of potential future pandemics. Numerous scientific reviews have highlighted
the positive impact of physical activity on immune functions, as well as immune response
to vaccination and to “several disease states including cancer, HIV, cardiovascular
disease, diabetes, cognitive impairment and obesity” (71). The presence of comorbidities,
known to be preventable thanks to an active and healthy lifestyle, has often been a
determining factor in one’s immune response to an infection by COVID-19. Moreover, it
can extend life expectancy, strengthen mental health and well-being, curbing the rising
prevalence of anxiety and depression, and contribute to reducing healthcare expenditure,
saving EU Member States up to EUR 8 billion per year. (72)
However, as already mentioned in this report, physical health was not the only concerning
aspect of the impact of the COVID-19 pandemic. The restrictions severely affected the
mental health and wellbeing of the population, and particularly of young people,
aggravating an already alarming situation. Before the COVID-19 pandemic, 1 in 6
Europeans suffered from mental health issues (84 million people), with significant
regional, gender, social and age differences. (73) The HealthyLifestyle4All Youth Ideas
Labs, in the proposals presented in September 2022, highlighted mental health as one of
the priorities to be addressed in the future and how sport and physical activity can be
instrumental in preserving mental wellbeing. (74) In June 2023, the European Commission
announced a new pillar to the European Health Union, promoting a new comprehensive
approach to mental health. This new pillar includes 20 flagship initiatives and funding
from different financial instruments and focuses on three principles: prevention,
healthcare and treatment, and reintegration after recovery. (75)
(70) The Impact of the Covid Crisis on the Sport Industry - Marbella International University Centre (miuc.org)
(71) EuropeActive, The positive impact of physical activity and exercise on immune function;
The_positive_impact_of_physical_activity_and_exercise_Aug2020_web.pdf (europeactive.eu)
(72) OECD/WHO (2023), Step Up! Tackling the Burden of Insufficient Physical Activity in Europe, OECD
Publishing, Paris, https://doi.org/10.1787/500a9601-en.
(73) A comprehensive approach to mental health (europa.eu)
(74) HealthyLifeStyle4All: Youth Ideas Labs unveil their proposals | Sport (europa.eu)
(75) A comprehensive approach to mental health (europa.eu)
25
4. Looking ahead
General future orientations

The COVID-19 pandemic was an unprecedented phenomenon that posed major
challenges to Member States and to the sport movement. It took some time to adapt and
to find the right measures to simultaneously limit the spread of the virus and minimise
the impact on the sport sector. Going forward, combining the lessons learnt from the
pandemic with the long-term, underlying challenges, such as good governance or
sustainability, will be essential to ensure a full recovery of the sport sector.
Networks and information sharing

Among the lessons learnt, experts particularly valued the importance of sharing
experience and good practices, the existence of and access to a network of peers to
exchange on concrete approaches and discuss on different open questions. As highlighted
in the previous section, the Working Party on Sport did partially serve this purpose,
especially in the early stages of the pandemic. Having an informal network in place to be
convened in case of need would allow easier exchanges of information and good
practices. Digital tools represent the ideal solution for this kind of network, allowing
immediate access to contacts and information,
The importance and availability of reliable data has also proven to be an important
resource to use when taking decisions during an emergency. Whether about the
epidemiological situation of each country, or about the sport organisations, staff and
athletes as in the Estonian example in the previous section, having a database of up-to-
date information constitutes solid ground for evidence-based decision making.
Risk preparedness
Throughout this time, it became apparent that crises are unpredictable by default and often
highlight the structural weaknesses of organisations, building on the effects of previous
crises. In 2022, the war in Ukraine and the rise in energy prices and inflation exacerbated
the consequences of the COVID-19 pandemic on the sport sector and added new issues.
Addressing several crises at once, in addition to long-term and structural challenges
requires a holistic and strategic approach to crisis management.
The COVID-19 pandemic showed the importance of building resilience and having risk
management and prevention plans in place, identifying the key resources and contacts in
case of crisis situations. Reflecting on and anticipating potential risks can minimise the
disruptions to business continuity and ensure the rights and welfare of athletes and all
people involved are kept into consideration while navigating crisis situations. This
includes medical protocols consistent for all leagues and between men’s and women’s
sports, particularly for return to play protocols, as well as insurance policies to mitigate
the losses in case of cancelled events.
26
Health and physical activity

The decline in physical activity levels was accentuated by the pandemic and the closure
of sport facilities. An active and healthy lifestyle, however, has been proven to be useful
in preventing the most severe consequences of COVID-19, as well as of several non-
communicable diseases. Promoting the benefits of sport and physical activity and
highlighting the positive effects of physical activity on immune response could be an
investment in public health. It can also help boost the population preparedness for future
pandemic events, both through enhanced immune response and reduction in the
prevalence of comorbidities (e.g. heart disease, diabetes). (76)
In this optic, it could have been beneficial if sport and fitness facilities had remained open
during the pandemic whilst adapting fitness facility operation to create safe spaces for
exercise including mask wearing, increased sanitisation and altered equipment layout. (77)
A THiNKactive study using data from fitness facilities across Europe demonstrated 0.88
positive COVID-19 cases per 100,000 visits to fitness clubs and leisure centres. Whilst
self-reported, this suggests the fitness industry was successful in creating safe, hygienic
spaces which minimise disease transition risk. (78)
The increased digitalisation and use of technology in the sport sector are also important
tools for both monitoring health and fitness levels (through wearables, for example) as
well as offering more flexible options for physical activity. Expanding the digital
offerings of sport and fitness centres has become a promising strategy to motivate more
people to start exercising and adopt a healthier lifestyle. On the downside, when online
training content is not offered by a club or by a fitness centre, but is simply on social
media platforms, it becomes difficult to verify the qualifications of the instructors or to
ensure that the right technique is used when exercising. This could lead to increasing the
risk of improper exercise and, in the long run, of injuries.
The pandemic led to boosting EU commitment to foster public health, increasing funding
opportunities. For example the Erasmus+ programme has a total budget of EUR 26 billion
for the period 2021-2027 (higher compared to previous funding periods) with 1.9%
(76) Economic-Social-Impact_050620.pdf (europeactive.eu)
(77) Evidence on mask wearing: Gontjes KJ, Gibson KE, Lansing B, Cassone M, Mody L. Contamination of common
area and rehabilitation gym environment with multidrug-resistant organisms. J Am Geriatr Soc. 2020;68:478-485.
Blocken, B., Malizia, F., Druenen, T.V., & Marchal, T. (2020). Towards aerodynamically equivalent COVID-19
1.5 m social distancing for walking and running. Pre-print at Semantic Scholar.
https://www.semanticscholar.org/paper/Towardsaerodynamically-equivalent-COVID-19-1.5-m-Blocken-
Malizia/bea48447764cd4ce84ac9d0e9fa2201a40160fc5; Epstein D, Korytny A, Isenberg Y, et al. Return to
training in the COVID-19 era: The physiological effects of face masks during exercise. Scand. J. Med. Sci. Sports.
2020;00:1–6. https://doi.org/10.1111/sms.13832
(78) THiNKactive study
27
allocated for sport-related activities. (79) This includes the HealthyLifestyle4All initiative
aiming to link sport and active lifestyles with health, food and other policies. (80)
Good governance and athletes’ rights

Athletes are at the core of sport, and they were severely affected by the pandemic.
Athletes’ welfare and rights, in a larger good governance perspective, should be at the
centre of decision-making and of the running of sport organisations. One of the main
causes of concern during the COVID-19 pandemic has been the precarity of the
employment situation of athletes, their access to social protection and recognition of their
working status, their right to health and safety. Member States and sport organisations
should work on protecting, respecting, and promoting human rights in sport, and
particularly athletes’ social rights as workers. In this aspect particularly, ensuring equal
opportunities regardless of gender is paramount to achieve equality in the field of sport.
Athletes’/ players’ associations and umbrella organisations have played an instrumental
role during the pandemic, providing information and support to athletes in a wide range
of issues, including mental health and well-being. Athletes themselves have become more
and more vocal in recent years about how these immaterial needs, although more difficult
to identify and address, require support and attention as well. Acknowledging sport and
its added value to society, including the role of athletes’/ players’ associations, and
inviting sport stakeholders to the discussion table would ensure decisions affecting sport
respect all involved stakeholders.
Sustainability and environment

One of the long-term challenges the sport sector has been facing in the past years are
environmental sustainability and the link between sport and the climate crisis.
The sport sector has become the centre of attention in the last two decades especially for
the environmental impact of major events, such as the Olympic Games or the World Cup,
for their use of resources, waste management and carbon emissions. The rise in energy
prices in 2022 has also highlighted the energy inefficiency of sport facilities in EU
Member States, which are often quite old and in need of renovation. The ownership of
the facilities also came into play, as often the sport clubs do not own the facilities they
operate in themselves but rather the municipalities do. When having to avoid high costs,
closing the venues is often the fastest and easiest solution.
However, the relationship between sport, the environment, and climate change is
multifaceted. While sport contributes to emissions, it is also profoundly impacted by the
repercussions of climate change. Outdoor sports, especially winter sports, find themselves
grappling with the challenges posed by rising temperatures, including those of water
bodies, and diminishing or unpredictable snow conditions year after year.
(79) https://erasmus-plus.ec.europa.eu/sites/default/files/2023-04/ErasmusplusProgramme-Guide2023-v3_en.pdf
(80) https://sport.ec.europa.eu/initiatives/healthylifestyle4all
28
In contemplating strategies to ‘build back better’ from the social, political, and economic
fallout of the COVID-19 pandemic, it is pivotal to integrate environmental sustainability
as a core component of the recovery process. The bounce back from such a crisis presents
a unique opportunity to forge new paths and establish greener habits. The pandemic has
underscored the interconnectedness of global systems, exemplifying how a health crisis
can exacerbate environmental vulnerabilities. Conversely, it has illuminated how
addressing environmental sustainability can bolster resilience against future pandemics
and other crises, thereby fostering a more harmonious coexistence between sport and the
environment.
In line with the above, a recent Commission Expert Group report on “Green Sport: A
common EU framework” (81) provides focused guidance and recommendations to create
a pathway for European sport to meet the goals of the Green Deal. It describes current
good practices relating to environmental sustainability in the European sport sector and
provides guidance to policy makers and to the sport movement on four focus areas:
“innovative cross-sectoral solutions”, “sustainable sport events”, “sustainable sport
infrastructures” and “capacity building, education, and promotion of sustainable sport
practices”. The report also provides more detailed analysis on the challenges and
opportunities for sport to move towards a greener path and discusses the role of various
stakeholders to address environmental issues in and through sport. It also puts forward
practical guidance, resources and case studies for sport practitioners addressing important
topics such as sustainable sport infrastructure or sustainable sport events.
Recommendations
European Commission
• Enhance Coordination Among Member States - amplify the coordination
among Member States to encourage swifter decision-making and harmonization,
thereby reducing significant disparities between countries. This includes aligning
sanitary and travel measures, establishing common criteria for risk categorisation,
setting clear objectives and targets, and harmonising contact tracing systems and
apps.
• Disseminate Information on Funding Options - communicate information
regarding existing funding options, both sport-specific and general, accompanied
by regularly updated guidance and support.
• Encourage Standardised Data and Evidence Collection - advocate for the

collection of data and evidence at both Member States and EU levels to inform
policy decisions and measures. Propose a standardised format for data collection
across Member States to ensure comparability and ease of analysis.
• Collaborate on Enhancing Grassroots Sports Support Systems - Consider

working together to devise strategies for Member States to facilitate accessible
and safe environments for grassroots sports. This collaboration could also address
guidance on decision-making processes that blend efficiency with rights to
(81) https://sport.ec.europa.eu/policies/documents
29
representation and dialogue. Information sharing and awareness-raising of

necessary measures are other valuable avenues for collaboration.
• Explore options for establishing a European Crisis Management

Network/Group that can be convened on an as-needed basis - the group can
be prepared in a way to be rapidly convened in case of emergencies, to facilitate
learning among sports stakeholders and support the development and
dissemination of information across all involved parties.
National public authorities

• Prioritise Sporting Activities While Ensuring Safety (during possible future
lockdowns) - Explore the feasibility of allowing sports and physical activities to
continue during possible future lockdowns, focusing on specific interventions and
precautions that enable public physical and mental well-being whilst respecting
the necessary health precautions.
• Collect and Disseminate Data and Information - actively gather and share
pertinent data and information to underpin policy decisions and measures,
ensuring they are well-grounded and effective.
• Raise Awareness of the Importance of Sport - enhance awareness at the

political level regarding the significant contributions of sports to the economy,
public health, green agenda, and other sectors, including tourism, retail,
infrastructure, and education.
• Address Precarious Employment in the Sports Sector - tackle the issues related
to precarious work among athletes and other sports sector workers to reduce their
vulnerability, especially during crises.
• Promote a Wellbeing Economy - foster a focus on promoting a wellbeing and

healthy lifestyle economy to enhance population preparedness for future
pandemic events.
• Maintain Access to Sport Facilities and Fitness Spaces - advocate for the
importance of maintaining access to sport facilities and fitness spaces during crisis
periods, where feasible.
• Develop Clear Guidelines for Reopening - formulate clear and comprehensive

guidelines to facilitate the safe reopening of sports and physical activity sectors,
including events, clubs, and fitness facilities.
• Recognise and Support the Role of Volunteers - acknowledge the essential

contribution of volunteers in sports clubs and provide them with the necessary
logistical, financial, and training support.
• Provide Guidance on Organisational Resilience and Risk Management - offer

guidance and share best practices on enhancing organisational resilience, risk
management, business continuity plans, and optimising responses to change.
• Allocate Specific Funding to Grassroots Sport – promote the safeguarding of a

percentage share of funding specifically for grassroots sport to ensure sustained
30
development and preparedness for crisis response including pandemics. In

addition, facilitate access to resources and expertise for grassroots sport.
International and national sport movement

• Gather and Share Data During Crises - in times of crisis, gathering and sharing
pertinent data and evidence are essential to ground policy decisions and
implement well-informed measures.
• Cooperate with Players’ and Athletes’ Associations - collaborate closely with
players’ and athletes’ associations, acknowledging their vital role in representing
and supporting athletes. Optimise the use of resources when developing and
implementing athlete-related measures including preparation for crisis response
such as pandemics.
• Acknowledge and Support Volunteers - recognise the indispensable role of

volunteers in clubs by providing them with comprehensive logistical, financial,
and training support in order to be better prepared for crisis response.
• Offer Guidance on Organisational Resilience and Risk Management - provide

guidance and best practices on enhancing organisational resilience, managing
risk, and ensuring business continuity, focusing on optimising responses to change
through knowledge, capacity-building, and network development.
• Diversify and Explore Funding Sources - maintain sufficient financial reserves

and, when possible, diversify and explore new funding sources, including forming
partnerships with the private sector.
• Facilitate Access to Resources and Expertise for Grassroots Sport - ensure

easy access to resources and support in terms of expertise for grassroots sport,
incorporating capacity-building actions.
• Support Innovation and Adaptation to Change - in managing change during

volatile situations, explore and prepare innovative practices to assist organisations
in case of future crises. Accompany athletes, sport staff, and clubs in adapting to
change, encompassing both organisational modifications and the reassessment of
educational practices and protocols for athletes.
Sport clubs and fitness sector

• Stakeholder Management and Networking for Small Clubs - anticipate and
create strategies on how to manage stakeholder relations in small clubs and
continue to cater to their needs. Additionally, seeking partnerships and networks
for peer support can be beneficial.
• Financial Planning and Diversification of Funding - ensure a sufficient
financial reserve and, when feasible, diversify funding sources and explore new
avenues, such as partnerships with the private sector.
• Optimisation of Digital Transition - maximise the digital transition and develop

digital options as an integral parts of the sport system whilst enhancing
accessibility and adaptability.
31
5. Annex: Good practice examples

Athlete and Player Associations
Questions Replies
Player and athlete associations are independent, democratic

organisations representing and defending the rights and interests of
athletes. Player associations often cooperate and create federations of
such organisations, either at the national level (for example FNASS), at
the European level (for example EU Athletes), global level (for example
Objectives World Players Associations) or sport-specific ones (for example
International Rugby Players).
During the Covid-19 pandemic, player association movement cooperated
What were the aims of
closely together in order to share knowledge, expert advice, look for
this measure/project? solutions in order to offer best possible support for their member athletes.
Which specific issue(s) Examples include:
did it seek to address? • Sharing of knowledge, ideas and practical solutions to the crisis between
athlete associations from different sports and countries
• Addressing new challenges and demands related to the work of athlete
associations during Covid-19 pandemic
• Improving and adjusting the support that the athlete associations offer
to the members
Stakeholders involved
Please briefly explain • Player and athlete associations from different sports and countries
which stakeholders • Experts from different fields as relevant
were involved in
developing this good
practice example.
Results
• Better support for athletes
Please briefly explain • Strengthening of the network of player associations
how the • Better recognition of the role of athlete associations as source of support
measure/project was for athletes
received by the • Informing the relevant measures and policies with research and
publications
stakeholders and any
results/benefits it had.
Challenges
• Limited resources and lack of financial support for the athlete
associations’ work
Did you encounter any • Need for greater recognition and support from sport and government
difficulties in the stakeholders
implementation of this • Not properly involving athletes and their associations in decision making
processes related to the pandemic
measure/project?
32
Questions Replies
Lessons learnt
• Importance of working together
Which were the main • Value of sharing ideas and solutions used in different countries or
lessons learnt in the sectors
planning and • Need for better understanding of the added value of player associations
within the sport sector
implementation of this
measure/project?
Some of the resources include:
Sources • https://euathletes.org/wp-content/uploads/2021/05/EUA-Covid19-
21.10.2020.pdf
• https://euathletes.org/wp-content/uploads/2021/04/Preliminary-
Please add any relevant Research-on-the-impact-of-the-COVID-19-Pandemic-on-Players-and-
webpages, videos, their-Player-Associations.pdf
social media, photos or • https://euathletes.org/wp-content/uploads/2022/06/EUA-
documents. REPORT_FINAL_0622.pdf
• https://uniglobalunion.org/news_media/uploads/2020/04/covid-
19_guiding_principles_policy.pdf
Austria
Questions Replies
Since the Austrian COVID-19 Act and the ordinances of the Federal Ministry
Objectives of Social Affairs, Health, Care and Consumer Protection on COVID-19 also
had a significant impact on the areas falling within the responsibility of the
Federal Ministry for Arts, Culture, the Civil Service and Sport, at a very early
What were the aims of stage of the COVID-19 pandemic in Austria, a hotline was established for
this measure/project? the area of arts and culture as well as for the area of sport, in order to answer
questions in connection with the COVID-19 pandemic in those respective
Which specific areas. The so-called 'COVID-19 Information Service for the Sport Sector'
issue(s) did it seek to ('Sport Hotline') officially started operating on 2 April 2020. It was available
address? between 09.00 and 15.00 from Monday to Friday almost continuously and
lasted until the end of May 2023.
On 25 March 2020, the Director General of the Federal Ministry responsible
Please briefly explain for Sport commissioned Department II/A/3 to plan and set up the 'COVID-
which stakeholders 19 Information Service for the Sport Sector'. This respective department in
were involved in the Federal Ministry for Sport continuously operated the Information Service
for the Sport Sector.
practice example.
33
Questions Replies
During the operating period from 2 April 2020 to 28 May 2023, the service
staff handled a total of 13,985 enquiries. 9,389 enquiries (67%) were
received by telephone and 4,596 enquiries (33%) by e-mail. 40% of the
enquiries were received from associations or federations, 39% from
individuals, 18% from the commercial sector and 2% from public authorities
Results or other public bodies.
A comparison shows that the distribution of the enquiries that could be
assigned to a certain federal state based on the available data from the
Please briefly explain entire period of operation correlates closely with the population living in that
how the state.
measure/project was
Among the most requested topics, the category 'fitness centres/indoor' with
received by the 2,642 requests and the category 'outdoor' with 1,724 requests stand out. On
stakeholders and any the other hand 1,641 enquiries could only be assigned to the category
results/benefits it had. 'General'. 1,312 enquiries (9%) were related to events and, in particular,
whether they could be held at all or under which circumstances. 524
enquiries were related to the thematic field 'financial' (4%) - mainly
concerning what financial support programmes were available for sports
clubs but also for commercial enterprises (sport hotels, fitness centres, etc.)
at the respective time.
Phases with drastically rapidly increasing numbers of cases alternated with
Challenges periods in which the numbers of positive cases also noticeably decreased
again. In addition, different mutations of the virus emerged, which affected
the situation partly with varying intensity. This constant change regarding
Did you encounter any COVID-19 can be exemplified by the large number of amendments to the
difficulties in the 'Ordinance of the Federal Minister of Social Affairs, Health, Care and
implementation of this Consumer Protection on Measures to combat the spread of COVID-19, to
measure/project? which the hotline team had to practically adapt to ‘overnight’ also with regard
to the information requested as soon as a new amendment came into force.
During the operation period, the Sport Hotline was also contacted by clubs
and individuals that basically had no closer or no connection to the sports
Lessons learnt sector (e.g. music clubs, etc.). As a reason for their request to the sport
hotline, they stated (if they had not mistakenly ‘called’ the sport hotline) that
the hotline had been recommended to them by third parties as a 'competent
Which were the main point of contact', where the callers and their concerns were 'visibly taken
lessons learnt in the care of'. Those 'recommendations' were a clear sign that the efforts of the
planning and hotline staff were very positively recognised by the enquirers and that these
implementation of this positive experiences were also passed on to third parties. In summary, it
measure/project? can be said that the 'COVID-19 Information Service for the Sport Sector'
was a valuable, specialised contact point for enquirers and their individual
needs in this extremely challenging situation.
Sources
Long version (in German):
Please add any https://www.bmkoes.gv.at/sport/publikationen.html
relevant webpages,
videos, social media,
photos or documents.
34
Croatian Olympic Committee
Questions Replies
Objectives
With health measures in place, many athletes and sports associations,
both professional and amateur, were unable to continue their activities.
What were the aims of Only by creating a coherent support mechanism for the sports sector it
this measure/project? was possible to reduce the damage caused by the COVID-19 pandemic.
In this way the sport community was able to resume activities as soon as
Which specific issue(s) the virus was under control.
did it seek to address?
• Athletes
• Coaches and sport staff
• Clubs
Stakeholders involved • Non-profit local sport organisations
• National sport federations
All of the mentioned stakeholders encountered difficulties: either a
Please briefly explain complete stop in activities or unexpected rising of costs due to the COVID-
which stakeholders 19 pandemic and safety measures in place. Therefore, depending on the
were involved in situation, NOC Croatia was providing financial support either by ensuring
developing this good uninterrupted monthly income namely for athletes/coaches/sport staff that
practice example. could not perform any activity and could not ensure financial stability in
that period or to the clubs, non-profit local sport organisations and national
sport federations by allowing them flexibility according to the initially
presented budget (e.g. for COVID-19 tests, masks, disinfectants)
Results
Although there were restrictions due to the situation caused by the
COVID-19 pandemic, as many as 65 National Federations (NFs) realised
Please briefly explain more than 90% of their regular program. Of the permitted repurposing of
how the funds planned for preparations and competitions, 49 NFs used the
measure/project was possibility of purchasing personal sports equipment, while 23 NFs
received by the repurposed funds for vitaminisation, and 19 for physical therapy / sports
stakeholders and any diagnostics, or 17 for professional work.
Challenges
The funding was addressing the concern about the possible lasting
consequences on the economic potential and employment in sports, as
Did you encounter any well as on public health. At the same time, financial support was not
difficulties in the supposed to be limited to popular sports, because recovery measures are
implementation of this of utmost importance for smaller, non-profit sports associations.
measure/project?
Lessons learnt
Which were the main Close cooperation with the Croatian government and relevant Ministries
lessons learnt in the (Tourism & Sport, Health) was crucial in order to ensure synergies of the
planning and relevant institutions and efficient measure implementation.
measure/project?
Sources
Activity and financial report of NOC Croatia 2021 (public document in
Croatian, available on the website of NOC Croatia)
Please add any relevant
webpages, videos, https://dev.hoo.hr/images/dokumenti/izvjesca-i-
social media, photos or nalazi/Programsko_i_financijsko_izvješće_HOO-a_za_2021._godinu.pdf
documents.
35
Czech Republic
Questions Replies - COVID I Replies - COVID II
The purpose of the Call was to

support sports businesses that
have been restricted in business
Aid area A - operation of sports activities due to the negative
facilities effects of measures taken under
The aid is intended for a sports the Crisis Act, emergency and
organisation operating a sports protective measures of the
facility which is affected by the Ministry of Health and regulations
negative effects of the declaration of health stations, where sports,
of a state of emergency and dance and other gatherings and
emergency measures consisting events have been banned with
in the necessity to close or restrict more than 100 people in
a sports facility, while the attendance at the same time. The
operation of the operation of the support was prepared in
sports facility, fixed costs are cooperation between the NSA
associated with the operation of and the Ministry of Industry and
the sports facility, which the Trade.
operator must bear regardless of
the fact that the sports facility is
closed in whole or in part. Support area A was aimed at
supporting business entities
participating in professional
Aid area B - Organisation of championship sports
sporting events competitions.
Objectives
The aid is intended for a sports
organisation organising or co- Support area B was aimed at
What were the aims of this organising a sports event, which supporting business entities
is affected by the negative effects organising or co-organising
measure/project?
of the state of emergency and sporting events meeting the
Which specific issue(s) did emergency measures consisting following conditions:
it seek to address? in the need to cancel, postpone or
restrict a sporting event, where (a) it is a one-off sporting event
the event has been necessary aimed at achieving sporting
costs have been incurred in vain performance in competitions or
by the sports organisation which recreational, taking place on the
cannot be used for the territory of the Czech Republic,
postponed, restricted or other officially announced in the date
event in the future. list on 2020 and intended for
athletes from more than two
sports clubs or for the general
Aid area C - Hire of sports public, which may or may not
facilities have international representation;
The aid is intended for a sports b) it is at least the second (2nd)
organisation that has had to pay edition of the sporting event;
rent for the use of a sports facility (c) it is a cancelled sporting event
for a period of time when it was whose scheduled date fell within
not possible due to the covid the period from 12 March
restrictions or of a state of
emergency and emergency 2020 to 31 July 2020;
measures, the sports facility in (d) the minimum total eligible
question may be used in whole or costs of the sporting event(s)
in part for sporting activities.
claimed in the application shall be
at least CZK 1 000 000
(approximately EUR 41 700).
36
Questions Replies - COVID I Replies - COVID II
Sorts organisations which are

Please briefly explain legal persons established for Sports businesses
which stakeholders were purposes other than profit
involved in developing this
good practice example.
Results
The grant funds helped to bridge
The grant funds helped to bridge
Please briefly explain how the period when no sports
the period when no sports
the measure/project was matches or events could be
activities were allowed to take
received by the organized due to the decision of
place during hard lockdowns.
the state apparatus.
The challenge was time, as the
Challenges response needed to be fast,
targeted and flexible. Using IT
The challenge was time, as the
tools, proceeding efficiently and
response needed to be fast,
Did you encounter any as simply as possible. Also
targeted and flexible. Using IT
difficulties in the challenging was the fact that NSA
tools, proceeding efficiently and
couldn’t provide financial help
implementation of this as simply as possible.
directly to the business entities
measure/project? and had to cooperate with other
relevant ministries.
Lessons learnt Consequently, it was necessary
for us to streamline the subsidy
procedure and use electronic Consequently, it was necessary
Which were the main tools. It was also necessary to for us to streamline the subsidy
lessons learnt in the ensure greater awareness and procedure and use electronic
planning and responsibility of sports entities tools.
implementation of this when planning major sporting
measure/project? events or league competitions.
Sources
Please add any relevant N/A N/A

webpages, videos, social
media, photos or
documents.
37
Danish Handball Players’ Association
Questions Replies
The main goal for HSF (Håndbold Spiller Foreningen - Danish Handball
Players’ Association) and 4player (Danish organisation providing second
career guidance and support to both current and former elite athletes)
during this period was to maintain close member contact via calls to
individual members in Denmark and abroad, calls to club representatives
to inquire about needs in their teams, and in addition, hold online club
visits.
Topics club visit HSF

- Players’ overall feeling at the time (e.g., How are you doing? Is there
anything that you are unsure about?)
- New employment in the association
- Updated match-fixing rules
- Counselling services:
- Insurance
Objectives
- Occupational injury cases
- Holiday pay.
What were the aims of
this measure/project?
Topics club visit 4player
Which specific issue(s)
- Education
- Job preparation and CV
- Possibilities for help with mental health.
Online education
Under the auspices of 4player, together with online education partners
(https://4-player.dk/uddannelse-og-udvändelsen/online-uddannelse/)
smaller and easily accessible online education courses were established.
The members were also invited to online lectures on, for instance, sleep
and stress management.
Moreover, follow up emails were sent to club representatives, who, in turn,

were supposed to share it on Facebook and WhatsApp groups or similar.
These emails included links to HSF and 4player resources as well as
contact details of relevant persons if players had questions regarding any
topics mentioned above or others.
HSF arranged it using their own resources with partners as needed.

Please briefly explain
which stakeholders
In addition, HSF was in contact with various clubs and the league
were involved in association to provide input for necessary measures in corona protocols.
practice example.
Results
HSF was in very close contact with the players, increased the number of
Please briefly explain members during the period and, for example, got many to start training.
how the
measure/project was
In addition, many members made use of the mental health department,
received by the which had started 2 months before COVID-19 broke out.
38
Questions Replies
Challenges
Due to the limited resources, it was difficult to reach all the members,
physical club visits were impossible to implement, and it was challenging
Did you encounter any to recruit new members. Despite the challenges, almost all members were
difficulties in the reached, physical visits were replaced by virtual ones, and even new
implementation of this members were recruited.
measure/project?
Lessons learnt
Which were the main Close contact with the players is essential in order to provide them with
lessons learnt in the the best support possible.
planning and
measure/project?
Sources
https://www.haandboldspiller.dk/english111
webpages, videos, https://4-player.dk/english/
social media, photos or
documents.
Estonia (1 of 2)
Questions Replies
Objectives To support sports organisations to pay the salaries of the coaches working
with children and youth.
What were the aims of The reasoning behind it was that the income of the sports organisation
declined because they could not offer their services and therefore ask for
the monthly fees. As the state had a general financial support too, this
Which specific issue(s) support measure was to be used hand in hand with the general support
did it seek to address? scheme.
Stakeholders involved The Estonian Olympic Committee, the Estonian Foundation of Sports
Education and Information, the Estonian Sports Register were involved in
developing the support measure. The Estonian Olympic Committee as the
Please briefly explain Estonian Sports Confederation gathered the opinion of the sports field.
which stakeholders The Estonian Foundation of Sports Education and Information and the
were involved in Estonian Sports Register developed the IT-tool to hand the support out as
they had the necessary data on the coaches, their employers and an
developing this good already existing IT-tool for a similar support which has been handed out
practice example. since 2015.
Results
Please briefly explain There were almost no losses among the coaches working with the children
and youth and almost none of their employers went bankruptcy.
how the
measure/project was After the crisis, the interest to obtain a professional qualification for the
received by the coaches rose. The sports sector recovered quickly from the crisis.
39
Questions Replies
Challenges
The main challenge was to integrate the coaches COVID support system
Did you encounter any with the general supports schemes as they changed during different
difficulties in the waves of COVID.
measure/project?
Lessons learnt
The main lesson was that the need for good data is an absolute necessity
Which were the main to make fast and correct decision.
lessons learnt in the Good communication and involvement of the sport sector.
planning and Flexibility to modify the support measures.
measure/project?
Sources
Please add any relevant N/A

webpages, videos,
documents.
Estonia (2 of 2)
Questions Replies
Objectives
To support the private owned indoor sport facilities.
What were the aims of The reasoning behind it was that the income of the sports facilities
dropped to zero as they were closed down during waves or there were big
restrictions on the amount of people allowed to be indoors. The aim was
Which specific issue(s) to support these privately owned indoor sport facilities not to go bankrupt.
Stakeholders involved The Estonian Olympic Committee, the Estonian Foundation of Sports
Education and Information, the Estonian Sports Register were involved in
developing the support measure. The Estonian Olympic Committee as the
Please briefly explain Estonian Sports Confederation gathered the opinion of the sports field.
which stakeholders The Estonian Foundation of Sports Education and Information and the
were involved in Estonian Sports Register developed the IT-tool to hand the support out as
developing this good they had the necessary data on the sport facilities due to the fact that they
practice example. maintain the Estonian Sprots Registry.
Results
Over 100 privately owned indoor sports facilities received the support
Please briefly explain during three COVID waves. Almost none of them went bankrupt.
how the After already the first wave of this measure, the number of privately owned
measure/project was indoor sports facilities registered to the Estonian Sports Register raised.
received by the The sports sector recovered quickly from the crisis.
40
Questions Replies
Challenges
The main challenges were:
- how to support semi-privately owned indoor sports facilities.
Did you encounter any - How to design the measure so that pools, ice-rinks and other
difficulties in the more expensive indoor sprots facilities to maintain would survive
implementation of this the periods of COVID waves.
measure/project?
Lessons learnt
The main lesson was that the need for good data is an absolute necessity
Which were the main to make fast and correct decision.
lessons learnt in the Good communication and involvement of the sport sector.
planning and Flexibility to modify the support measures.
measure/project?
EuropeActive (1 of 2)
Questions Replies
THiNKactive, EuropeActive’s research centre, conducted an independent

assessment of COVID19 transmission in fitness spaces: ‘An independent
Objectives assessment of COVID-19 cases reported in fitness clubs and leisure
facilities across Europe: a THiNKActive report’.
This was published in December 2020 and included data collected
What were the aims of between 4th May and 25th October 2020. This report aimed to understand
this measure/project? the extent to which fitness facilities provided users with space in which to
safely be physically active during the COVID19 pandemic. It focused on
COVID19 case reporting and compiled data from the two important
did it seek to address? sources of the SafeACTiVE study (Europe) and ukactive data (UK). This
enabled recommendations to be made on the safety of fitness spaces and
risk of COVID19 transmission.
The report was produced by THiNKactive, in collaboration with ukactive

Please briefly explain Research Institute, the Centre for Sport Studies at King Juan Carlos
which stakeholders University and the Advanced Wellbeing Research Centre at Sheffield
were involved in Hallam University.
practice example.
Results
The report included a combined dataset of 115 million visits to fitness
facilities during COVID (4 May- 25 October 2020). It was the first report to
Please briefly explain explore the reported cases per number of visits during the COVID
how the pandemic and therefore was an influential and important study. It showed
measure/project was that self-reported incidence of positive COVID cases was only 1.12 per
received by the 100,000 visits which therefore suggested that fitness facilities were
stakeholders and any providing safe spaces for physically activity during this time.
Challenges
The study relied on self-reported data, due to a lack of established formal
Did you encounter any reporting systems at this stage of the pandemic. Despite this, robust data
difficulties in the collection methods and the large sample size still enabled meaningful
implementation of this conclusions to be drawn.
measure/project?
41
Questions Replies
This report suggests fitness spaces can be successfully adapted to reduce

transmission risk and therefore be safe for use during pandemic events. It
Lessons learnt also demonstrates the value of collaboration between private sector and
academic actors, to increase data sample size and produce important
recommendations on maintaining opportunities for physical activity during
Which were the main times of uncertainty.
lessons learnt in the
planning and This original report was followed up with a second report ‘SafeACTIVE #2:
implementation of this an independent assessment of COVID-19 cases reported in fitness clubs
measure/project? and leisure facilities across Europe: a THiNKActive report’, published 16
December 2021.
Sources
Please add any relevant https://www.europeactive.eu/sites/europeactive.eu/files/covid19/ThinkAct

webpages, videos, ive/SAFE-Active-Study-FINAL_print.pdf
documents.
EuropeActive (2 of 2)
Questions Replies
The ‘Risk Assessment Tool and Mitigation Checklist’ was created through
dialogue between fitness sector leaders that took the form of a specially
convened working group. It was published in May 2020 as interim guidance
Objectives for the safe re-opening and operation of fitness facilities.
It was produced as part of a guide on key considerations for sport and
What were the aims of fitness clubs during COVID-19. The aim was to produce guidance on risk
this measure/project? assessment for facility operators, in order to support evidence-based
decision making on safely re-opening facilities.
did it seek to address? Physical activity is central for immune functioning and health promotion, in
addition to supporting mental wellbeing which was negatively impacted
during COVID confinement measures. It was therefore essential to
facilitate access to fitness facilities where possible, in a safe way.
Please briefly explain The tool was produced by a working group involving representatives from:
which stakeholders EuropeActive, IHRSA, WFSGI, IOC, Qualicert and European Tour Golf. It
were involved in was also supported by consultation with ICREPS and EREPS.
practice example.
Results
An open access, free-of-charge industry risk assessment tool was
published. This provides an accessible Excel template for facility operators
Please briefly explain to self-assess disease spread risk in dialogue with local public health
how the authorities, and therefore inform decisions over reopening. The resource
measure/project was enables operators to input responses, supported by clear explanations and
received by the guidance, with a total mitigation score automatically calculated. This can
stakeholders and any then easily be compared to a risk matrix provided.
42
Questions Replies
Challenges
The resource was produced in May 2020. As significant uncertainty existed
during the pandemic, this resource was created reactively, using the best
Did you encounter any evidence available at the time. This produced challenging conditions and it
difficulties in the was important to acknowledge that the resource would likely need to be
implementation of this modified as the pandemic progressed, and regulations changed.
measure/project?
Lessons learnt
This project demonstrated the importance of strong fitness sector
leadership in unknown and challenging contexts. It also demonstrated the
Which were the main value of intra-sector collaboration. Additionally, functionality and clarity
lessons learnt in the were key features for making a successful tool with high utility for fitness
planning and operators.
measure/project?
Sources
Please add any https://hub.ihrsa.org/safety-considerations-for-sport-fitness-clubs-guide

relevant webpages,
videos, social media,
photos or documents.
FIA (Fédération Internationale de l'Automobile – International Automobile

Federation)
Questions Replies
- The global COVID-19 pandemic refocused FIA objectives, proving how

crucial it was to be connected and to work together to respond to the
challenges presented to our sport and its participants.
- The FIA articulated this common cause in a movement: Purpose Driven
(PD): generate positive actions for the betterment of society across four
key pillars – Health & Safety, Environment, Diversity & Inclusion, and
Community Development.
- PD propelled the FIA into a new dimension, acting as a catalyst which
made the FIA a standard bearer for our motor sports and mobility
Objectives communities, and it inspired actions that accelerated positive
contributions to society.
- To federate and amplify all the initiatives that help the FIA to achieve its
What were the aims of objectives in terms of health and safety, environment, gender equality,
this measure/project? diversity, inclusion and community development.
- Acting as an umbrella designed to aggregate and amplify the reach of
Which specific issue(s) existing and future FIA programmes.
did it seek to address? - Calling on and supporting motorsport and mobility communities to also
demonstrate and accelerate their positive contribution to society under
the four key pillars.
- Building on existing work, provide support and advice where appropriate,
celebrate achievements and encourage wider action within the pillars.
- Protect all participants and spectators in our motor sport competitions
from the COVID-19 pandemic and preserve lives on the roads, promote
safe, clean and affordable mobility for all, defend gender equality and
diversity, and facilitate access to motor racing and driving, particularly for
young people.
43
Questions Replies
- Member Organisations: work in a collaborative, united effort to generate

positive actions for the betterment of society across four the key pillars
developed. The FIA encouraging its wider community by providing the
tools and support necessary for Clubs to create positive outcomes at
national and regional level through the development of education,
Stakeholders involved advocacy, community engagement, and innovation and technology.
- On a Mobility project, the Division joins forces with EY-Parthenon to
reframe the programme.
Please briefly explain - The FIA Sport Clubs Solidarity Programme is launched to support ASNs
which stakeholders and ACNs during the pandemic and as they start to resume events and
were involved in activities in order to ensure that the restart of motor sport is organised in
developing this good a safe and sustainable way, compliant with the guidance of Governments
practice example. and WHO public health advice.
- JCDecaux and #3500LIVES Campaign Ambassadors Join Forces to
Help Fight COVID-19
- Together with the International Federation of Red Cross and Red
Crescent Societies, RM Sotheby’s, and the FIA Drivers’ Commission, the
FIA launches the #RaceAgainstCovid online charitable auction
- The FIA took a step forward and is more than ever determined to
increase the positive impact of its two pillars.
- The FIA had a responsibility towards society and was more ready to
Results respond to new realities (innovation/advocacy) in an ever-changing
world.
- Following the crisis and with its experience, the FIA was ready to go even
Please briefly explain further, to join forces and be a catalyst for change.
how the - FIA ambitions levelled-up about what can be achieved.
measure/project was o Safer roads and racetracks – apply what the FIA learnt.
o Promote road safety as a fundamental right for all.
received by the
o Transfer more technologies to road users.
stakeholders and any o Sport and Mobility act as laboratories and inspiration for eco-friendly
results/benefits it had. innovation and behaviours.
o Encourage more diverse talent into our sport and industry.
o Quantify our contribution to global and local economies and continue
to invest in jobs and livelihoods.
Challenges
-The first phase of COVID (2020/2021) was a "survival mode" context,
Did you encounter any while ensuring that sport events could still be organised, which was
difficulties in the obviously very challenging on a global scale (adapting to different national
implementation of this legislations/regulations, adapting to sudden changes, etc.).
measure/project?
- Pandemic has refocused organisations’ objectives on Economic, Social
and Governance goals for all their activities.
- Sectors that have responded successfully to these challenges have seen
Lessons learnt significant increases in levels of public support.
- A call to action that affects all of society and all organisations.
- Restrictions resulting of the pandemic have impacted road
Which were the main transportations emphasising its contribution on global CO2 emissions.
lessons learnt in the - Public transportation faced the most significant impact as preferences for
planning and private cars, walking and biking increased.
- Motor sport was not immune to the pandemic: events cancellation,
establishment of a strict sanitary protocol and negative economic impact.
measure/project? - Motor sport is facing increasing core challenges (safety, sustainability,
relevance).
- The pandemic revealed the ability of sport to mobilize quickly and
efficiently toward a good cause.
44
Questions Replies
Sources
Please add any relevant https://purposedriven.fia.com/page/frontpage

webpages, videos,
documents.
German Olympic Sports Confederation
Questions Replies
- To protect the health of athletes, fans & all other sporting events
Objectives stakeholders
- To enable organising committees of (multi-)sporting events as well as
(non-) professional leagues to implement safe events during the
What were the aims of pandemic in line with certified standards applicable nation-wide & to
this measure/project? uphold revenue streams
- To give both elite as well as recreational athletes the opportunity to
Which specific issue(s) compete in a safe environment to maintain physical and mental
did it seek to address? fitness through sport during the challenging times of the COVID-19
pandemic
- German Olympics Sports Confederation (DOSB)

Please briefly explain - National sport federations (both summer & winter)
which stakeholders were - TÜV Rhineland Product Safety Ltd.
involved in developing - Event management agency
this good practice
example.
- Among others, the project was developed and implemented with the
German Ski Association to ensure the execution of the FIS Nordic
World Ski Championships 2021 in Germany throughout the pandemic
and was well received among the International as well as National
Results Federation, both in terms of organisational as well as financial
constraints in the face of adversity at that critical time of the pandemic
- The project was also supported by the German Basketball Federation
Please briefly explain in view of their preparation for the EuroBasket 2022. The international
how the measure/project tournament was originally scheduled to take place in September
was received by the 2021, but due to the COVID-19 pandemic and the subsequent
stakeholders and any postponement of the 2020 Summer Olympics to 2021, it was
results/benefits it had. postponed to September 2022.
- The concept proved to be of added value to both indoor and outdoor
sports, be it at the elite or grassroots level thanks to its modular design
allowing clubs and organising committees to adapt the principles to
their specific needs.
Challenges - Acceptance for the new concept among political decision-makers at
the various layers of governance & policy-making (from federal down
to municipal level)
Did you encounter any - Nation-wide communication & distribution of the concept to relevant
difficulties in the stakeholders
implementation of this - Monitoring of implementation & guidance by the NOC to ensure
measure/project? coherent application of the concept.
45
Questions Replies
Lessons learnt - Agile management of & practical value creation for complex
governance system can be fostered during crisis mode if all relevant
stakeholders align
Which were the main - Dedicated task force for special project with external expertise
lessons learnt in the necessary to steer such a high-pressure project
planning and - NOC’s reach to grassroot level and 87,000 sports clubs in the country
implementation of this needs to be maximised and can be facilitated by regional branches
measure/project? such as regional sports confederations.
Sources
- Press release (in German)
https://www.dosb.de/sonderseiten/news/news-detail/news/dosb-
Please add any relevant hygienekonzept-fuer-den-nationalen-wettkampf-und-spielbetrieb
webpages, videos, social - Hygiene concept (in German)
media, photos or Broschuere_DINA4_Hygienestandards_20201022_Ansicht.pdf
(dosb.de)
documents.
Slovakia
Questions Replies
The aim of the COVID guide for sport was to specify the possibilities
Objectives how to play sports in the field of recreational sport taking in mind the risk
of spreading the infection in different sports.
The intention was to place the information about COVID restrictions for
What were the aims of the sports community in one place.
Which specific issue(s) The intention was as well to take into account the specificity of sport and
did it seek to address? according to it to have different restrictions for sport during COVID
pandemic compared to other areas (e.g. gastronomy industry)
Please briefly explain The Covid automat was approved by the Pandemic Commission
which stakeholders were established by the Government of the Slovak Republic and the Public
involved in developing Health Authority.
this good practice
example.
In individual phases, the COVID guide included details on e.g. state of
Results
emergency, curfew, reducing mobility, reducing the concentration of
people, limiting social contact, closing outdoor and indoor sports
Please briefly explain facilities, the necessity to wear a face mask, to proceed with regular
Atg/PCR testing, or to observe basic hygiene measures.
how the measure/project
was received by the Due to the amount of data that the system contained, the application
stakeholders and any www.covidsport.sk was created. Its main function was to answer the
questions how a different sport can be practiced in the different regions
in view of the measures currently in force at that time.
Challenges
As sport was evaluated by the Pandemic Commission as risky in
general, it was not possible to take into account the specificity of sport.
Did you encounter any
The same restrictions were valid for sport as for the others areas.
difficulties in the
measure/project?
46
Questions Replies
The COVID guide for sport offered examples for discussing the riskiness
of sports and the possibilities of eliminating these risks, especially for
Lessons learnt experts from the Pandemic Commission, for epidemiologists, virologists,
etc., as it provided a more detailed view on sports and its diversity,
flexibility and variability.
Which were the main It was also a guide for sports federations and clubs to focus on the
lessons learnt in the development of internal manuals with detailed instructions on how to
planning and play sports safely.
implementation of this For the athletes and coaches, the COVID guide in the form of the
measure/project? covidsport.sk application was a practical information tool. And for
mayors of municipalities, mayors and sports field operators, it was an
aid in planning and decision-making.
Sources
www.covidsport.sk (website no longer functional)
https://www.minedu.sk/data/att/19336.pdf
webpages, videos, social https://covidsport.iedu.sk/
media, photos or
documents.
47
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European Commission Expert Group on

"Strengthening the recovery and the

Directorate-General for Education, Youth, Sport and Culture

European Commission Expert

Directorate-General for Education, Youth, Sport and Culture

Luxembourg: Publications Office of the European Union, 2024

© European Union, 2024

The reuse policy of European Commission documents is implemented by Commission Decision

Print ISBN 978-92-68-08207-2 doi:10.2766/80257 NC-02-23-102-EN-C

Executive Summary ......................................................................................... 6

2. Background and context ....................................................................... 11

5. Annex: Good practice examples .......................................................... 32

Sports Organisations, Clubs, and Industry:

Athletes, Coaches, and Employment in Sports:

Each meeting focused on a specific topic:

2. Background and context

(5) Education, Youth, Culture and Sport Council - Consilium (europa.eu)

(8) Education, Youth, Culture and Sport Council - Consilium (europa.eu)

- Sport policy makers

- Athletes, coaches, and sport employment

Sport policy makers

The COVID-19 pandemic confronted public authorities with considerable challenges

(10) Rational policymaking during a pandemic | PNAS

(17) Timeline COVID-19 coronavirus - Consilium (europa.eu)

Involving sport stakeholders in the decision-making and establishing good

(18) SHARE LAB - Next Generation EU guidance - FINAL.pdf (europa.eu)

(27) Groupe BPCE, La filière sport retient son souffle, https://groupebpce.com/etudes-economiques/carnets-eco-sport-

(36) UEFA Financial Report 2020/2021, en_ln_uefa_financial_report_2020-2021.pdf

Athletes, coaches, and sport employment

(59) Employment in sport - Statistics Explained (europa.eu)

(60) EOSE presentation at 4th XG meeting

(61) Employment in sport - Statistics Explained (europa.eu)

(62) Presentation from EOSE 7th meeting of the XG

(63) 4th XG meeting presentations

(73) A comprehensive approach to mental health (europa.eu)

(75) A comprehensive approach to mental health (europa.eu)

General future orientations

Networks and information sharing

Health and physical activity

(76) Economic-Social-Impact_050620.pdf (europeactive.eu)

(78) THiNKactive study

Good governance and athletes’ rights

Sustainability and environment

• Encourage Standardised Data and Evidence Collection - advocate for the

• Collaborate on Enhancing Grassroots Sports Support Systems - Consider

representation and dialogue. Information sharing and awareness-raising of

• Explore options for establishing a European Crisis Management

National public authorities

• Raise Awareness of the Importance of Sport - enhance awareness at the

• Promote a Wellbeing Economy - foster a focus on promoting a wellbeing and

• Develop Clear Guidelines for Reopening - formulate clear and comprehensive

• Recognise and Support the Role of Volunteers - acknowledge the essential

• Provide Guidance on Organisational Resilience and Risk Management - offer

• Allocate Specific Funding to Grassroots Sport – promote the safeguarding of a

development and preparedness for crisis response including pandemics. In

International and national sport movement

• Acknowledge and Support Volunteers - recognise the indispensable role of

• Offer Guidance on Organisational Resilience and Risk Management - provide

• Diversify and Explore Funding Sources - maintain sufficient financial reserves