& THE GAME
A Semi-Independent Review into Refereeing & Match Officials March 2025
‘Learn to Perform, Develop to Perform, Develop to Promote’
A message from the Chair
I am delighted to publish this Semi-Independent Review into Refereeing & Match Officials for your consideration, reflection and action.
May I start by stating that refereeing is a whole game issue. It is not the sole responsibility of referee societies to look after our referees, it is everyone’s responsibility. Referees come from our clubs, universities, colleges, and schools, as players, former players, coaches, parents, and spectators. That connection with the game should be maintained to enhance the role that referees play and strengthen the rapport that referees need to have with everyone in the game.
It is also important to recognise the revised purpose of refereeing that now includes responsibility for maximising the player experience. Referees will continue to uphold the integrity of the game through the correct application of law, but in these challenging times for clubs and players, the role of the referee has become even more important in contributing to players playing more often and for longer.
The quid pro quo is that players, coaches and spectators must now clearly recognise their responsibilities towards referees and match officials. If referees are to do the best they can to maximise the player experience, they can no longer be subjected to abuse. If refereeing is a whole game issue, so is match official abuse and it is incumbent upon all of us to challenge such behaviour.
The 30 recommendations contained within the review will be implemented over the next 3 years. Some will be relatively easy to implement and already have the refereeing community and the game behind them. Others will require changes to behaviour and process. The review groups have challenged the mantra “it’s the way we’ve always done it” to find better outcomes for referees, referee societies, the game and players.
It has been a privilege to work with the 56 volunteers and members of staff to produce this review and I wish to thank them all for their hard work and dedication.
Simon Winman Chair, Semi-Independent Review Group Council Member for Buckinghamshire Member, Buckinghamshire Referees
‘Learn to Perform, Develop to Perform, Develop to Promote’
1. Executive Summary
1.1. This review is intended to align refereeing to several objectives from within the Community Game Future strategy (CGF) and thereafter ensure that all the recommendations are themselves aligned into a coherent order of importance and sequential. The critical culture changes for the game are threefold: firstly, that refereeing is a ‘whole game issue’ and that the game must assume responsibility for recruiting referees; secondly, that the RFU1, RFRU2, and referee societies assume accountability for their responsibilities, and thirdly that cultural issues of match official abuse (MOA) and dissent and sexism and misogyny are removed from the game The retention of referees will depend upon the RFU re-launching the values of the game and researching why MOA and dissent have risen both on and off the field. The training and development of referees must become more nuanced to meet the needs of club referees, and the range of experience and abilities within referee societies ’ Learn to Perform, Develop to Perform and Develop to Promote’ should become the mantra. The appointment of referees must become more ‘three dimensional’ based on a portfolio of motivations, abilities and meeting of game objectives and ensure that the game has the ‘right ref for the right match’ on all occasions. Further work will need to be undertaken once decisions on the new delivery system have been made to understand the roles of the RFRU and referee societies
2. Introduction: Why the review?
2.1. The last review of refereeing and Match Officials ‘The Match Officials’ Challenge’ was published in 2015 prior to the Men’s Rugby World Cup and proposed several farreaching recommendations some of which remained unanswered The Community Game Board (CGB) directed this review to take up these – and new - challenges to create a momentum for change. Change will need to come from the game and not just the referee community, and this review will highlight why and how this must be achieved.
2.2. The CGB has created a 10-year strategy for the community game with a specific focus on the next 3 to 5 years. It has laid out fifteen key priorities under three headings: ‘In the Game’, ‘On the Pitch’ and ‘In the Clubhouse’, underpinned by and executive and governance function ‘Running the Game’. There is a clear focus on creating the foundations for a more sustainable male game over the next 5 years by focusing attention on U16, U17 and U18 players and matches, and the opportunities afforded to grow women and girls’ rugby as a legacy of the Women’s Rugby World Cup in England next year (2025) Equally critical to the long-term health of the game in community clubs is the re-introduction of rugby into state schools in the form of a new non-contact version called T1 Rugby.
2.3. Against this positive backdrop is the unsavoury growth in MOA and dissent over the past 5 years. The RFU and the game holds its values of Teamwork, Respect,
1 RFU: Rugby Football Union, the National Governing Body for rugby union in England
2 RFRU: Rugby Football referees’ Union, the National Constituent Body for refereeing
‘Learn to Perform, Develop to Perform, Develop to Promote’
Enjoyment, Discipline and Sportsmanship (TREDS) as sacrosanct; however, abusive behaviours towards referees from both on and off the field impacts both the match officials concerned and the fabric of the game. While the use of sanctions is an obvious deterrent, more needs to be done to tackle this issue at the grass roots, something this review has sought to identify.
2.4. The format of the review below provides a view of the refereeing journey from taking the first steps into refereeing, to developing the skills of a referee who commits their time and effort and who possibly then either progresses to more challenging environments or hones their skills at a level at which they feel they can add most value.
2.5. The National League Match Officials’ Team (NLMOT) and indeed Professional Game Match Officials’ Team (PGMOT) who officiate the game at levels 4 to 1 have a welldeveloped and resourced programme for delivering the appropriate service. This review has not sought to examine whether this process is optimal and instead has focused on how we as a game can build the base of the pyramid to ensure more referees of an appropriate quality are refereeing the right matches in the community game with a priority being U16, U17 and U18 male youth and the women’s game. A consequence of such affirmative action will be that within the next 5 years more and better referees will underpin the NLMOT system so that we achieve the ‘right ref for the right match’.
3.4. The retention of referees
3.5. Their training and development, and
3.6. The appointment and deployment of referees
‘Learn to Perform, Develop to Perform, Develop to Promote’
3.7. The working groups were populated by a broad range of 55 people from within refereeing and the community game with expertise and experience across various roles within referee societies, constituent bodies (CBs), clubs, education and the RFU Council. Their task it was to answer several challenges that focused on key issues within their remit 3
4. Setting out a clear Purpose & Vision for refereeing in England
The new Purpose builds upon the accepted role of referees and refereeing:
4.1. ‘Referee societies (and through them referees) have a clear purpose aligned to the Community Game Future Strategy: to uphold competition integrity through the application of law and create the best possible player experience that keeps more players playing more often’
4.2. It is essential that the refereeing community recognises its broader role in the game beyond mere application of law. Other components of the game are aligned to the aim of increasing the player experience to ensure more people are taking up the game, playing more often and for longer. referees have a unique role in maximising the onfield experience; training, development and pitch-side support must therefore align to support this aim
5. Our Vision: Where do we want to be by 2030?
5.1. Our vision is to retain a strong and vibrant community of referees across all referee societies and clubs, their work contributing directly to an enjoyable and sustainable game for players and spectators referees will contribute to more people4 playing rugby more often in clubs, schools, colleges and universities, and in a variety of formats from non-contact to full contact.
5.2. Promoting, recruiting, training, retaining, and recognising the contribution of referees and match officials (MOs), and promoting refereeing in rugby as a worthwhile and fun activity is a fundamental focus for the RFU, RFRU, referee societies (RSs), local rugby management boards and clubs and all the institutions above.
5.3. By managing refereeing in an efficient and effective manner the RFU, RFRU and local referee societies will manage the present and plan for the future. Referee societies and clubs will meet the playing needs of clubs, schools, colleges and universities and ensure that all matches have ‘the right ref for the right match’.5
3 Appendix 1
4 The Community Game Future strategy places a focus on 16-18 male players and women and girls
5 From U14 for boys and girls playing 15-a-side contact and/or T1 Rugby through to adults
‘Learn to Perform, Develop to Perform, Develop to Promote’
5.4. The RFU (supported by the RFRU) will facilitate a cyclical process of development for referees and MOs whereby they Learn to Perform, Develop to Perform and Develop to Promote to meet the needs of the community game. These needs will be met by referees and MOs with the appropriate experience and skill set, supported by MO Developer and Coach teams off the pitch so that the most appropriate referee and match official officiates the right match.
6. Context and Environment Governance and Practice
6.1. Referee societies must consider how their public facing image appears to younger people who may be considering refereeing in rugby. The name ‘Referee Society’ is unhelpful and is perceived to be unwelcoming, closed and opaque. Several referee societies have already changed their name to remove the word society6 and changed their website imagery to offset this perception. There is no reason to change a referee organisation’s legal name, simply their ‘brand’.
6.2. CBs and clubs have evolved into more effective and efficient operations over the past 20 years with dedicated support from the RFU Club and CB Development team. It is apparent that referee societies have not always been able to access this level of support to operate even better than they currently do. Referee societies will also be affected by changes to the CGF Delivery System in the same way that CBs will be. At the time of writing no decision has been made as to what the system will look like nor how it will operate at a local level. However, it is highly likely that Regional Rugby Delivery Boards will be set up and designed to focus on the growth of the game, and through which funding to grow the game will flow to CBs. A debate needs to be had as to how referee societies should work much closer with CBs in this future landscape, however it is likely that the decision will be made ‘top down’ with a framework within which to operate.
6.3. In the same way the RFRU will be required to adapt its role as a National CB. It is unlikely to directly access RFU funding and will instead become a more strategic body that provides direction to referee societies based upon the needs of the CGF. Its revised role and responsibilities will need to be clearly defined and aligned with the MO Development team. The recommendations within the review that impact on referee societies will require the RFRU to manage their implementation across its membership. As per above, this role will develop as the new delivery system is finalised.
6 Hampshire Rugby Referees
‘Learn to Perform, Develop to Perform, Develop to Promote’
7. Recruitment
7.1. Recruitment of referees should be the responsibility of the game and not simply referee societies. It must be accepted that the game (RFU staff, RFU Council, clubs, education, CBs, referee societies) must take collective responsibility for the success of the Community Game Future strategy (CGF) and the work contained therein. referees are found and start off in clubs and education - not in referee societies – and as such we need to plant the seed of refereeing in those environments, and for the club, school, college or university to pass potential referees to referee societies to Learn to Perform as a referee Therefore, recruitment starts in the club with the Club Referee Coordinator (CRefC) recruiting people to referee to serve the needs of the club (generally youth matches) and thereafter possibly passing the referee to the referee organisation to Develop to Perform.
7.2. T1 Rugby (T1R) in schools and across education provides a clear opportunity to promote refereeing in a more social and relaxed environment. The game is designed to be self-regulating so that pupils and students can be introduced to refereeing in a positive manner refereeing a simple game format that can become increasingly complex as required provides the perfect platform to learn the art and skill of refereeing. Teachers need to be made aware of the importance the RFU are placing opportunity, and young T1 referees should be invited to Schools’ Allianz Stadium mechanisms to support young people schools should be programmes such as the Duke of Edinburgh after school clubs in linked primary schools should be promoted as ‘business as usual’ for the RFU MO Development and Volunteer Teams.
7.3. Having recruited these new referees into T1R what is the role of the referee organisation? Given the nature of T1R as a social form of non-contact, there is no reason to ‘structure’ an informal group of referees. That said, the mechanism for recruiting T1R into the contact game if they so wish requires the RFU to be able to track these referees.
7.4. There are clear and successful examples of how to grow a sustainable cohort of referees within clubs capable of meeting the needs of U13, U14 and U15 matches7. A
7 Lincoln RFC and Buckinghamshire referee Society’s Club referee Academies
‘Learn to Perform, Develop to Perform, Develop to Promote’
clear driver is required be it within the club or the referee organisation to maintain momentum over a time. This must be initiated by the executive board / committee, or it must provide its backing. There should be no difference in way that clubs see the obvious need for competent, safe and empathic coaching of their junior section and the need for the same competent, safe and empathic refereeing. That said, it is imperative that the referee organisation is engaged to provide appropriate training and support for the level of refereeing. This will be more nuanced that training of society referees who (mostly) referee the adult game
7.5. There is therefore a need to promote the (CRefCs in these clubs to work with the referee organisation and local training managers to assist in recruiting potential referees for youth rugby with the then potential benefit of furthering their refereeing in adult rugby (men and women).
8. Retention
8.1. Referees and match officials should be valued as volunteers who give of their time throughout the year. referee societies need to acknowledge the flow of work and family pressures and ensure they fully understand the availability and aspirations of each referee for the coming season.
8.2. This will provide the appointments secretary with a better picture of the ‘rhythm of availability’ and will help to identify how the referee organisation can fulfil its obligations to support and develop their referees. No referees should be pressured to referee too often and thereby put their welfare at risk. A referee organisation will work with neighbouring societies to fulfil their obligations to provide referees for matches within their boundaries and to both provide referees to neighbours or indeed receive them.
8.3. That said, the encouragement of referees to officiate ‘One More Match’ should be undertaken wherever appropriate. 1,700 referees refereed one match last season (2023-24); imagine the effect if they refereed one more match in 2025-26?
8.4. The thought of officiating at a club where a referee knows there’s no heating, it’s not clean, the lighting is poor, the shower doesn’t work or is cold and there’s no lock on the door is not conducive to recruiting or keeping our referees active. Facility improvements are listed in the recommendations as a key issue in the same way the RFU identified improved social spaces were key to recruiting and keeping female players.
8.5. Match Official Abuse and dissent have become the most significant risk to the culture of the game in recent years. RFU and local disciplinary action have been brought to bear on the problem in support of referees, yet it continues to raise its ugly head. The RFU should seek preventative measures before punitive measures reach a point of no return and should seek to understand why the behaviours have become more frequent. The RFU launched the Values of the Game (TREDS) in 2008, and it is now time to reinvigorate our values and re-educate the game. At the same time referees need to look at what they can do to prevent these behaviours appearing and what they
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might do even better to help prevent MOA and dissent. Several public services are trained to de-escalate potential conflict and the RFU should learn from this; a bespoke training package for referees should be implemented and available to those club officials responsible for managing spectator and touchline behaviour, in addition to bystander training At the same time, a module designed to promote the similar behaviours should be introduced into the ERCA and Advanced Coaching Award Such
9. Training & Development
9.1. With clubs, schools, colleges and universities tasked to identify new referees within their rugby communities, new ways of ‘hooking’ potential referees needs investigation. Options include the co-creation of refereeing courses with coaching courses, thereby providing a view of the role the youth coach will likely be needed to perform. An additional benefit would be to familiarise all youth coaches with the challenge of officiating effectively – and how to behave towards a referee in a way one would hope to be treated themselves.
9.2. The feedback on Training & Development courses received by referee societies is that flexibility must be built into the timing of courses to meet local need. The perception of pre-season scheduling of courses such as the Introduction to refereeing (ITR) and England Rugby referee Award (ERRA) is negative and needs to change. The content is appropriate for current needs but is too ‘blunt’; it should be more nuanced to meet the needs of match officials at the top of the community game and thereafter in ‘bands’ of graded referees. Referee organisation training could then become more specific to the needs of current L6, 7, 8 and the needs of referees at Levels 9, 10 and below. The mantra should be Learn to Perform, Develop to Perform and Develop to Promote. With greater local flexibility comes the need to grow the delivery team from within the game. This would allow for more courses to be adapted to a variety of timings.
‘Learn to Perform, Develop to Perform, Develop to Promote’
9.3. Greater emphasis should be placed on the recruitment of a larger cohort of high-quality hands-on MO Developers and Coaches who are current in their knowledge and application of coaching skills and behaviours.
10. Appointment & Deployment
10.1. The appointment of referees going forward will require referee societies to adapt and / or enhance current practice. Never before has refereeing been required to focus resources to the objectives of a national strategy, but it is now imperative that referee societies follow the CGF strategy and appoint the right referee to U16, U17 and U18 male and women’s matches. This is not just a grading issue: it is about appointing referees who have the experience, capabilities and empathy to ensure the player experience is maximised in order to sustain and grow these parts of our game. referee societies need to commit to these CGF priorities or explain why and how they will mitigate any shortfall. ‘Right Ref, Right Match’ will support appointment secretaries to appoint the most appropriate referee for each match, by considering more than simply a referee’s grading.
10.2. The process for meeting referee match day expenses needs to be drawn up centrally and all referee societies need to comply or explain why they aren’t doing so. Having a disparate approach creates inequities across the country and is unlikely to meet the requirements of HMRC. The cost of refereeing bourn by clubs also needs to be rationalised and aligned and all referee societies need to comply or explain why they aren’t doing so. While actual costs will obviously vary due to distance and league level there are too many anomalies across the country whereby clubs at the same level are subject to a different approach by their referee societies.
10.3. Referees are appointed to fulfil the purpose set out at the beginning of the review: to uphold competition integrity through the application of law and create the best possible player experience that keeps more players playing more often. To bring this to life, banding referee grades is required to re-set referee expectations to the levels at which they officiate on a weekly basis. A referee at L6 should expect to spend time at L7 and L8 to build a broader portfolio of experience. They should also expect to referee Colts and women’s matches to provide both with the best possible experience The development of referees to operate in this band system will be assisted by the recommendations in the training and development section. A referee who referees across L6 – L8 will be invaluable as a mentor / developer to less experienced referees.
11. Record of Recommendations
11.1. Each of the working groups identified and agreed recommendations based on their discussion and debate. Some of the recommendations not surprisingly overlapped the agenda of other working groups but to ensure nothing was missed, all recommendations were gathered and then rationalised into a more workable number. There are a significant number of recommendations (30), but this is commensurate with the breadth of the review and the need for a more radical approach than in the previous review in 2015.
11.2. The recommendations also identify their importance, who is responsible for implementation and the date for implementation or when the associated work should start. These elements should be complied with or an explanation of why they need to be changed should be provided.
11.3. That said, the responsibilities section may change with the development of the role and responsibilities of National CBs – in this case the RFRU – who may be given more responsibility for the implementation of recommendations, particularly directed towards referee societies
11.4. There will need to be a clear and agreed implementation plan created collaboratively by the RFU Game Development team, RFRU and other relevant parties that is agreed by the CGB and overseen by the Game Development Sub Committee (GDSC). This relationship will be critical in maintaining the impetus for change as well as monitoring the actual changes undertaken.
12. Governance
GOV1
GOV2
Request and require all referee societies (RS) to rebrand removing the word ‘society’ from their public facing imagery, websites, badges, letterhead etc. They may keep the name referee society as their incorporated identity but should rebrand as a more inclusive and accessible organisation.
Sell the story of the current RS's who have changed their names and ensuing benefits. Budget split over 4 years dependent upon number of RSs changing name and any allied costs
GOV3
Require the RFU to re-launch as a matter of urgency a redefinition of the core values of TREDS for all participants within the game: players, coaches, referees, spectators, clubs, schools, colleges and universities. Ensure that MOA and dissent figure highly in the document and the attendant CB road shows across the country that are needed to bring the redefined values to life.
RFU President-led action started Oct 24. Work requires unambiguous messaging re behaviours of all participants: players, spectators, coaches, parents
Research should be led by the appropriate RFU team to better understand why the personal discipline of players and spectators has declined over the past 5 years leading to the rise in MOA and dissent*. An action plan should then follow that includes input from the RFRU, RSs, CBs and clubs. *This research could be carried out alongside the WRU, SRU, and IRFU should they too have identified the same issue.
Explore work with other Unions due to resource constraints and needs to be undertaken alongside the review of the Values.
GOV4
The new delivery system for the CGF will undoubtedly influence the structure and/or operation of CBs including national CBs such as the RFRU and its member RSs. Once agreed, the Review Group will undertake further work to understand the impact and make recommendations to better align both the structure and/or operation of both to the new way of working within the CGF.
Critical to the RFRU and its future operation.
RFRU to review their role as a CB and any implications for delivery.
GOV5
The recommendations above will include an operational framework designed to: align the operation of the Referee society to the vision and strategy of the CGF; maximize resources within the boundaries of the society and its neighbours; work collaboratively and in union with the relevant Geographic CB regarding (but not restricted to: communication, safeguarding, discipline, competitions, match finances, training and development, youth rugby and club engagement).
13. Recruitment
REC6
Introduce a T1 Rugby Point of Contact in referee societies who will focus specifically on working with CRefCs, teachers and new referees to upskill those who officiate T1 Rugby. RSs and CBs will work together to proactively support T1R in their schools and the transition of players into clubs thereafter.
Aligns to the timescale of the agreement of the Delivery System / role of CBs and thereafter the RSs. Requirement to consider RFRU By-Laws.
CGB Sep-24 Jun-25
The introduction of T1 Rugby in schools is not scheduled to impact upon RSs until / unless the offer becomes competitive (+4yrs). However, if young T1 referees are interested in transitioning into the contact game a point of contact in the RS needs to be available
RFRU Jan-25 Sep-26
RFU (T1 delivery) RFRU (POC in RSs) Sep-25 Sep-26
REC7
REC8
Include several whistles and bibs / t-shirts in the T1 Rugby Flat Packs that will be allocated to schools. This will reinforce the importance of refereeing and provide the opportunity to anyone on the pitch to referee. Schools should be encouraged to re-order whistles and bibs.
Every club with an Age Grade section should appoint a person to the role of Club Referee Coordinator (CRefC) who will be responsible for identifying and supporting a cadre of club (age grade referees) referees. Referee organisation training officers should meet regularly with the CRefC and support bespoke training events for these referees in the club environment.
Already actioned as part of the roll out
Apr-24 Sep-24
REC9
REC10
The RFU will put in place a suite of curated resources designed to support the three stages of a match officials’ journey ‘Learn to Perform, Develop to Perform and Develop to Promote’.
Following the introduction of player registration, use the available data & insight to campaign for lapsed/recently retired players to make the transition into refereeing, initially targeting Age Grade U14-U18
Regeneration of the CRefC role in clubs. clubs and schools should be encouraged to be proactive in ensuring they have enough trained referees available to officiate their age grade games, overseen by CBs
Digital, e learning and video content remains available. A new LMS will result in improved visibility and usage RFU Sep-25 Sep-27
Allow the APR process to settle in 24/25 and thereafter introduce a pilot followed by full implementation for Sept 26. Ensure that a legitimate interest is created. RFU Sep-26 Sep-28
REC11
RFU funded university activators tasked with establishing and maintaining enough ‘student’ referees required to officiate T1, intermural/college and non-BUCS matches.
The introduction of T1 into universities will be a slow burn of social rugby activity, officiated by the players / others in the first instance. Engage with activators to promote coaching and officiating courses. Link Game Development into activator list.
RFU Sep-25 May-28
REC12
Undertake research to understand how GMS currently supports the identification of referees, the administration of refereeing and how it might be developed in the future to provide and even better service.
14. Retention
RET13
Implement a national Referee Developer and/or Referee Coach recruitment drive from within the game. Identify what is required of the Referee Developer to support Bands A, B and C referees (see Appointment and Deployment Recommendations) and what is required of a MO Coach for the NLMOT.
Linking to 10. Understand how GMS might identify referees and add value as part of junior registration
RFU Sep-25 Dec-25
Initial work to identify requirements for Bands A, B and C alongside the current Developer programme. Then introduce a recruitment campaign. Masterclasses established, entry level to be introduced. Review of Developers programme required (last in 2021/22)
RET14
Funding should be made available for the development and improvement of referee changing facilities. This includes not only a greater number of changing rooms to accommodate the growth of female referees and number of matches, but the clear improvement or re-development of existing facilities to ensure a well-lit, spacious, warm room with a working shower and internal lock.
Changing room improvements for both player and match officials will be considered as part of CGF proof of concept planning starting in 26/27
RFU Jul-25 May-26
RFU Sep-25 Sep-28
RET15
To improve administration and appointing practices referee societies should utilise the full range of functionality available on ‘Who’s the Ref’ (WTR). This should include giving referees the opportunity to nominate themselves to matches that correspond to their current level/banding. A pilot programme will be implemented, and training provided in the use of the 'new' functionality.
The RFU purchases an annual licence for WTR including the full range of functionality. Several WTR workshops have run this season, leading to improved engagement with the systems functionality. The functionality required enabling referees to appoint themselves to matches has been tested.
RET16
RET17
Using the National Rugby Survey (NRS) seek the views of active MOs relating to on-field matters, including identifying their motivation, expectations, experience of the game and welfare. Thereafter share data and actions with RFRU and referee societies.
The NRS includes a specific section that captures the views of Match Officials. Whilst some questions asked are consistent year on year the platform does allow for specific questions to be asked.
Implement a national process for the reimbursement of referee expenses and the charging of match fees, having identified best practice from other sports, referee societies and HMRC requirements. It will be incumbent upon societies to follow this process or explain why it doesn’t to the RFRU and thereafter the Game Development Sub Committee (GDSC).
It is both the RFU's and RFRU's role is to ensure good governance and financial probity as an NGB and as a CB. Therefore, the initial piece of work to identify how its membership levies charges and pays expenses sits with the RFRU. Work to reform the landscape through regulation would be led by the RFU.
Part [a]
RFRU
Part [b] RFU Sep-25 Jun-27
Further work should be undertaken with both the NLMOT and PGMOT teams to examine how these match officials can take appointments from their referee societies when not required at that level. Tying these match officials back into their referee societies is designed to utilise their experience as either formal or informal referee coaches and / or mentors and provide role models for both referees and players at the lower levels.
15. Training & Development
T&D19
T&D20
Create a range of 'How to Referee T1 Rugby' resources for education and clubs and nuanced for a variety of young and older referees. the resources should include printed '1minute guides' and an e-learning module leading to an RFU T1 Rugby Referee Qualification.
These referees and MOs are contracted to the RFU as casual employees; however, they remain members of their society. The aim of the recommendation is clear and requires input from both the RFU and RFRU in the form of its members.
Curate a package of digital content, learning resources, eLearning and how to guides, making them freely available to refereeing organisations and individual MOs. Resources will also be appropriate for club referees at youth level.
Refereeing is already included in T1 resources, and RFU is exploring ways of incorporating T1 into existing coaching and refereeing awards and resources. A digital offering will be created if there is demand.
Aligned to Recommendation 9. Key action is to differentiate the resources in line with new referee bandings RFU Sep-26 Sep-27
T&D21
The appropriate RFU Rugby Development teams should explore what opportunities exist currently and which might be created for young people to gain a refereeing award as part of either a voluntary award programme (DoE) or part of GCSE PE and other NVQ qualifications (refer to Recruitment).
The RFU Player Experience team has launched activity with partner organisations to promote rugby activity. A natural consequence would be to provide exit routes for referees
T&D22
The RFU should provide a standardised training offer for anyone wishing to train as a referee. Referee societies and CBs should work collaboratively to identify the level of demand for referee training courses. RS representation at initial referee training courses is strongly encouraged, as is the ability to flex the length of course completion.
Proposals that will see the ITR and ERRA courses amalgamated into a single 1 day (6hour) in person course, underpinned by mandatory pre course eLearning modules approved by GDSC in November 2024
Jul-25 Jun-28
T&D23
A training module on de-escalating potential conflict situations should be created for referees and coaches that provides advice and guidance on how to avoid and deescalate conflict. To be undertaken by referees on an annual basis and should form part of the pre-season refresher education along with headcase and safeguarding.
The purpose of this recommendation is to help referees de-escalate conflict and reduce MOA by improving people management skills
RFU / external provider Sep-25 Jun-28
T&D24
The module on de-escalating conflict should be undertaken by coaches as a pre-requisite for entry onto the ERCA and Advanced Coaching Award. The emphasis should be on how positive culture, values and behaviours off field drive performance on field.
16. Appointment & Deployment
A&D25
Referee levels should be replaced by bandings. Linked to this, detailed appointment guidelines will set out the matches that fall within each banding. Aspiring referees will be required to maintain a portfolio of officiating that must include evidence of officiating across their band and U16 – 18 and women’s’ matches before they will be considered for appointments to matches in higher banding.
The purpose of this recommendation is to help coaches de-escalate conflict and reduce MOA by improving people management skills RFU / external provider Sep-26 Jun-28
The outcome of this recommendation should be informed by engagement with RSs and other key stakeholders. As well as consulting on changing levels to bandings, engagement forums could be used to consult on recommendation 17 and introduction of match fees
Sep-26 Jun-28
A&D26
A&D27
Referee societies will be expected to operate collaboratively with neighbouring organisations operating in a ‘porous border’ manner (requesting and/or providing referees) to ensure all adult male matches have a referee. This will be a 'comply or explain' issue, where WTR data will be monitored and where necessary referee societies will be asked to explain any significant issues.
Work to be done in the background to create an appropriate expenses policy and guidance on how to minimise travel and maximize the experience for the referee. While a challenge for some RSs, this is a compliance issue as it directly affects matches played and player retention RFRU Sep-25 Jun-28
A&D28
Referee feedback will be required via an electronic feedback form for coaches and players to use in line with the proposed purpose of ensuring competition integrity and ensuring the best possible experience for players. The feedback will form part of the portfolio for the referee’s performance and possible promotion.
Identify which referee societies contact their lapsed or dormant match officials on an annual basis and record the results. Thereafter require all referee societies to implement and audit annually. Exit interviews should be standard practice across all referee societies, and organisations will be asked to explain why if not carried out.
The functionality to perform this task exists in WTR.
Several RSs/CBs already operate feedback processes
The functionality to perform this task exists in WTR. This activity could have been in the governance section and as such should be required practiceespecially among those RSs with inadequate numbers. Begin planning in 2024/25 RFRU Sep-26 Jun-28
A&D29
A&D30
Running parallel to the recruitment campaign target active Society referees, encouraging them officiate ‘One More Match’. Strong consideration should be given to the introduction of referees being automatically entered into prize draws based on the number of games they have officiated. e.g. all referees doing more than 20 matches in a season could win 6 nations hospitality package for 4 people
Undertake a sample review of the current referee conversion rates from initial courses (ITR) to on-field activity, targeted initially at youth level across clubs and education. Act on the findings to create a programme and process that sees more youth matched refereed by qualified referees.
The data required to implement and monitor progress of this recommendation is available of WTR. If this recommendation is supported by CGB and RFRU it should be possible to build a prize draw package aligned to profile raising communications.
The functionality required to action and monitor progress of this recommendation is available through analysis WTR and GMS.
RFRU Sep-26 Sep-27
RFU Sep-25 Sep-26
17. Challenges
17.1 The radical nature of several of the recommendations will no doubt cause some members of referee societies to push back. It is essential that the CGB, the GDSC and the RFRU remain firm on the necessary changes to ensure refereeing plays its part in delivering the CGF strategy. Experience shows that such views are not always those of the organisations and therefore societies may need to recruit for change. Such challenges should be expected but not shied away from. Where organisations flatly refuse to engage, the GDSC and CGB will need to consider how to apply a stronger approach. Early engagement with referee societies therefore will be essential to explain why the changes are necessary and the associated opportunities.
18. Work to Complete / Continue
18.1 There are issues discussed at the working groups that require further attention before recommendations to action can be made. The Review Chair stated this would naturally be the case and retains responsibility for ensuring recommendations are forthcoming. New working groups may well be required to deal with these issues, in which case the Chair will work with the Chair of the GDSC to populate them.
19. Changing the Culture: Sexism and Misogyny
20.1 The use of Bystander training has had a powerful effect upon parts of our game to date, but more needs to be done to ensure comments and behaviours demonstrating sexism and misogyny are eradicated from our game. It is unfortunate that such behaviours have also been seen in referee societies and passed off as banter There is also evidence of inappropriate overtly sexist comments from players and supporters that in any other context would be taken forward under the law. Additional evidence is being collected and collated to provide a solid basis for action.
20. Payment of match officials
21.1 It is evident that the payment of referees and umpires in other sports is providing a picture of where rugby union in England needs to move to. The debate was had in the last review and created two very clear opinions, and the situation has only become more polarised, especially along the lines of age, and the debate must be held in terms of ‘when’ not ‘if’. A clear and defendable position will be identified, but as important are the consequences of payment as the cost and knock-on effect for clubs and referee societies will need to be fully evidenced and understood.
21. Governance & operational process
22.1 The new delivery system for the CGF will undoubtedly influence the structure and/or operation of CBs including national CBs such as the RFRU and its member referee societies. Once agreed, the Review Group will undertake further work to understand the impact and make recommendations to better align both the structure
‘Learn to Perform, Develop to Perform, Develop to Promote’
and/or operation of both to the new way of working within the CGF. The role of Federations will also need to be reviewed. They were set up in the late 1990’s and have evolved without a national framework. The role of the MO Development and Training teams in resourcing local training programmes within this new structure will also need to be aligned to the principle of devolution that is being used as a key principle in the definition of the delivery system.
22.2 The recommendations above will include an operational framework designed to align the operation of the referee organisation to the vision and strategy of the CGF; maximize resources within the boundaries of the society and its neighbours; work collaboratively and in union with the relevant Geographic CB regarding (but not restricted to: communication, safeguarding, discipline, competitions, match finances, training and development, youth rugby and club engagement).
22.
Current and former professional players as referees
19.1 Working with the Rugby Players’ Association to train and qualify professional players as referees within the community game as a means of ‘giving back’ to the game.
Simon Winman Chair Semi-Independent Review Group
Referee and Match Official Review
1st March 2025