A maximum of 4,000 fans are permitted at outdoor events in tier one – the lowest-risk areas.
Professional sport has been previously played behind closed during the coronavirus pandemic.
Since 2 December, 2,000 people have been allowed in tier two areas but none in tier three, while indoor venues in tiers one and two have been permitted a maximum of 1,000 spectators.
When asked by Warrington MP Andy Carter in the House of Commons on Thursday whether the Rugby League World Cup would be able to go ahead in England in October and November 2021, Dowden said: