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Alcohol Exclusion Zone - Working Group Membership:Cllr B Hancox (Chair)Cllr M McMahonCllr J ClarkeCllr N PhillipsCllr B GrantCllr J PreedyCllr M JonesCllr S WilsonOSC Support Officer& Project Research Lead1

Table of ContentsCHAIR FOREWORD ............................................................................................4SUMMARY ...........................................................................................................5INTRODUCTION ..................................................................................................6Why was this review undertaken?............................................................................................... 6Report Structure ............................................................................................................................ 6What are the desired outcomes?................................................................................................. 7What Methodology/Approach was used? ................................................................................... 8National Statutory and Local Policy Context.............................................................................. 8County Council and Police Proposed Area .............................................................................. 11Process and Procedure .............................................................................................................. 12POLICY REVIEW AND DEVELOPMENT - ALCOHOL DESIGNATED PUBLICPLACE ORDER..................................................................................................14What is an Alcohol Exclusion Zones......................................................................................... 14Where would an Alcohol Exclusion Zones add most value? ................................................. 15County Council and Police Proposal for NBBC area ................................................................ 15Residents and Council Services Proposals for NBBC area...................................................... 16Alcohol Related Crime and Disorder Literature Review – Variation in Police and Pubicperceptions .................................................................................................................................. 22Alcohol Designated Order Site Visit Notes............................................................................... 24Coventry City Council Site Visit................................................................................................. 25Cannock Chase District Council Site Visit................................................................................. 27Nottingham City Council Site Visit............................................................................................. 28Site Visit Lessons learnt............................................................................................................ 29References ................................................................................................................................... 31Appendix 1: Nuneaton and Bedworth CDRP view to Council ................................................ 32Appendix 2: Warwickshire Police memorandum of evidence ................................................ 33Appendix 3: The Scope of the Alcohol Exclusion Zone Review ............................................ 43Appendix 4: Mapping out the scrutiny review.......................................................................... 46Appendix 5: 14 August 2005 – Participatory Witness Forum ................................................. 472

Appendix 6: County Council and Police proposed Alcohol area ........................................... 53Appendix 7: Press Release and Internet Survey Background................................................ 70Appendix 8: Alcohol Exclusion Zone Survey........................................................................... 71Appendix 9: Coventry City Council - Site Visit - Resource Pack............................................ 72Appendix 10: Cannock Chase Council - Site Visit - Resource Pack...................................... 81Appendix 11: Nottingham City Council - Site Visit - Resource Pack ..................................... 87Appendix 12: Home Office typologies of Anti Social Behaviour............................................ 88Appendix 13: Police Report on Site Visits ................................................................................ 89Appendix 14: Security Officer CCTV Survey ............................................................................ 92Appendix 15: Letters and E-mails of evidence......................................................................... 933

Chair ForewordThe Working Group was set-up to carry out an in-depth objectivescrutiny review of the concept of an Alcohol Exclusion Zone (AEZ).This would mean persons consuming alcohol, from an open containerin an area designated an AEZ, can be required by the police tosurrender that container. Failure to comply with that police officersrequest would be an arrestable offence.This issue was first brought to light from full Council who received areport from the Crime Reduction Partnership supporting the conceptof Alcohol Exclusion Zone(s) within the Borough and wanted the OSCto look at that in more detail.Here is the evidence we collected.4

SummaryThe Borough Council's Corporate Services and Civic Affairs Overview andScrutiny Committee have set up a Working Group of Councillors led byCouncillor Bill Hancox to assess the need and demand for creating a ‘drunk anddisorderly free zone’ within the Borough. The Alcohol Exclusion Zone (AEZ)Working Group learnt that there are many terms for an AEZ. The legalistic term isan Designated Public Place Order (DDPO) which is enabled under the CriminalJustice and Police (CJP) Act 2001, and use of Section 13 of the CJP Act 2001which requires NBBC to be satisfied that public nuisance, annoyance or disorderhas been associated with public drinking in that area proposed and that anAlcohol DPPO is appropriate. If an Alcohol DPPO was put in place this wouldempower the police under Section 12 of the Act to deal with anti-social drinking inareas that have been designated by NBBC under Section 13 of the Act. Thepolice will have the power to require a person, in such a place, not to drinkalcohol in that place where the officer reasonably believes that the person is, hasor intends to do so, and to surrender any alcohol or alcohol containers (otherthan sealed containers) in that persons possession It will not be an offence todrink alcohol in a designated public place, but failure to comply will be anarrestable offence.The Working Group has carried out: wide ranging consultation with variousstakeholders participating in a general debate; consideration of a publicperceptions survey; and undertaken an investigation into the evidence required,operational processes, enforcement, successes and failures to establish lessonslearnt from other Local Authorities site visits who have an Alcohol DPPOs.5

IntroductionWhy was this review undertaken?The Chairman of Nuneaton and Bedworth Safer Communities partnershipCouncillor R.D. Hicks, presented a report of the Chief Executive setting out theviews of the Partnership on the effectiveness of a ban on alcohol in public openspaces (appendix 1). Warwickshire Police provided a memorandum of evidencealongside the Nuneaton and Bedworth Safer Communities partnership report(appendix 2). Council resolved: “The Council welcomes the work of the CrimeReduction Partnership and supports the concept of Alcohol Free Zones within theBorough and asks that the relevant O.S.C. look at the concept in detail.”(Council, 7 December 2005, Minute Number: 283)The Corporate Services and Civic Affairs OSC scoped out the principalobjectives of the review on the 4 April 2006 (appendix 3) establishing a WorkingGroup of Councillors in order to progress the review. The members of thisWorking Group include: Cllr B Hancox (Chair); Cllr J Clarke; Cllr B Grant; Cllr MJones; Cllr M McMahon; Cllr N Phillips; Cllr J Preedy; and Cllr S Wilson.The informal Working Group mode of working has enabled members, and theofficers who provide support to them, to work through and plan the issuesneeded to be considered at each stage. The Working Group held its first meetingon the 12 July 2006 which mapped out the number of meetings required and thestages of the review that this report considers (appendix 4).The review was carried out under the Local Government Act (LGA) 2000, Section2 and 21. Section 2 sets out the power of the local authority to have power to do“anything to achieve the promotion or improvement of the; economic well-beingof their area; social well-being of their area; and environmental well-being of theirarea in relation to or for the benefit of the whole or any part of a local authority'sarea; or all or any persons resident or present in a local authority's area”. Section21 sets out the power of local authority overview and scrutiny committees to“make reports or recommendations to the authority or the executive on matterswhich affect the authority’s area or the inhabitants of that area.”Report StructureThe Alcohol Designated Public Place Order scrutiny review was mapped out asdetailed below (figure 1). The first meeting established the background to thereview and set the terms of reference, work programme and planning of theproject for the review. The following meeting involved the Working Groupassessing the level of support for the concept of an Alcohol Exclusion Zone(AEZ) from stakeholders and the public perceptions survey; and enabled theWorking Group to take part in debate; questions and answer session of the6

elevant stakeholders, which forms part of their evidence gathering for thisreview. The following stage involved Site Visits of local authorities that had AEZin place either using a targeted hot-spot or a whole Council area approach. Thefinal two meetings provided an opportunity for the Working Group to develop theirfindings and determine their recommendations based on the evidence collected.What are the desired outcomes?The desired outcome from the review was to conduct an objective investigationinto the concept of an Alcohol Exclusion Zone using the Alcohol DPPO in theNuneaton and Bedworth Borough Council area; considering the evidencerequired to: justify the creation; successes factors and lessons from failures ofother councils in establishing and enforcing an Alcohol DPPO.The outcome objectives of the review therefore included: -7

• Overview of what an Alcohol Exclusion Zone is and the County Counciland Police proposal for a proposed area to be called an Alcohol ExclusionZone in NBBC• Investigation into other Councils use Alcohol Exclusion Zone• Overview of the processes involved in creating an Alcohol Exclusion Zone• Implementing and developing relevant recommendations to fit NBBC fromthe Warwickshire’s “Calling Time on Alcohol Related Harm Strategy”It was specified that the review may include detailed investigation and discussionof areas of the Borough where Alcohol Exclusion Zones could be potentiallybeneficial.What Methodology/Approach was used?The methodology used in this review to make enquiries and gather evidenceinvolved:• Desk based review of documentation• County Council and Warwickshire Police Alcohol Exclusion Zonesproposed area based on police statistical evidence (appendix 6)• Public perceptions survey of Alcohol Exclusion Zones and suggestedareas (appendix 8)• Participatory Witness Forum allowing questions and answers betweenwitnesses (appendix 5)• Site visits and familiarisation with the Alcohol Exclusion Zones in otherCouncils (appendix 9-11)• Alcohol Exclusion Zones process• Written evidence• Research, both quantitative and qualitativeNational Statutory and Local Policy ContextThe Crime and Disorder Act (1998) placed a requirement on local authorities andthe police to conduct local crime audits and devise strategies to reduce identifiedproblems. Other agencies such as police authorities, health authorities, localstatutory and voluntary bodies work together in partnership with the police andlocal authorities to implement these strategies through the Nuneaton andBedworth Safer Communities Partnership (NABSCOP).Alcohol related crime and disorder has a major impact on the quality of life ofmany people. It is associated with a wide range of offences ranging from minorpublic order offences, which are anti-social by nature, through traffic offences,minor assaults, serious assaults to murder. The Government is determined toassist CDRP (NABSCOP) in tackling these alcohol-related problems by givingthe police and local authorities the support and powers required to deal with it.8

The Home Office Action Plan on alcohol related crime, launched in August 2000set out the key priorities for tackling alcohol related crime, disorder and nuisance.In launching the Action Plan, the then Home Office Minister Charles Clarke said:"Public drunkenness can give rise to serious problems of disorderly conduct,nuisance, criminal damage and alcohol-related assaults, particularly in theproximity of licensed premises at closing time. In addition, it can increase fear ofcrime and so reduce the quality of life for many people. This is clearlyunacceptable."– Charles Clarke MP, then Home Office MinisterThe action plan contained several measures to address these problems includingproviding local authorities with adoptive legislation through the Police andCriminal Justice Act 2001. The provisions contained within the Act werespecifically designed to address the problems of alcohol related crime, and arebuilt upon the experience of local authorities who have previously adopted theHome Office model byelaw 1: Consumption of intoxicating liquor in designatedplaces.Sections 12 -16 of the Police and Criminal Justice (CJP) Act 2001, which cameinto effect on 1 September 2001, allow local authorities to adopt powers todesignate areas which have known anti -social drinking and nuisance associatedwith them. The legislation provided by the Police and Criminal Justice Act 2001 isintended to reduce the incidence of public disorder and public nuisance fromalcohol consumption in Designated Public Places. As a result using Section 13 ofthe CJP Act 2001 it is for NBBC to be satisfied that public nuisance, annoyanceor disorder has been associated with public drinking in that area proposed andthat an Alcohol Exclusion Zones is appropriate. If an Alcohol Exclusion Zoneswas put in place this would empower the police under Section 12 of the Act todeal with anti-social drinking in areas that have been designated by NBBC underSection 13 of the Act. The police will have the power to require a person, in sucha place, not to drink alcohol in that place where the officer reasonably believesthat the person is, has or intends to do so, and to surrender any alcohol oralcohol containers (other than sealed containers) in that persons possession, itwill not be an offence to drink alcohol in a designated public place, but failure tocomply will be an arrestable offence.The Local Authorities (Alcohol Consumption in Designated Public Places)Regulations do not place a requirement on the NBBC to conduct a formalassessment, over a given period, of the nature of the problem, as was the casewith the byelaws procedure. Whether or not a designation order is appropriatewill be a matter for local judgment, based on the circumstances applying. Theregulations require NBBC to consult with the police prior to making a designationorder (Regulation 3(1)(a)). This is to seek the views of the police on the nature ofthe problem and the appropriateness of adopting the Section 12 powers,9

ecognizing that it will be the police who will have the responsibility for enforcingthe resulting restrictions on public drinking. Other bodies to be consulted before adesignated Alcohol Exclusion Zones is made includes: neighbouring localauthorities where a designated Alcohol Exclusion Zones covers an area on theboundary; licensees within area affected by Alcohol Exclusion Zones; andreasonable steps to consult land owners in designated Alcohol Exclusion Zones.The Nuneaton and Bedworth Safer Communities Partnership (CDRP) publishedCrime & Disorder and Drug Misuse Strategy 2005-2008 features Alcohol relatedcrime and disorder, this is consistent with alcohol-related crime featuringprominently in over “70% of Crime and Disorder Strategies.” 1 In regard to theNuneaton and Bedworth CDRP Strategy stating “alcohol contributes significantlyto crime levels”, the inference is that the crime being referred to would either nothave happened or would not have reached the level of severity that it actually didif the offender had been sober. Alcohol is best regarded as being one link in thecausal chain rather than the sole operating cause. Clearly, for example, there isnot an automatic relationship between alcohol and violence. Whether or not theone gives rise to the other depends on a range of factors, personal, interpersonal,situational, and cultural. A Home Office report states: “much anecdotalevidence [exists] of a link between alcohol and various types of crime, [although]there are no official statistics collected systematically making it impossible to gaina true picture of the role of alcohol in crime… there is no evidence that varioustypes of crime are actually caused by alcohol consumption..” 2The Home Office report contradicts the governments policy direction of travel forcombating alcohol related crime for two reasons:– The report flatly contradicts the whole basis of government policy asoutlined in statements such as the one quoted above– The report flies in the face of the mass of evidence from many countriesshowing that alcohol is indeed a major factor in some kinds of crime, aswell as a range of other social problems.Nevertheless the types of offences which can be anecdotally related to alcoholcan be distinguished as follows:– Alcohol-Induced Offences: Offences, induced by alcohol, which result incriminal behaviour e.g. assault, criminal damage etc. A mixture of cultural,social and personal factors in addition to situational ones influencesaggressive behaviour. The “escalation” from a minor altercation into amajor incident of public disorder can be influenced by the amount of1 Deehan, A. and Saville, E. (2000) Crime and Disorder Partnerships: Alcohol-Related Crime and Disorderin Audit and Strategy Documents, Home Office Briefing Note 9/00, Policing and Reducing Crime Unit,London: Home Office.2 Deehan, A. and Saville, E. (2000) Crime and Disorder Partnerships: Alcohol-Related Crime and Disorderin Audit and Strategy Documents, Home Office Briefing Note 9/00, Policing and Reducing Crime Unit,London: Home Office.10

alcohol consumed, the dis-inhibiting effects of alcohol on those associatedwith the event and the social context within which the event takes place.– Alcohol-Inspired crime: Offences, which are driven by the need to usealcohol e.g. shoplifting to obtain drink or to sell goods in exchange for,drink. These offences are more commonly associated withdependent/street drinkers.– Alcohol-linked crime: Offences where alcohol is a contributory factor e.gas “dutch courage”; a trigger for aggression or as an excuse for offendingbehaviour.From the research undertaken it can be suggested that a consensus exists withthe: NBBC local resident who responded to the public perception survey; theperception of the would-be visitor; Town Centres and Parks/Amenities Officers;the CDRP; and Police, that what matters most is simply: that offences wouldnot be occurring in the range and numbers that they actually do, and at thetimes and places that they do, if it were not for the perceived uncontrolledsale and consumption of alcohol.County Council and Police Proposed AreaThe Alcohol Exclusion Zones - Working Group met on the 14 August 2006 as aninformal participatory forum for the purpose of evidence gathering from thestakeholder witnesses. Witnesses at the meeting were invited to discuss thereport, commissioned by the Working Group, produced by the County Council inpartnership with the Police to identify possible areas where an Alcohol ExclusionZones using the Criminal Justice and Police Act 2001 would add most value(appendix 5). The report highlighted Nuneaton Town Centre as benefiting froman Alcohol Exclusion Zones.The area to be covered within the proposed Alcohol Exclusion Zones is detailedin appendix 6 and covers:– Abbey Gate,– Abbey Street,– Back Street,– Bond Gate,– Bond Street,– Bridge Street,– Church Street,– Corporation Street,– Coventry Street,– Harefield Road,– Leicester Road,– Market Place,– Newdegate Street,11

– Newtown Road,– Queen’s Road,– Stratford Street,– Vicarage Street.Process and ProcedureThe process and procedure leading to the implementation of an AlcoholExclusion Zones should be followed as detailed by the Government’s Crimereduction website 4 key steps: -1. Evidence2. Consultation3. Publicity4. Designation Order1) EvidenceLocal authorities should first make assessment about the level of the anti-socialdrinking and disorder in areas proposed for designation. Crime Reduction andDisorder Partnerships and the police may be able to provide some level ofevidence or history about the extent of the disorder or nuisance in these areas.The level and detail of the assessment and evidence required is not as extensiveas previously required for establishing a byelaw. However, local authorities willhave to be satisfied that the proposed area for designation has a history of antisocialdrinking and disorder.2) ConsultationOnce the Local authority is satisfied with the assessment and evidence gatheredon the proposed they should consult the police, any parish or communitycouncils, licensees, land owners or occupiers and receive representations aboutareas that will be affected by the designation order.It may be impractical to consult individually with all land owners and occupiers inthe proposed area , therefore public consultation notices in the local press wouldbe acceptable as part of the process3) PublicityBefore making an order, the local authority should publish in the local press, anotice identifying areas proposed for designation set out the effect of an orderbeing made in relation to that place; and, invite representations as to whether ornot an order should be made.Local authorities should not make an order until at least 28 days after thepublication of the notice (See local authorities Regulation 5).4) Designation Order12

Once the process is complete, the local authority should make an order under13(2) of the Criminal Justice and Police Act 2001. The Order should include allareas affected by it and the date it came into effect Copy of the order should besent to the Home Office( see contact address). The OSC has been delegated togather the evidence, review the need, and monitor the outcome.13

Policy Review and Development - Alcohol DesignatedPublic Place OrderWhat is an Alcohol Exclusion ZonesAn Alcohol Exclusion Zones is a name given to an Alcohol Designated PublicPlace Order, which is a designated area in which the Police have additionalpowers at their disposal when dealing with alcohol possession and consumptionon the street. Within a designated area it is an offence for any person to drinkalcohol after being required by a police officer not to do so. The police have thepower in a Alcohol Exclusion Zones to confiscate and dispose of any alcohol andcontainers if they reasonably believe that the person is, has been, or intends toconsume alcohol and cause a nuisance in that place. If a person does notcomply with a police officer’s request without reasonable excuse then anarrestable offence has been committed. 3The Home Office has not provided guidance on the prescribed wording or formatof signs in areas that have been proposed for designation. However, theGovernments Crime Reduction website service suggest that local authoritiesadopt signs used in the previous byelaws which show glass or beer bottles but3 www.crimereduction.gov.uk14

with the removal of an intersecting diagonal red line as this can give theimpression of a ban, and raises false public expectation. 4The regulations state that “A Local Authority shall cause to be erected in theplace identified such signs as they consider sufficient to draw the attention ofmembers of the public in that place to the effect of the Order.” 5 It is therefore upto the individual Local Authority to decide upon the contents of their signs.Where would an Alcohol Exclusion Zones add most value?County Council and Police Proposal for NBBC areaThe report provided by the County Council and Police gives an analysis ofalcohol-related crime and disorder in Nuneaton and Bedworth Borough for themonths July 2004 to June 2006 (2 year period). The report considers bothalcohol related crimes (where alcohol has been identified as a contributory factorin the offence) and also alcohol related disorder (non-crime incidents such asnoise and nuisance behaviour). It identifies specific problem locations andpremises and, goes on to propose an Alcohol Exclusion Zones in Nuneaton towncentre based on the findings of the report (appendix 5). Although the DistrictCommander informed the Working Group that he would be supportive of bothNuneaton Town Centre and Bedworth Town Centre as a proposal for an AlcoholExclusion Zones (see evidence submitted by District Commander in appendix 4and his comments in the Site Visit report in appendix 12).However, desk based analysis of the report and statistical evidence base,indicated that the proposed area was not based on evidence that street drinkingwas responsible for the reported Crime and Anti-Social Disorder (see chapter onAlcohol Related Crime and Disorder Literature Review for critique of PoliceStats). Further information was requested from the County Council and Policereport authors to indicate the prevalence of street drinking incidents containedwithin the Police incidents database, this supplementary information was thenincluded as an appendix to the original report. The supplementary appendixreported solely on street drinking; and indicated street drinking highestprevalence was in the Nuneaton and Bedworth town centres with 28 incidentsbeing recorded between July 2005 and June 2006. Although the count of streetdrinking incidents throughout Nuneaton and Bedworth area during the period July2005 to June 2006 was 146 incidents, the report identified the highest prevalenceof street drinking within the identified town centres hot-spots as totaling 28incidents, which is 19% of the total street drinking incidents over the year. These28 incidents were indicated as hot spots by a count of the prevalence of incidentsby street name, and are as follows:4 www.crimereduction.gov.uk5 Statutory Instrument 2001 No. 2831: The Local Authorities (Alcohol Consumption in Designated PublicPlaces) Regulations 200115

Nuneatono Queens Road = 7 incidentso Abbey Street = 6 incidentso Harefield Road = 5 incidentso Kingswood Road = 4 incidents Bedwortho King Street = 6 incidentsThe report also indicated that the parks and open areas do not appear to be aproblem with street drinking as very few incidents have been reported (appendix7). From this analysis it can be said that the majority of alcohol street drinkingincidents were spread out over the NBBC area. This is supportive of the publicperception survey findings, and the Housing, Parks, CCTV Officer reports.Residents and Council Services Proposals for NBBC areaThis information contained within this section was obtained from the PublicPerceptions Survey which was advertised in the local media, and published onthe internet (appendix 6) from the 15 July 2006 finishing on the 30 September2006. The Survey received a response from 204 persons.16

The survey asked two closed ended questions, with two supplementary openended questions in order to explore the respondent’s answers to the two closedended questions in detail (appendix 8). Closed ended questions can be easilyquantified into graphs for visual interpretation of figures, although open endedquestions require much more analysis. The questions and the responses aregiven below:Question 1. Should people be banned from drinking alcohol outside oflicensed premises in the town centres, parks and openspaces?80%70%69%60%204 Responses50%40%30%27%20%10%0%Should people be banned fromdrinking alcohol outside oflicensed premises in the towncentr, parks and open publicspaces?Yes, there should bea complete banacross the BoroughYes, there should bea ban in targetedareas of alcohol4%No, people should beable to consumealcohol anywhere?69% 27% 4%Supplementary Question. If you ticked: “Yes, there should be a ban intargeted areas of alcohol related crime”, have you any suggested locationsfor consideration and is there any evidence to support this suggestedarea?The responses to this question were analysed using a count of the number oftimes a certain area was explicitly identified by each respondent. There was a41% (83) response rate to this question out of a total return of 204 completedsurveys, and 75 areas were able to be identified as a response from 1 or morerespondent(s). The areas identified are as follows:1. Abbey Church Area X 1 PERSON2. Abbey Recreation Ground X 1 PERSON17

3. Abbey Ward X 3 PEOPLE4. Across the country X 1 PERSON5. All Parks X 6 PEOPLE6. All Parks during the day X 1 PERSON7. Ansley Road X 1 PERSON8. Arbury View Estate X 1 PERSON9. Attleborough Green X 1 PERSON10. Avenue Road X 1 PERSON11. Aviemore To Greenmoor Road (Catgallows) X 1 PERSON12. Bedworth Cemetery X 1 PERSON13. Bedworth Town Centre X 1 PERSON14. Beverley Ave X 1 PERSON15. Blackatree Road X 1 PERSON16. Blackhorse Road X 1 PERSON17. BraceBridge Street X 1 PERSON18. Braemar Way Garage Sites X 1 PERSON19. Bramble Close Play area X 1 PERSON20. Bulkington Recreational area X 1 PERSON21. Cemertaries X 1 PERSON22. Childrens play area X 2 PEOPLE23. Chilvers Coton Area X 2 PEOPLE24. Coton Park X 1 PERSON25. Courtalds Recreation Park off Marlborough Street X 1 PERSON26. Crowhill Park X 2 PERSON27. Duke Street X 1 PERSON28. Edward Street X 3 PERSON29. Fife Street, Clarence Street X 1 PERSON30. Frensham Drive X 4 PEOPLE31. Galley Commons X 2 PEOPLE32. Garages X 2 PEOPLE33. Glebe Ave X 1 PERSON34. Goodyers End Lane X 1 PERSON35. Grass areas X 2 PEOPLE36. Health End Road X 2 PEOPLE37. Johnson Road Play Area X 1 PERSON38. Jubilee Recreactional Field X 1 PERSON39. Kereseley Village X 1 PERSON40. Kingswood Road X 2 PERSON41. Kingswood Ward X 1 PERSON42. Lincoln Ave X 1 PERSON43. Longford Park (outside Cost Cutter) X 1 PERSON44. Manor Court Road X 2 PERSON45. Marlborough Road X 1 PERSON46. Merlin Avenue X 1 PERSON47. Middlemarch Recreation Ground X 1 PERSON48. Newdigate Park X 1 PERSON18

49. Norman Avenue X 1 PERSON50. Nuneaton Common - Salisbury drive X 1 PERSON51. Nuneaton Town Centre X 7 PERSON52. Open Spaces X 1 PERSON53. Orkney Close To Heath End Road Pathway X 1 PERSON54. Outside shops X 2 PEOPLE55. Park Road X 1 PERSON56. Pauls Land Recreation Area X 1 PERSON57. Ploughhill Road X 1 PERSON58. Pool Bank Street Recreation Ground X 2 PEOPLE59. Queen Elisabeth rd X 1 PERSON60. Queens Road X 2 PEOPLE61. Recreation Areas X 2 PEOPLE62. Riversley Park X 6 PEOPLE63. Sephton Drive X 1 PERSON64. Sherbourne Ave X 1 PERSON65. Silver Birch Ave X 2 PEOPLE66. Smorral Lane X 5 PEOPLE67. Stockingford Area/Park X 3 PEOPLE68. Thortons Way X 2 PERSON69. Town Centres X 4 PEOPLE70. Trafford Drive X 1 PERSON71. Vale Vies Park X 1 PERSON72. Wembrook Ward X 2 PEOPLE73. Westbury Road X 1 PERSON74. Whittleford Area/Park X 3 PEOPLE75. Woodlands Park X 1 PERSONThe areas proposed from the public perceptions survey support the assumptionswhich can be made from the Street Drinking incidents within the County Counciland Police proposed area report.19

Question 2. Have you (or does your organisation know of parts of thecommunity that have) suffered as a direct result of drinking in thetown centres, parks and open spaces?No 35%AS OF 25 SEPTEMBER 2006Yes 65%Supplementary Question. If you ticked: “Yes” could you provide a summary?Desk based analysis of the responses to this question was undertaken with theappropriate methodology being developed to show the different types of AntiSocial Beahviour (ASB) being reported in the Survey. The table below wasadapted as a framework for identifying the number of ASB typologies covered inthe incidents reported in response to this question; and it provides a sample ofthe responses.This table has been adapted from the Home Office published list of ASB typology(appendix 12); and provides an appropriate method for measuring the typology ofASB incidents reported as it that “has been based on a range of anti-socialbehaviour definitions currently in use, including those detailed in the CDRPAudits (2001) or Strategies (2002) and definitions used in Home Office fundedresearch and by other government departments. It also draws on theexperiences of anti-social behaviour identified by respondents in the 2000 BritishCrime Survey (BCS)… [providing the Working Group] with a practical frameworkand guide to the main categories of ASB that are widely accepted to be antisocialby both practitioners and the public.” 66 Home Office, Defining and measuring anti-social behaviour, 2004, p.6(http://www.homeoffice.gov.uk/rds/pdfs04/dpr26.pdf)20

Defining and measuring anti-social behaviour relating to drug/substance misuseMisuse of public space Disregard for community/personal well-beingActs directed at peopleEnvironmental damageDrug/substance misuse &DealingEG: “There are large groups ofyoung people 20+ aged from 16- 18 yrs - who drink from 8.30until late - sometimes as late as4.30am. As they are often highon both drink and drugs theymake a lot of noise.”Street drinkingEG: “i live just a few yards fromthe off licence at hill top andyouths are always drinking inthe street and then throwingempty cans onto the street andpeoples gardens.”Sexual actsEG: “I did report anotherincident to the Police - youngergirls 14 slept in the park witholder 18+ boys. I doubt whetherthe parents knew where theirchildren were. The policearen't able to respond toincidents - due to staffshortages. I have spoken toPolice Support Officers - butthey rarely patrol the area whenneeded - The Officer explainedthat they finish work at 10pm.”NoiseEG: “There are regularly largegroups of youths going downthere with cases of beer undertheir arms, the noise of a Friday/ Saturday can be incredible.This is supposed to be a kidsplay area. I think most peoplehave given up and just pull thecurtains and turn the TV up...”Rowdy behaviourEG: “Our local park/field on ourestate has large groups ofyoung people shouting andbanging on the swings late atnight with evidence of drinkingcans of larger.”Nuisance behaviourEG: “drunk teenagers causingtrouble, riding motorbikes,andleaving empty bottles and canseverywhere. Also empty bottlesand cans thrown into the river orleft lying around, drunk youthsswearing and being generalnuisance”Intimidation/harassmentEG: “Intimidation of elderlypeople especially in WestburyRoad. Racial abuse andviolence to shopkeepers. Noisy,rowdy behaviour on many of thestreets, into the early hours ofthe morning. EmergencyServices being called outsometimes for little or noreason.”Criminal damage/vandalismEG: “we have had a lot oftrouble with violence andvandalism in the whittleford areaand a lot of the youths involvedhave have been drunk or hadalcohol on them at the time ofthese incidents”Litter/rubbishEG: “Goodyers End Lane wehave suffered a huge increasein Unruly (and frequentlyintimidatory)behaviour CriminalDamage, Defecation/Urination,general littering in the area all ofwhich seem to be alcoholfuelled/related.”21

Alcohol Related Crime and Disorder Literature Review –Variation in Police and Pubic perceptionsA Home Office study found: “that of 169 arrestees, 59 per cent were consideredto be intoxicated… Around a half (49%) of intoxicated arrestees displayed somelevel of non-compliance (including complying but in a hostile manner), comparedwith a tenth (11%) of those who were not intoxicated… between 10.30pm to3.00am the majority of arrests are for alcohol related offences… there is thepotential for routine incidents of public nuisance to escalate to more serious,especially violent, offences as a result of intoxication of the offender… involveyoung males between the ages of 18 and 30 years… occur in a very small,segmented entertainment area of city or town centres.” 7The following quote provides a concise summary of the issues that combine tomake up the crime and disorder in the late-night economy: “Nightlife areas arethe sites of intense social interaction where people converge in space and time inorder to fulfill their entertainment needs, exercise choice, enjoy the excitingambience and, in a small minority of cases, exploit criminal opportunities… Thenature and volume of human activity is influenced by a number of factorsincluding the distribution of trading hours in respect of food, drink andentertainment outlets, the spatial density and capacity of such outlets, theavailability of public transport, the influence of weather and seasonality and thetiming of public events and festivities.” 8The quotes above, one from the Home Office and the other from Case Studyresearch, provide an understanding to the logic behind the County Council andPolice joint report to the Working Group that proposed Nuneaton Town Centre asbenefiting the most from an Alcohol Exclusion Zones. The County Council andPolice joint report conflicted with the public perception survey’s proposed areas,which were based on public perceptions of alcohol related crime and disorder. Asthe quote shows crime and disorder can be attributed to areas where there are ahigher number of licensed premises, plus the combination of spatial and capacityof the night-time economy can be seen to accompany a rise in crime anddisorder. What proportion of these offences are ‘caused’ by alcohol is difficult toassess due to two main reasons: firstly the method used by the police to record acrime or disorder incident shows that they are unable to attribute or tag to thatincident an alcohol marker or code for future audit usage; and secondly a largenumber of cases go unreported, as demonstrated with “less than a quarter ofviolent offences that result in treatment at Accident and Emergency Departments7 Deehan A et al: Drunks and Disorder: processing intoxicated arrestees in two city-centre custody suites.Police Research Series. Paper 150, Home Office 2002http://www.homeoffice.gov.uk/rds/prgpdfs/prs150.pdf8 Elvins, M. & Hadfield, P, West End 'Stress Area' Night-Time Economy Profiling: A DemonstrationProject: Final Report to the City of Westminster, Department of Applied Social Sciences: University ofDurham (2003)22

eing known to police.” 9 Police statistics therefore represent a substantial underestimateof the size, and location of the problem of Alcohol related crime and antisocial behaviour disorder; and more specifically when looking into a detailedanalysis of the prevalence of street drinking and the occurrence of associatedCrime and Disorder as a result of that street drinking no evidence can beascertained statistically for the associated crime and disorder.58% 10 of Councils who have used the Alcohol Exclusion Zones have included atown or city centre in their Alcohol Exclusion Zones. Police statistical evidence ofall Alcohol Related Crime and Disorder will always identify them areas asbenefiting from a Alcohol Exclusion Zones. The Police statistical and anecdotalevidence is weighted in favour of the town and city centre areas as they focustheir policing resources within them compact areas, such as, the more numbersof licensed premises there are within a compact area the greater chance of crimeand disorder. Thus detection and reporting would be more prevalent in themareas due to the resources invested. This then becomes a self fulfilling prophecy.The variance between the public perception of Crime and Anti Social Behaviourdisorder resulting from alcohol consumption could be as a result of Sgt D.Williams assessment of the public lack of knowledge of the Criminal Justice andPolice Act 2001 and the terminology used within the public perception survey(appendix 13). However, the press release; survey literature; and the on-lineinternet survey literature all attempted to define the terminology used and ensureits consistency with terms previously used by all CDRP partners, which includesthe police (appendix 7).The public perception survey indicates a different view of the areas wherealcohol related crime and disorder occurs as a result of street drinking. A morelikely explanation for the different view between the County Council and Policeproposals and the Public proposals is as a Home Office report states: “A largeproportion of ASB incidents is likely to be unreported due to apathy, tolerance ofthe behaviour, fear of repercussions of reporting or lack of knowledge of where toreport.” 11 The on-line survey opened a channel of communication with the publicto submit their concerns anonymously. Also NBBC Security Officers CCTVsurvey indicated that over a period of a month 87 incidents of street drinking hadbeen witnesses in NBBC area identified by the CCTV officers; of which 56incidents (64% of total incidents) had been witnessed in Parks and Recreationalareas; whereas 31 incidents (36% of total incidents) had been witnessed in bothNuneaton and Bedworth town centres combined (appendix 14). Some of the9 Warburton AL, Shepherd JP, An evaluation of the effectiveness of new policies designed to prevent andmanage violence through an interagency approach. A final report for WORD (Grant number R/98/037),February 200410 Excel based analysis of the published Alcohol DPPO online:http://www.crimereduction.gov.uk/alcoholorders/alcoholorders09.htm11 Home Office, Defining and measuring anti-social behaviour, 2004, p.3(http://www.homeoffice.gov.uk/rds/pdfs04/dpr26.pdf)23

areas suggested in the public perception are supported by NBBC Parks andRecreation Officers (appendix 5); and CCTV Security Officers (appendix 13).Alcohol Designated Order Site Visit NotesThe site visits were identified by: Working Group Councillor knowledge ofCoventry City Council long established Alcohol consumption restrictions since1991 using the bye-law mechanism for identifying and enforcing restrictions preCJP Act 2001, and then using the Alcohol Exclusion Zones post CJP Act 2001;Scrutiny Officer advice to visit Cannock Chase District Council which is acomparative benchmarking District Council to Nuneaton and Bedworth BrorughCouncil; and Nottingham City Council due to its high crime statistics and its useof the Alcohol Exclusion Zones as a tool amongst its tool-kit to tackle and reduceAlcohol related crime and disorder.The site visits and Working Group Delegation:6 September 2006: (11:15 pickup)1200-14:00;Lord MayorHospitality Suite;Coventry City Council Site Visit• Signage?• How it works?• Enforcement issues?• Treatment?• Lessons learnt?Event organiser: Sue Carley(02476831847)Principle Environmental Officer:Niki Castle Dine(024 7683 2222)Enforced in: City Centre; andHillfields (Extending to whole CityCouncil area Order – November2006)Order Created: 19/12/03Working Group delegation: CllrJ Preedy; Cllr M McMahon; StuartCopeland; Sgt David Williams7 September 2006: 10:30am;Civic Offices, Beecroft Road(Parking Available).Cannock Chase Council Site Visit• Signage?• How it works?• Enforcement issues?• Treatment?• Lessons learnt?Event organiser: Karen Sulway(01543464480)Senior Licensing Officer: SeanO’Meara (01543464244)Enforced in: Rugelery TownCentre; Hednesford Town Centre;Cannock Town Centre; FernwoodDrive & Green; Lane areasRugeleyOrder Created: 01/04/05Working Group delegation: CllrB Hancox; PC Lloyd Walton;Stuart Copeland8 September 2006: 11:00am;Clarendon conference roomLawrence House, Talbot Street;Nottingham City Council Site Visit• Signage?• How it works?• Enforcement issues?• Treatment?• Lessons learnt?Licensing Service Officer: TimCulson (01159156781)Enforced in: City Centre; andHyson Green (Peri-Urban - TownCentre)Order Created: 01/04/06Working Group delegation: CllrJ Clarke; Cllr J Preedy; Cllr SWilson; Cllr B Hancox; Sgt DavidWilliams; Stuart Copeland24

Coventry City Council Site VisitWorking Group delegation: Cllr J Preedy (NBBC Working Group); Cllr MMcMahon (NBBC Working Group); Sgt David Williams (N&B Police rep); andStuart Copeland (Overview and Scrutiny Support Officer)Site Visit Witnesses: Nicola Castledine (Principal Environmental Health Officer);(Coventry Police) Clr Kevin Foster (Leader of Council); Cllr Ken Charley; CllrAndy Matchett; Alan Bennett, Head of Environmental Health; Andrea Clemons,Community Safety Team; Paul Hargrave, Community Safety Team; Sue Moore,Acting Principal Licensing Officer; and Sgt Bill Dagnan;Notes:Nicola Castledine introduced the concept of an Designated Public Place Order(DPPO) as coming from Criminal Justice and Police Act 2001, which gives powerto the Local Authority to designate public places: if the Local Authority is satisfiedthat nuisance, annoyance or disorder has been associated with alcohol in thearea.Nicola then went on to inform the Working Group delegation that the effects ofthe DPPO are: that it is an offence to drink alcohol after being asked by a policeofficer to stop; reasonable belief that person has been or intends to drink canrequire surrender of alcohol containers; failure to comply may lead to arrest anda fine of up to £500 on conviction; note it is not an offence to drink in public perse, the aim is to reduce alcohol related anti social behaviour.Nicola explained to the Working Group delegation the process Nottingham CityCouncil went through in: obtaining elected member support; developing anddelivering partnership working; gathering evidence; media support; also theevidence and representation considered. The Working Group delegation wereinformed that the evidence consisted of: Questionnaire; Letters to statutoryconsultees (chief executive of surrounding area and Warwickshire Police ChiefCommander); letters to those who maybe affected in adjacent areas; electedmember bulletin; and web site.Nicola stated that Coventry City Council was currently finalizing theimplementation of a Coventry City Council wide DPPO in order to ensure thatany displacement from targeted hot-spot areas were covered without having togo through the process time and time again; that the police could use theirdiscretion where to target enforcement to add the most value in a City wideOrder; and this followed the example set out by Sandwell MBC. A Follow-upreview will be undertaken in 12 months to monitor it impact.Nicola informed the Working Group delegation that environmental services wereused to contact businesses on their database to ask for their views. Although no25

analysis of police statistics looking in detail at numbers of street drinkers causingAnti Social Behaviour or Crime had been undertaken as there are problems withthe way the police log alcohol related incidents. But due to the success of the firstDPPO areas and displacement the whole City was being put under an DPPO.Cllr Kevin Foster stated that since 1991 Coventry City Council have had a byelaw on the city centre area as the Council felt its residents felt intimidated by thestreet drinking and this was part of the tool-kit to tackle alcohol related crime andanti-social behaviour. The identification of need came from the legislativerequirement to update the existing bye-law from 2001 otherwise the bye-lawbecomes obsolete and the Police support to continue the restriction onconsumption. It was a natural progression from the bye-law to the DPPO. Healso stated that drinking a bottle of wine in the park would not be stopped as itsnot a problem although the council would expect the Police to use the powers tostop Anti-Social Behaviour and Crime offenders who are drinking in DPPO areas.Sgt Dagnan commented that a City Wide DPPO would stop those kids andyoung adults who cross the road and out of the DPPO area; he made it clear thatdrinking alcohol was not illegal in those areas, but where there was a link to Anti-Social Behaviour or Crime then it can be taken away; and there have beenarrests with the issue of a fixed penalty notice at the Police Station. The Policehave been left to target the hot-spots within the current Alcohol DPPO areas andthe proposed City Council wide area will be policed the same. The demand forenforcing the Alcohol DPPO is being managed by ensuring the public realizethrough education in media that reporting street drinking is not an emergency999 call, but should be made to the city's “It's Your Call” anti-social behaviour 24-hour action line on 0845 605 2222. Police Community Support Officers currentlycan ask to surrender alcohol, although they have no power to deal withenforcement other than take the persons details. A Police Officer has the powerof arrest if the person fails to comply with a request to stop drinking, and canoffer an £80.00 fixed penalty ticket at the Police Station or a £500 fine at aMagistrates Court.Alan Bennett informed the Working Group delegation that the DPPO would notapply to a café style highways drinking where the sale of alcohol has beenauthorised explicitly in the licence.Sue Moore stated they had applied for a full licence on all our Parks andRecreation areas, rather than rely on temporary event notices. The Police reportthey can then deal with Alcohol related crime and Anti-Social Behaviour using theLicensing Act. Although the DPPO does help in surrounding area, anecdotally itsbeen said that its reclaimed the streets from street drinkers.See a full presentation and resource pack from Coventry City Council regardingtheir Alcohol Designated Public Place Order in Appendix 9.26

Cannock Chase District Council Site VisitWorking Group delegation: Cllr B Hancox (NBBC Working Group Chair); PCLloyd Walton (Nuneaton and Bedworth Police Rep); Stuart Copeland (Overviewand Scrutiny Support Officer)Site Visit Witnesses: Karen Sulway (Environmental Protection Manager); SeanO`Meara (Senior Licensing Officer); Sgt Dave Ingham (Staffordshire Police -Rugeley Neighbourhood Policing Unit); and PC Michelle Green (Anti-SocialBehaviour Officer – Council/Police Partnership Development Unit)Notes:Karen Sulway informed the Working Group delegation that the Cannock ChaseDistrict Council had achieved Beacon Council status for the work of the Crimeand Disorder Partnership in April 2004. She also stated that the Council had alsoenhanced local skate parks to reduce anti-social behaviour; obtained 11 Anti-Social Behaviour Orders (ASBOs); set up 5 Community Action Teams –providing a coordinated approach to tackle under-age drinking.She also informed the Working Group delegation that Cannock Chase Council(alcohol consumption in designated public places) designated orders used theCriminal Justice and Police Act 2001. They stated that the reason forimplementing the designated orders was as a result of a formal request fromStaffordshire Police, who provided evidence of: Underage drinking; alcoholinfluenced anti-social behaviour; alcohol related violence; and the designatedorder would support the use of the Section 30 - Dispersion Areas as an additionaluseful tool.Sean O`Meara informed the Working Group delegation that the processinvolved: partnership working within the Council and with external agencies; ASBOfficer and Senior Licensing Officer working together; write a report for Council;produce maps; write commentary; determine consultees (Police; Parish andTown Councils; Licensees; Land owners/occupiers; Public – through statutoryadverts); prepare statutory advertisements; design signs; Make Orders (Sealing)(4 March 05); re-advertise in local press as public notice (10 March 05); sendcopies to Home Office Effective from 1 April 05; then undertake an AnnualReview.He also advised the Working Group that the Costs for Adverts (4 x 2) = £982; theSigns and fixing (200) = £3,600 & £1,600; Officer time – CCDC & Police = 120hours. The Council had highlighted potential conflict in the Licensing Act 2003Licensing of public land/town centre; and the effect of premises licenses on orderareas.27

Michelle informed the delegation of the use of ASBOs and the using the stagesof an ASBO in order to deal with repeat street drinking offenders.Dave was concerned about the issue of a Borough wide Alcohol DPPO, stating itseemed like a police state and an encroachment of human rights. He stated theevidence he provided to support the DPPO involved trawling through all Policecases over the previous 6 months reviewing their detailed write up, as currentlythe police data is problematic with no Tag or Code that could be used tospecifically identify the occurrence of alcohol related crime.See a full presentation and resource pack from Cannock Chase District Councilregarding their Alcohol Designated Public Place Orders in Appendix 10Nottingham City Council Site VisitWorking Group delegation: Cllr B Hancox (NBBC Working Group Chair); CllrJeff Clarke (NBBC Working Group); Cllr Sonja Wilson (NBBC Working Group);Sgt David Williams (N&B Police rep); and Stuart Copeland (Overview andScrutiny Support Officer)Site Visit Witnesses: Tim Coulson (Head of Food & Licensing); Judith Irwin(Legal Services); Helen Dickman-Joal (Crime and Drugs Partnership); PeteDoherty (Community Protection Officer); Jane Dykes (City Centre Manager); andJo Andrews (Area Focus Team)Notes:Tim informed the Working Group delegation that under Section 17 of the Crimeand Disorder Act it states “Without prejudice to any other obligation imposed onit, it shall be the duty of each authority to which this section applies to exercise itsvarious functions with due regard to the likely effect of the exercise of thosefunctions on, and the need to do all that it reasonably can to prevent, crime anddisorder in its area.” He stated that this was undertaken in partnership withPolice, Fire Service, NHS, and others through the RESPECT FORNOTTINGHAM BOARD.He also informed the Working Group delegation that the Nottingham Pub/Club-Watch group of licensed premises owners had all agreed to set minimum prices,which has the intended effect reduced alcohol consumption of cheap alcohol.This was not a compulsory initiative as that would be challenged through TradingStandards, it was a voluntary agreement.Jo stated that a Wet Centre had been established on the fringe of the City Centrein order to deal with any displacement from the Alcohol Designated Areas,where social interventions through Health, Social Care and Housing Serviceproviders can be directly accessed. This also minimizes displacement to28

surrounding areas. She stated that there was a link between homelessness andpoor social housing with heavy drinking, and the Council did not feel that theDPPO stick approach was useful unless it had a carrot to encourage social andhealth rehabilitation.Judith explained the evidence Nottingham City Council thought met thelegislative test involved a public survey of where the problem was; and evidencefrom street wardens and police regarding where street drinking was occurring.The Council also consulted with the statutory consultees, but also with majorsupermarkets in the area.She also informed the delegation that enforcement of the DPPO wasundertaken by Community Protection Officers; Neighbourhood Wardens; andPCSOs who all have powers to require the offender to surrender their openvessel containing alcohol. Failure to comply is an arrestable offence, which thePolice would need to be called to deal with. The Chief Inspector of Police has theauthority to delegate this power.Jane indicated that the responsibility of the press informing the public was key tothe success of the implementation and managing the public expectation. Shehighlighted that in the early days the press had caused some problems, but thesehad been resolved through identifying newspapers to feed information to thatcould be trusted to report sensibly. She also indicated that there were 35 signs inuse for the City Centre at a cost of £50.00 per signs, which totaled £1750. Beforethe signs could be erected there was a duty to consult with the HighwaysAuthority, although the legislation does not require a minimum or maximumamount of signage it is at the discretion of the Council.See a full presentation and resource pack from Nottingham City Councilregarding their Alcohol Designated Public Place Orders in Appendix 11.Site Visit Lessons learntThe table below attempts to condense the lessons learnt from the site visits intoa SWOT test. SWOT is an acronym for: Strengths; Weaknesses; Opportunities;and Threats. The initial analysis was completed by extracting the lessons fromthe Scrutiny Officers notes. This was then followed up with the Councillors whoattended the Site Visits brain storming exercise. The results are listed in the tablebelow:29

SWOT Test (Note an Alcohol Designated Public Place Order (DPPO) results in an Alcohol Exclusion Zone being established)Strengths Weaknesses Opportunities ThreatsCoventry CityCouncil – CityWide DPPO Police targetaccording tointelligencethroughout area Evidence included allAlcohol related Crimeand Disorder withinevidence base(including youngpeople) The displacement andsuccess of AlcoholDPPO targeted arearesulted in need for aCity Council wide DPPO. Difficult to provideevidence base Need to manage andeducated publicexpectation City Council is different toDistrictCannock ChaseDistrcit Council– DPPO Hot-Spot areassupported byDispersal Zone Police are able tofocus resourceswithin identifiedarea Much easier toprovide evidencebase Groups can bedispersed withinDPPO Street drinkers areable to step outsidethe DPPO Included all Alcoholrelated Crime andDisorder withinevidence base(including youngpeople) Abel to introduce newDPPOs Displacement of streetdrinkersNottingham CityCouncil –DPPO Hot-Spot areaswith WetCentre forsocialrehabilitation Displacementminimized throughWet Centre Wet Centreprovidesrehabilitation andsocialinterventions Street drinkers areable to step outsidethe DPPO Included all Alcoholrelated Crime andDisorder withinevidence base(including youngpeople) Ability to introduce newDPPOs Constant review of needfor DPPOs City Council is different toDistrict30

References1. Deehan A et al: Drunks and Disorder: processing intoxicatedarrestees in two city-centre custody suites. Police ResearchSeries. Paper 150, Home Office 2002http://www.homeoffice.gov.uk/rds/prgpdfs/prs150.pdf2. Deehan, A. and Saville, E. (2000) Crime and DisorderPartnerships: Alcohol-Related Crime and Disorder in Audit andStrategy Documents, Home Office Briefing Note 9/00, Policingand Reducing Crime Unit, London: Home Office.3. Elvins, M. & Hadfield, P, West End 'Stress Area' Night-TimeEconomy Profiling: A Demonstration Project: Final Report to theCity of Westminster, Department of Applied Social Sciences:University of Durham (2003)4. Home Office, Defining and measuring anti-social behaviour,2004, p.3 (http://www.homeoffice.gov.uk/rds/pdfs04/dpr26.pdf5. Local Government Act 2000 -http://www.opsi.gov.uk/acts/acts2000/20000022.htm6. Statutory Instrument 2001 No. 2831: The Local Authorities(Alcohol Consumption in Designated Public Places)Regulations 20017. Warburton AL, Shepherd JP, An evaluation of the effectivenessof new policies designed to prevent and manage violencethrough an interagency approach. A final report for WORD(Grant number R/98/037), February 20048. www.crimereduction.gov.uk31

Appendix 1: Nuneaton and Bedworth CDRP view to CouncilSummary of Nuneaton and Bedworth Safer CommunitiesPartnership considered views of a ban on ‘Alcohol in PublicOpen Spaces’1.0 Not all partnership members chose to take a view, in somecases because their daily dealings with alcohol and its abuseare not significantly affected by where the drinking occurs;1.2 A wide range of issues were raised by those who did reply,mainly focused on the challenges of enforcing a total ban e.g.Resource issues;1.3 There is also an issue as to which spaces would be designatedas ‘open’ (Council owned land may be readily designated) butwhat about land owned by other parties;1.4 A Warwickshire County wide alcohol reduction strategy hasvery recently been launched with representatives from thePolice, Health Services, Crime and Disorder ReductionPartnerships looking at ways of reducing the damagedone to people’s physical and mental health and to theircommunities by excessive drinking. The strategy will bringtogether Borough and District Councils, the County Council,Police and Emergency Services, Primary Care Trusts andother agencies whose remit brings them into contact withpeople who cause themselves or the community problemsthrough their excessive drinking.1.5 I hope that the above summary of the partnerships replies givesthe Council sufficient material for a considered debate.Chair of Nuneaton and Bedworth Safer Communities Partnership& Warwickshire County CouncillorBob Hicks32

Appendix 2: Warwickshire Police memorandum of evidencememorandumFrom: PS 864 HallTo: CH INSP HewisonOur ref:Date: Wednesday, 05 October 2005Drinking in Public PlacesSirAs you know legislation allows for the nomination of designated areas and for LocalAuthority’s to make such orders.Chapter 2 of the Criminal Justice and Police Act 2001 contains provisions forcombating alcohol related disorder.o Section 12 allows PC to confiscate/dispose of alcohol from personsdrinking in "designated public place"o Section 13 - enables local authority to make an order designating apublic place if they are satisfied (evidence will be needed) that• there is a definite nuisance or annoyance to the public,or• there has been disorderassociated with the consumption of liquor in that place.The procedure is set out in Regulations (S.I. 2831/2001).NB It is not an offence to drink in designated areas - it is an offence to notcomply with police request to stop and surrender drinks containers.33

Confiscation of alcohol from young persons by policeThe Confiscation of Alcohol (Young Persons) Act 1997 as amended by section 155 of the LicensingAct 2003 was introduced to address the problem of under eighteen year olds drinking alcohol on thestreets. Section 1 allows a constable to confiscate intoxicating liquor. The section was amended to beconsistent with section 12 of the Criminal Justice and Police Act 2001 (relating to adults drinkingintoxicating liquor in designated public places). Officers can now seize sealed containers as well asopen containers, as well as the intoxicating liquor they hold, and dispose of both in an appropriatemanner. However, a constable may not under subsection (1) require a person to surrender any sealedcontainers unless he reasonably believes that the person is, or has been, consuming, or intends toconsume alcohol in any relevant place. This is a significant change. Before the amendment onlyopen containers could be dealt with. Where a young person has, for example, a sealed six pack underhis arm, officers should still consider who sold it, and whether there are any child welfare issues, andtake action as appropriate.There is a power of arrest for failing to comply with the requirements of this section.1(1) Where a constable reasonably suspects that a person in a relevant place (see meaningbelow) is in possession of intoxicating liquor and that either-(a) he is under the age of 18; or(b) he intends that any of the liquor should be consumed by a person under the age of 18 inthat or any other relevant place; or(c) a person under the age of 18 who is, or has recently been, with him has recentlyconsumed intoxicating liquor in that or any other relevant place,the constable (or CSO see note (vi) below) may require him to surrender anything in hispossession which is, or which the constable reasonably believes to be, intoxicating liquor or acontainer for such liquor, and to state his name and address.1(1A) But a constable may not under subsection (1) require a person to surrender any sealedcontainer unless the constable reasonably believes that the person is, or has been consuming, orintends to consume, alcohol in any relevant place.1(2) A constable may dispose of anything surrendered to him under subsection (1) in suchmanner as he considers appropriate (nb: officers should follow their own force orders in relation tosuch disposal).1(3) A person who fails without reasonable excuse to comply with a requirement imposed on himunder subsection (1) commits an offence and is liable on summary conviction to a fine notexceeding level two on the standard scale.1(4) A constable who imposes a requirement on a person under subsection (1) shall inform him ofhis suspicion and that failing without reasonable excuse to comply with a requirement imposedunder that subsection is an offence.1(6) In subsection (1) "relevant place", in relation to a person, means-(a) any public place, other than licensed premises or(b) any place, other than a public place, to which the person has unlawfully gained access;and for this purpose a place is a public place if at the material time the public or any section of thepublic has access to it, on payment or otherwise, as of right or by virtue of express or impliedpermission.(vi) Under para 6 of Schedule 4 to the Police Reform Act 2002, a suitably designated communitysupport officer (CSO), has the same powers as a police constable under this section (other than thearrest power).34

Some questions relating to this topic were included in the questionnaires sent out inAugust 2003 when the licensing authority were formulating the licensing policy.Should people be able to drink in town centre parks and open spaces?TradePublicYes, anywhere 6.8% 8.8%Yes, but only in designated areas 39.8% 40.8%No, there should be a complete ban 53.4% 50.4%88 125Pavement Drinking - Some licenses are authorised to set out tables in front oftheir premises within the paved public areas. How happy are you with thisarrangement?TradePublicVery happy 24.1% 19.2%Quite happy 32.2% 42.4%Neither happy nor unhappy 20.7% 17.6%Quite unhappy 8.0% 10.4%Very unhappy 15.0% 8.8%Pavement Drinking - Some UNAUTHORISED licensees fail to supervise theirpremises and allow patrons to spill out on to the public footpaths. How happy areyou with this?TradePublicVery happy 2.3% 4.0%Quite happy 5.7% 5.6%Neither happy nor unhappy 27.3% 25.6%Quite unhappy 29.5% 28.8%Very unhappy 35.2% 36.0%The Licensing Strategy Group's Action Plan (Sub Group of Crime and DisorderPartnership) includes this item to look at to see where there have been definite problemsthat might be resolved by the making of an Order.35

Procedure for Designating Public PlaceBEFORE MAKING ORDERConsult:Police/Parish/Community Council (for the area where the place is located)Police/Parish/Community Council for any nearby area which may be affected bythe designationThe licensee of any premises in the place likely to be affected by the designationOwners or occupiers of land to be identifiedPublish notice in newspaper showing effect of proposed order, allowing 28 daysfor representations.Consider any representations under 1 & 2.ONCE ORDER MADEPublish notice in newspaper giving details.Erect signs in the designated place drawing attention to the effect of the other.Send copy to Secretary of State.NBThe Executive cannot make a decision to make an Order.As a result of a request made to the parks department for information the following areas havebeen raised with issues reported internally. The Nuisance Support Officer has researchedthose areas for supporting information and also added areas to the original list.NBBC & Parks Department SourcesPolice Nuisance Database & StormIncidents(Fig 1 = All 2004 Fig 2 = > 05.10.2005)BEDWORTH1 Johnson Road Play Area Bedworth Reports of nuisance youths (9 – 22)2Newdigate Recreation Ground OffSmorrall Lane BedworthReports of nuisance youths (42 –106)36

3Miners Welfare Park Off RyepieceRingwayReports of nuisance youths (31 – 93)4Bailey Park Open Space Off NuneatonRoad And Marston Lane BedworthReports of nuisance youths (7 – 43)5Keresley Recreation Ground Off HowatRoadReports of nuisance youths (10 – 28)6St. Giles Recreation Ground Exhall OffVicarage LaneReports of nuisance youths (20 – 16)7Heckley FieldsReports of nuisance youths (8 – 4)89Collycroft ParkReports of nuisance youths (15 – 48)Woodlands Road (Blue Park)Reports of nuisance youths (7 – 33)NUNEATON1 Crowhill Road Play Area Nuneaton Reports of nuisance youths (4 – 17)2 Coronation Walk Play Area Reports of nuisance youths (5 – 12)3 Thorntons Way Multi Use Games Area Reports of nuisance youths (21 – 58)4 Riversley Park Nuneaton Reports of nuisance youths (18 – 32)5Jitty From Gadsby Street To TownsendDrive WalkwayReports of nuisance youths (6 – 19)37

6Tiverton Drive Play Area NuneatonRecreation Ground.Reports of nuisance youths (xxx –xxx)7Bulkington Recreation Ground OffBedworth RoadReports of nuisance youths (15 – 22)8Cornish Crescent Recreation Ground OffHeath End RoadReports of nuisance youths (12 – 14)9 Sterling Way Play Area By Ashridge Close Reports of nuisance youths (6 – 3)10 Greenmoor Road Recreation Ground Reports of nuisance youths (31 – 26)11Stubbs Pool Off Cedar Road And GreenLane NuneatonReports of nuisance youths12 Auden Close Play Area Reports of nuisance youths (46 – 81)13 Vale View Open Space Reports of nuisance youths (19 – 39)14 Garnette Close Open Space Reports of nuisance youths (8 – 15)15Sherbourne park (Sherbourne Avenue)Reports of nuisance youths (67 – 189)161718Westbury Road (Stockingfordrecreation ground)Reports of nuisance youths (39 – 123)Queen Elizabeth Road park/BucksHill Reports of nuisance youths (22 –47)Etone Fields via Clevely WayReports of nuisance youths (26 – 19)38

19 Jubilee sports centreReports of nuisance youths (48 – 68)20Pauls LandReports of nuisance youths (10 – 52)21Frensham Drive (Helicopter park)Reports of nuisance youths (51 – 106)22Conway Close Reports of nuisanceyouths (9 – 6)39

Crimes involving bottles / glassesI have made a search of recorded crimes from 01.01.2003 to year to date(26.09.2005) where a bottle or glass is mentioned in the Modus Operandi.2003There were a total of 29 none reported for Bedworth Town Centre, 19 wererecorded in Nuneaton Town Centre. 17 of those between 23:00 – 03:00 focusingin and around licensed premises as could be anticipated.2004There were a total of 41, 2 reported for Bedworth Town Centre, 19 were recordedin Nuneaton Town Centre. 16 of those between 23:00 – 03:00 focusing in andaround licensed premises as could be anticipated.2005There are a total of 27 (YTD), 2 reported for Bedworth Town Centre, 10 recordedin Nuneaton Town Centre all of those between 19:00 – 03:00 focusing in andaround licensed premises as could be anticipated.Excluding those already mentioned in and around licensed premises it wouldappear none of the others including one resulting in murder might have beenprevented by the implementation of those areas being designated as alcohol freezones.PROMIS dataThere is a new category for Incident recording called “Street Drinking” this wasnot available prior to 2005. There have only been 3 incidents recorded on thedistrict, none of them in either of the town centre’s this year to date.The figures below indicate the level of violence within the two town centres overthe past two years.Nuneaton Public Order Assault Police ABH S20 GBH S18 GBH10/2003 – 9/2004 16 22 200 15 1110/2004 – 9/2005 83 19 163 9 10Bedworth Public Order Assault Police ABH S20 GBH S18 GBH10/2003 – 9/2004 7 13 58 2 010/2004 – 9/2005 4 3 55 2 440

Town Centre Management - InputIn addition to all the crime aspects of a drinking in the street ban, there are alsothe following considerations:* Appearance of town centre’s - cleansing is already a problem and withthe culture of drinking in the street empty cans and bottles are left in variousplaces (other than bins) giving an appearance of being untidy and unsafe.* Injury - allowing alcohol in the street encourages more bottles in thestreet. These are left lying around and many get broken. This is an additionaldanger broken glass is difficult to clean up especially on block roadways in thetwo town centre’s this can lead to additional injuries, people, especially children,falling and cutting themselves.* Image - Visitors to the town as well as locals see people walking aroundthe town centre’s with alcohol in their hands give the perception the town centre’sare not safe and cared for. We are promoting a family friendly town and seeingpeople drinking in areas (other than those allowed) does not send out the rightmessage. It does not encourage people to return and can leave the town centrewith a negative image.* Retail - the majority of retailers, I am sure, would like to see a ban onpublic place drinking as all the above factors do affect the trade in the town. Theimage of the town is essential to them and their willingness to trade in the town.Retail trade is hard to achieve (good footfall) andanything that can affect this is of major importance.* Corporate Plan - it is incorporated in the Boroughs corporate plan, both inthe social well being and economic well being sections. It is also a considerationunder the Town Centre’s Action Plan (task 4.3 reduce anti-social behaviour) forthe year 2005/6.The main factor is that Nuneaton and Bedworth are promoted as family friendlytowns that are safe clean and the visitor will leave with a good impressionwishing to return.In SummaryThe fact remains that if there is an issue at any site, there is a requirement forsomeone police or another agency to produce the statistics to prove it. Once wehave proved it we will then need to police it to make the order effective. Asalready stated it is not an offence to drink in designated areas - it is an offence tonot comply with police request to stop and surrender drinks containers.During the Enhanced Policing Initiative (EPI) when seen and we have the time wemake them finish the bottle there and then or they hand it over straight away,disposing of it in the nearest bin.41

We also have to consider the impact of the parking in the town and our inability topolice this issue.Will our potential inability to police any area designated a Alcohol Free Zone be itthe town centre or other park land space compromise the making of the orderitself?In addition there are I am sure other areas for apparent improvement. In thereports commissioned by the Government such as The National Alcohol HarmReduction Strategy and the Urban Renaissance Project (ODPM) they talk ofutilising uniformed personnel such as street cleaners in the evening -a uniformedcleaner offers a further air of authority. I have included this issue in the draftLicensing Strategic Framework Document presented to Community Safety andnow with Ch. Insp. Slater.Then if we look at the issues raised by Alan Ottey enhancement of facilities in thetown centre like; encouragement of pavement café environments, a drive to increase footfall in the evening economy, the licensing of late night refreshment house licences (old legislation) such asDixie Chicken till 04:00amthese items have not been balanced by an enhancement of service such asimproved street cleansing or an increase of coverage by CCTV in hot spots.The litter-bins situated in the new paved area outside Wilkinson’s are full by 10p.m. on a Friday and Saturday so there isn’t capacity to dispose bottles andglasses. Bottle bins were first requested by members of BAND nearly two yearsago to help with the problem.When you visit continental areas such as Benidorm there is a vibrant day andnight time economy and street cleaners wearing smart, high visibility, practicaloveralls are in evidence 24 hours a day so there is no accumulation of litter andan enhanced feeling of safety.PS 864 Steve Hall (Support & Strategy)42

Appendix 3: The Scope of the Alcohol Exclusion Zone ReviewNBBC Scoping TemplateReview Topic(Name of review and theindicative detail)Scrutiny Councillor(s) leadingthe review?Street Drinking in Nuneaton and BedworthConsumption patternsYouth drinking cultureHomelessnessImpacts on Health and Well-BeingCrime and DisorderPrevention and ProtectionAlcohol Exclusion ZonesWet CentresTo be appointed by the OSC in the new CivicYear.(Councillors involved)Who else is to be involved asSources of Evidence forViews of Stakeholders?(Relevant Cabinet Members;Officers; and externalwitnesses)S.21(14) of the LGA 2000states it is the duty of anyexecutive member or officerto comply with a requestfrom an Overview andScrutiny Committee or a subcommitteeof such acommittee to attend before itto answer questions.What are the desiredoutcomes?Councillor Hicks – OSC member and Chair ofN&B Safer Communities partnershipAnne Steele – TDATGDr Mike Graveney – NWPCT (Total Health andCommunity Perspective)Lorene Read – Director of Operations at GeorgeEliot HospitalChief Inspector Neil Hewison – DistrictCommander Nuneaton Town CentrePat Dickens/Ian Jones – N&B Doorway(Homelessness)Peter Benham – Assistant Director of PublicAmenities - NBBCIan Powell – Assistant Director of EnvironmentalHealth, Planning & Development - NBBCStuart Gealy - Anti Drugs Sports Officer - NBBCPhil Shepard – Town Centres Warden Manager -NBBCRepresentative from the CDRPNigel Drysdale - Bars Against Night DisorderNBBC Cabinet Members for Health andEnvironment; and Culture and RecreationPaul Taylor – ODPM Crime StatsImplementing and developing relevantrecommendations to fit NBBC from theWarwickshire’s “Calling Time on Alcohol RelatedHarm Strategy”(What should change as aresult)What Methodology/Approach Informal Task and Finish group of 2-3 councillors43

should be used?(What types of enquiry willbe used to gather evidence)What sources of informationare required?Where could ScrutinyCouncillors go on Site Visits(Where and when)Why is this review beingundertaken?(Key issues and/or reasonfor doing the review)to collect evidence and produce draft report to bepresented for endorsement by the relevant OSC.Calling Time on Alcohol Related Harm Strategy(Warwickshire CC)Crime and Arrest Stats – Comparison Nationaland N&B average relating to alcoholMaps of town centre and hot-spot drinking (PoliceHotspots)ODPM, Wet Day Centres in the UK: a ResearchReport and Manual, Crane & Warne, King’s Fund,London, 2003.Department of Health (2002). National AlcoholHarm Reduction Strategy, HMSO, LondonCabinet Office Strategy Unit (2003). NationalAlcohol Harm Reduction Strategy InterimAnalysis, HMSO, LondonDepartment of Health (1999). Saving Lives: OurHealthier Nation, HMSO, London stated: “thegovernment would develop a national strategy totackle alcohol misuse.”Home Office (2000). Alcohol and crime actionplan, HMSO, LondonDepartment of Health (2002). Drug use, smokingand drinking among young people in England2001, HMSO, LondonYoung People’s Drinking Factsheet 1 (AlcoholConcern, 2002)http://www.alcoholconcern.org.uk/files/20040706_145136_young%20people%20factsheet%20-%20updated%20March%202004.pdfCoventry Alcohol Exclusion Zones;Leicester Alcohol Exclusion Zones and theLeicester Anchor Wet Centre; andothers identified as and when.The Chairman of Nuneaton and Bedworth SaferCommunities partnership presented a report toFull Council setting out the views of thePartnership on the effectiveness of a ban onalcohol in public spaces. Full Council supportedthe concept of Alcohol Exclusion Zones within theBorough and asked the relevant O.S.C. to look atthe concept in detail.The most visible effects most of us see from44

alcohol misuse is in our town and city centres -pavements littered with empty bottles and noisystreets the public perceive to be too intimidating topass through. Links between alcohol and disorderare as much a matter for concern as are linksbetween alcohol and crime. MORI figures from asurvey of the general public reveal a high level ofpublic concern about town and city centresbecoming too intimidating an area for manypeople during peak drinking times.The Government’s aim to reduce the harm causedby alcohol in respect of health, crime and disorderwas set out in the Alcohol Harm ReductionStrategy for England (2004) and the Public HealthWhite Paper, published in November 2004. Bothdocuments make clear that responsibility fortackling alcohol misuse cannot rest withgovernment alone and requires partnershipworking at both national and local level betweenGovernment, the drinks industry, health andPolice services, individuals and communities.How does this review addvalue to the Community andCouncil Objectives?When is the Projected startdateWhen the completion dateConcern has been raised regarding the numbersof empty bottles and glasses in the town centreand hot-spot areas.CPO 5, 6 and 9; and LSP-CPTo be determined by the relevant OSC in the newCivic Year upon setting the quarterly work plan.3 Months from the start of the review unlessstated otherwise.45

Appendix 4: Mapping out the scrutiny review12/06/06Action: Working Group assessstakeholder evidence for supporting AEZ.Week beginning 14/08/06A.E.Z. Working Group 1 st MeetingStakeholder Evidence Group 1Action: Report findings of evidencegathering back to OSC for debate.30/08/06SPECIAL - CSCA OSC MeetingAction: Consider Public perception & thestatistical & geographical evidence fromPolice/County Council to targeted areas.6,7 and 8/09/06Site VisitSite VisitSite VisitAction: Observe and enquire on site visitabout enforcement and implementation ofA.E.Z.; displacement; etc.25/09/06 A.E.Z. Working Group 2 nd MeetingAction: Consider the evidence obtainedfrom the site visits, including the evidenceused to justify AEZ; displacement; etc.17/10/06A.E.Z. Working Group 3 rd MeetingAction: Finalise draft report concerningworking group findings, and agree a set ofrecommendations.24/10/06CSCA OSC MeetingAction: Consideration of working groupfinal OSC report and recommendations inpublic with all witnesses present.Community 8/11/06 Consultation Group: 1Borough Debate• Public• fit.PartneAction: Council debate & endorsement ofrecommendations. Council asks OSCreview impact in 6 months if implemented.46

Appendix 5: 14 August 2005 – Participatory Witness ForumOpportunity (Problem) and PlanThe Alcohol Exclusion Zone Working Group met on the 14 August 2006 as an informal evidence gatheringsession. The witnesses [appendix 1] at the meeting were invited to discuss the report [appendix 2]commissioned by the Working Group and produced by the County Council in partnership with the Police toidentify possible areas where an Alcohol Exclusion Zone using the Criminal Justice and Police Act 2001.Using Section 13 of the CJP Act 2001 it is for NBBC to be satisfied that public nuisance, annoyance ordisorder has been associated with public drinking in that area proposed and that a designated AlcoholExclusion Zone is appropriate. If a designated Alcohol Exclusion Zone was put in place this wouldempower the police under Section 12 of the Act to deal with anti-social drinking in areas that have beendesignated by NBBC under Section 13 of the Act. The police will have the power to require a person, insuch a place, not to drink alcohol in that place where the officer reasonably believes that the person is, hasor intends to do so, and to surrender any alcohol or alcohol containers (other than sealed containers) inthat persons possession It will not be an offence to drink alcohol in a designated public place, but failure tocomply will be an arrestable offence.The Local Authorities (Alcohol Consumption in Designated Public Places) Regulations do not place arequirement on the NBBC to conduct a formal assessment, over a given period, of the nature of theproblem, as was the case with the byelaws procedure. Whether or not a designation order is appropriatewill be a matter for local judgment, based on the circumstances applying. The regulations require NBBC toconsult with the police prior to making a designation order (Regulation 3(1)(a)). This is to seek the views ofthe police on the nature of the problem and the appropriateness of adopting the Section 12 powers,recognizing that it will be the police who will have the responsibility for enforcing the resulting restrictions onpublic drinking [14 August 2006 –AEZ W.G. minute - below]. Other bodies to be consulted before adesignated AEZ order is made includes: neighbouring local authorities where a designated AEZ covers anarea on the boundary; licensees within area affected by AEZ; and reasonable steps to consult land ownersin designated AEZ.Evidence and Objective1. Stuart Copeland and Rachel Jackson• Overview of the report (appendix 2) and the proposed area is inclusive of Abbey Gate, AbbeyStreet, Back Street, Bond Gate, Bond Street, Bridge Street, Church Street, Corporation Street,Coventry Street, Harefield Road, Leicester Road, Market Place, Newdegate Street, Newtown Road,Queen's Road, Stratford Street, Vicarage Street. The area is primarily commercial in nature. Weestimate that there are around 390 addresses within the zone we proposed, of which only 40 areresidential. Of those 40, around half are flats in Abbey Street.• Power Point Presentation of the proposed geographical area and hot spots. Also the results to datefrom the online consultation which includes suggested AEZ areas and public opinion of the AEZconcept (appendix 3).2. Cllr B Hicks – Chair of CDRP• AEZ was brought to CDRP a year ago to find evidence, only CVS looked into it in detail.• Need to have some clarity of purpose of AEZ. Is it night-time economy or tool for ASB drinking inparks/residential areas• Report proposing AEZ shows only 14% detected and reported crime over 2 years attributed toStreet Drinking – maybe underreporting need to consider perceptions• Proposed AEZ is only 85% of Town Centre why not all within ring road• The report does not say what is to be banned.3. Lisa Flintham – Police Community Support Officer (PCSO) - Supervisor• PCSO Supervisor for Nuneaton and Bedworth47

• Disappointed that the report statistics only support Town Centre as AEZ. Clearly due tounderreporting eg Galley Common is problem area with Street Drinking and associated crime.• PCSOs do not currently have to power to enforce an AEZ• Currently no recording of informal complaints to PCSOs on a database regarding Alcohol StreetDrinking but this will soon be taking place4. Steve Clarke, Assistant Director of Housing• Not currently aware of any areas that are presenting a problem, but will endeavor to follow this upand pass on the relevant information.• Additional information provided after the meeting: They are aware that around Lexington Court,Nuneaton; and at Walter Scott Court and Wordsworth Road, Bedworth, there are often youthshanging around and drinking. Indeed, at Lexington Court officers have seen the youths beingwatched by police in vans. However, these events have not resulted in complaints through thehousing division of bad behaviour, though I am sure it is a worry to those who live there.5. Phil Shepard – Town Centres Warden Manager• The glass debris significantly highlights Street Drinking in: Town Centre; Memorial Gardens;Dempster Court; Church Street Car Park; Netto car park; Sainsbury’s Car Park; Asda Car Park;Dunell Car Park; behind the railway station – some of these areas are outside of the ring road.6. Daniel Wheelock, Community Parks Officer• Malborough Road (Glass/cans littered everywhere); Newdgate Recreactional area (communityshelter used by 12-15 year olds drinking); Stockingford Recreational area (youths drinking); KersleyRecreational area; Grove Farm; Thoughtham Way; Lillyburn Drive; The Alders in Bedworth;Grovehill; Johnson Road; Jugerts Gardens.7. John Brewin, Security Supervisor• Survey using CCTV cameras between the 7 th and 14 th of August 2006 showed 39 street drinkingincidents in total, in the following areas: Pool Bank St Recreation Area = 20 incidents; RiversleyPark = 6 incidents; Nuneaton Town Centre = 10 incidents; Bedworth Town Centre = 2 incidents;and Bedworth MWP =1.8. Alan Ottey, Town Centre Manager (Also Bedworth Business)• Manchester City Council banned all glass in Town Centre bars and obtained considerable reductionin casualties in Hospital A&E. Possibility to ban glass outside of licensed premises.• Nuneaton has 25,000 visitors at the weekend and 100,000 over a week. Bedworth not as high, butstill has many visitors. Currently the problems are detracting people as a result of the appearance ofthe Town Centres.• Development of the café culture to promote town centres with berried areas for consumption ofalcohol.• Manchester City Council AEZ only resulted in 3 prosecutions over 1 year.• Who is going to pay for the signage for these Alcohol Exclusion Zones?• There is currently conversations with satellite pubs around Nuneaton and Bedworth Town Centresto set-up a Pub Watch Scheme.9. Richard Burlingham – Nuneaton Business Alliance Rep and Pub Licence holder• Supports an AEZ in all recreation areas in Nuneaton and Bedworth• Lack of bins and closed off secure waste bins in town centre.10. Nigel Drysdale - Bars Against Night Disorder (BAND)• BAND is representative of Licensed premises in Nuneaton and soon to have membership fromBedworth.• BAND supports AEZ as it would assist in preventing Street Drinkers who load themselves withalcohol attempting to get into Clubs and pubs before the effects are noticeable to door staff.• People are drinking on the way to town and when designated driver some will drink in car park ifseen they are refused entry.48

• Door staff would be vigilant to prevent any person leaving with glass or bottle.• My experience of AEZ in Coventry was very good in Town Centre. No longer any big problems inCoventry.• Café culture drinking outside licensed premises in Coventry AEZ area only permitted if sitting down.• Street drinking is off putting for many of the visitors to the town.11. Carol Gallgher – N&B Doorway• N&B Doorway work with 16-25 year olds who have been asked by us about the extent of theproblem. Some of which have an alcohol problem.• Young person views are that an Alcohol Exclusion Zone would only create displacement.• An Alcohol Exclusion Zone would only work if Borough wide, as if only town centre problem will spillinto residential areas.12. Stuart Gealy – Youth Inclusion• No real problem around the MUGGERS areas except occasionally older relatives, but still youngadults will sit around watching with beers and that is a bad example for the younger ones.13. Les Jackson – Licensing• Drinking is not a licensable activity. The Licence only shows where the sale of alcohol takes place.• AEZ in all parks and recreation areas would cause difficulties in applying for a licence e.g. if a beertent in a park with an AEZ it would have to be specific and ensure drinkers were contained in aspecified area.• An AEZ does not make it illegal to consume alcohol in that area. Merely empowers the police torequire a person to surrender the alcohol if requested to do so by the police officer. It is then anarrestable offence not to comply with that request, and the person maybe subject to a £500 fine.14. Dr Mike Graveney – Public Health PCT• Alcohol is a big problem in the community there are 1000s of youngsters that are damaging therebody.• N&B have some of the worst cases of young adults drinking and having significant damageresulting from alcohol that requires medical care.• Younger peoples consumption of alcohol is connected to teenage pregnancy• George Elliot Hospital has zero tolerance on Alcohol related abuse to its staff.• We can provide statistics that can compare the rates of the problem here with other areas to showthe need for AEZ and to show if its working over a specified time period.15. Lorna Ferguson – Drug Action Team• 9,000 people in Warwickshire are harmed a year as a result of Alcohol.• Need to split off young street drinking culture from night time street drinking16. District Commander – Peter Blackburn• The stats within the report are not a complete picture as we know that only 43% of victims of crimereport crime.• This Working Group needs to focus on one of the two areas its currently covering: 1) Town Centrenight-time economy street drinking; and 2) AEZ as a tool to tackle perceptions of Alcohol relatedcrime and ASB incidents.• I support the idea of AEZ within both Nuneaton and Bedworth Town Centres, and the AEZ would bepoliced based according to the extent of the problem.• If Town Centres were to have AEZ outside drinking in the café culture should be required to be sitdown alcohol consumptions.• There should be glass alternatives in all bars with a Nuneaton Town Centre AEZ.• An AEZ in the Town Centres is not the solution but part of a tool kit to help reduce the Alcoholrelated Crime and Disorder in the Town Centres.• There are residential areas within the boundary of the proposed AEZ and increasingly it is inevitablethere will be some residential property's within a town centre area. It is a question of collectively49

determining what the local identifiable centre is which is sensible and fit for purpose in the context ofan AEZ. We need to take into account different factors in identifying the right areas. Some factorsmay come from site visits; and lessons learned from elsewhere, so the boundary should not befixed too quickly.• Kids who have nice play areas built by developers as result of LA planning requirements fordevelopers will always have more deprived kids visiting it who are likely to be drinking alcohol.Solution and OutcomeMembers should bear in mind that site visits have been organised as set out belowOSC Councillors will want to debate the evidence received by the working group to date reviewing theirbackground papers and the evidence at the last meeting, and then:1) identify what needs to be done to finalise a draft report for Working Group review on the 17 October2006; and2) identify if there is any further evidence that will satisfy the OSC Councillors in making a judgment andrecommendation to Council on a proposed AEZ.50

Proposed witnesses for the Alcohol Exclusion Zone review14 August 2006Council and Partner GroupCllr Meeting starts at 5:00pm witnesses come at 5:30pm1. R Jackson - Community Saftey and S Copeland - OSC2. Cllr B Hicks – Chair of CDRP3. Lisa Flinton – PCSO Supervisor4. Steve Clarke, Assistant Director of Housing5. Phil Shepard – Town Centres Warden Manager6. David Truslove, Children's Play Area Officer7. Daniel Wheelock, Community Parks Officer8. John Brewin, Security Supervisor9. Terry Willis, Grounds Maintenance Area Manager10. Alan Otty, Town Centre Manager (Also Bedworth Business)11. Karen Little – Nuneaton Business Alliance12. Nigel Drysdale - Bars Against Night Disorder13. Carol Gallgher – N&B Doorway14. Stuart Gealy – Youth Inclusion15. Les Jackson - Licensing16. Dr Mike Graveney – Public Health PCT17. Laurna Fergerson – Drug Action Team18. District Commander - Blackburn51

L Fergerson –Drug ActionTeamDistrictCommanderBlackburnCllr B Hicks –Chair of CDRPNigel Drysdale- Bars AgainstNight DisorderLes Jackson -LicensingStuart Gealy –Youth InclusionLisa Flinton –PCSOSupervisorDaniel Wheelock,Community ParksOfficerDavid Truslove,Children's PlayArea OfficerSteve Clarke,AD of HousingCllr S WilsonCllr B GrantCllr M JonesCllr J ClarkeMeeting of: Alcohol Exclusion Zone Working GroupMode of working: Participatory Task Force (informal evidencegathering – all in attendance are able to ask questions of witnessesthrough the Chair)Witness order:1. R Jackson - Community Saftey and S Copeland - OSC2. Cllr B Hicks – Chair of CDRP3. Lisa Flintham – PCSO Supervisor4. Steve Clarke, Assistant Director of Housing5. Phil Shepard – Town Centres Warden Manager6. David Truslove, Children's Play Area Officer7. Daniel Wheelock, Community Parks Officer8. John Brewin, Security Supervisor9. Terry Willis, Grounds Maintenance Area Manager10. Alan Otty, Town Centre Manager (Also Bedworth Business)11. Karen Little – Nuneaton Business Alliance12. Nigel Drysdale - Bars Against Night Disorder13. Carol Gallgher – N&B Doorway14. Stuart Gealy – Youth Inclusion15. Les Jackson - Licensing16. Dr Mike Graveney – Public Health PCT17. Lorna Ferguson – Drug Action Team18. District Commander – Peter BlackburnR Jackson and S Copeland will present a report on Alcohol relatedCrime supporting need for Alcohol Exclusion Zones (AEZ) in Hot Spotareas. However, only reported and detected Alcohol related Crime isindicated, so you need to consider and ask questions to obtain areas ofpublic perception and fear of Alcohol Crime from anti social drinking inpublic areas from other witnesses. Cllr B Hicks is present to be answerquestions relating to the consideration given by the Crime & DisorderReduction Partnership committee for AEZ which was presented to 7December 2005 NBBC - Full Council. PCSO Supervisor - Lisa Flinthamcan be asked about what the Community Support Officers think of AEZand where they should be. Witness number 4-12 can be asked if theyhave suggested area, and if any evidence to support it or could it beready for 30 August 06 Public OSC meeting. Also witness number 12Nigel Drysdale (BAND) could be asked about the door policy of checkingfor alcohol leaving bar/club and thoughts on where AEZ add value.Witness 13 and 14 will be able to provide evidence of youngerperceptions of drinking in open public spaces, and if asked wouldfacilitate younger people presence at the 30 August 06 public OSCmeeting. Witness 16 and 17 will be able to provide statistics to supportor reject the need for AEZ based on public health perceptions of theproblem in NBBC area in comparison to national average. Finally DistrictCommander Blackburn will be able to discuss enforcement of theproposed AEZ and his opinions on the need for AEZ in the proposedareas from this meeting.Dr Graveney,PCT PublicHealthCarol Gallgher– N&BDoorwayPhil Shepard –Town CentresWardenAlan Otty, TownCentre ManagerArea ManagerTerry Willis,GroundsMaintenanceJohn Brewin,SecuritySupervisorKaren Little –NuneatonBusinessCllr M McMahonCllr J PreedyCllr N PhillipsCllr N PhillipsS. Copeland –OSC SupportOfficerCllr B Hancox -52ChairR JacksonCommunitySafety

Appendix 6: County Council and Police proposed Alcohol area53

Appendix 7: Press Release and Internet Survey Background70

Appendix 8: Alcohol Exclusion Zone Survey71

Appendix 9: Coventry City Council - Site Visit - Resource Pack72

Appendix 10: Cannock Chase Council - Site Visit - ResourcePackCannock Chase CouncilCouncillor Danny DaviesEnvironment LeaderKaren SulwayEnvironmental Protection ManagerSean O`MearaSenior Licensing OfficerEnvironmental Health DepartmentStaffordshire PoliceSergeant Dave InghamRugeley Neighbourhood Policing UnitPc Michelle GreenAnti-Social Behaviour OfficerPartnership Development Unit81

Partnership Achievements2004/05• Awarded Beacon Council status for the work of theCrime and Disorder Partnership in April 2004• Enhanced local skate parks to reduce anti-socialbehaviour• Obtained 11 Anti-Social Behaviour Orders (ASBOs)• Set up 5 Community Action Teams – providing acoordinated approach to tackle under-age drinking• The Junior Streetwardens & Fire-fighter Scheme• Work in schools on citizenshipWhat Today will Show You• How and why• Cannock Chase Council (alcohol consumptionin designated public places) designatedorders• Criminal Justice and Police Act 2001• Our success in tackling anti-social behaviourWhy• Formal request from Staffordshire Police, withevidence• Underage drinking• Alcohol influenced anti-social behaviour• Alcohol related violence• S30 Dispersion Areas already in place• Additional useful tool82

The Process• Partnership Working• ASB Officer and Senior Licensing Officer- Walked the areas- Practicalities of boundaries- Position of signage- Types, locations and identity numbers oflamp postsThe Process• Write report for Council• Produce maps• Write commentary• Determine consultees• Prepare statutory advertisements• Design signs• Market test sign suppliers and fixing costs• Liaise with lighting contractorsThe ProcessLighting Columns- Approval for display- Hexagonal concrete- Risk assessment- Fixing collars and banding- Fixing height83

The Process• Letters to consultees – 6 weeks for reply (19Nov 04)• Adverts in local press – 28 days to respond (9Dec 04)• Minimum of 28 days after adverts, report toFull Council seeking approval (26 Jan 05)• Notify respondees• Order signs, arrange fixingThe Process• Make Orders (Sealing) (4 March 05)• Re-advertise in local press (10 March 05)• Send copies to Home Office• Effective from 1 April 05• Annual ReviewConsultees• Police• Parish and Town Councils• Licensees• Land owners/occupiers• Public – through statutory adverts84

Costs• Adverts (4 x 2) £982• Signs and fixing (200) £3,600 & £1,600• Officer time – CCDC & Police 120 hours• Support Services; Legal, Typing, Admin, MSUPotential ConflictLicensing Act 2003• Licensing of public land/town centre• Effect of premises licenses on order areas• Staffordshire County approachUseful Websitewww.crimereduction.gov.uk85

FinallyAny Questions?86

Appendix 11: Nottingham City Council - Site Visit - ResourcePack87

Appendix 12: Home Office typologies of Anti Social BehaviourHome Office, Defining and measuring anti-social behaviour, 2004, p.6(http://www.homeoffice.gov.uk/rds/pdfs04/dpr26.pdf)88

Appendix 13: Police Report on Site VisitsFrom: Peter BlackburnSent: 18 September 2006 08:51To: HANCOX Bill; COPELAND Stuart; JACKSON RachelCc: David Williams; DOHERTY JerrySubject: FW: Alcohol Exclusion Zone for Nuneaton & BedworthDear all,I forward Sgt Williams report to me regarding the visits to the alcohol exclusionzones.1. I fully support his assessment.2. It is in alingnment with the views I gave to the working group chaired by CllrHancox i.e.a) I favour a zone for the town centres (subject to accurate marketing assuggested below i.e. a tool for police to use)b) I take the view a borough wide zone is unenforceable and would only supporta zone in any other part of the borough if it were be used as part of problemsolving where it is necessary as one of a range of measures (e.g. like a dispersalorder under part 4 of the ASB Act 2003)forwarded for your informationChief Inspector Peter BlackburnNuneaton and Bedworth District CommanderDDL: ????? ??????Mobile: ????? ??????-----Original Message-----From: Williams, David. 0546Sent: 15 September 2006 18:10To: Blackburn, Peter. 0778Cc: Boissonade, Mick 0756; Walton, Christopher. 1541; Hill, Peter. 0297;Hall, Stephen. 0864; Khan Zaid. 0400Subject: Alcohol Exclusion Zone for Nuneaton & BedworthBossLast week, along with Stuart Copeland (Overview & Scrutiny Support OfficerNBBC) & some local councillors, I attended presentations with regards to AlcoholExclusion Zones given by Coventry City Council & Nottingham City Council, &PC Lloyd Walton attended a presentation given by Cannock Chase DistrictCouncil.89

As you are aware, NBBC are seriously considering the need for an AlcoholExclusion Zone for Nuneaton AND Bedworth District, & having attended themeetings & held informal discussions with Stuart & the councillors, I believe theCouncil, if supported by police, would attempt to adopt a district wide AlcoholExclusion Zone & therefore not just for the two town centres.My opinion, having attended the two city presentations, is that I do not feel thatNuneaton & Bedworth have sufficient 'hot spot' areas to support the council in adistrict wide exclusion zone, simply because the facts & information do notsupport its implementation.What is there, & I feel somewhat unfortunately is the public perception, & Ibelieve residents of Nuneaton in particular appear in favour of the exclusionzone. My concerns in the initial survey is that the majority of residents are notfully aware of the legislation itself, & that an exclusion order in a designated areadoes NOT mean that no person can drink alcohol from an open container, itmeans that the police then have the power/discretion to deal with persons whoare acting in or likely to act in an anti-social manner whilst consuming or havingconsumed alcohol.There are also issues surrounding the enforcement of the designated area &dealing with public demand that alcohol should be seized on every occasion theysee a person/s drinking alcohol. Would we utilise our PCSO's to enforce? If sowe are then placing PCSO's in a position of possible confrontation with Adultswithout any protection for the officer, & if the adult refused to hand over the opencontainer or place it in a bin, arrests would be the next step & a PCSO would beleft in a position whereby a police officer would be required.With regards to a lot of the alcohol abuse involved in anti-social behaviour inNuneaton & Bedworth, the majority of our incidents involve juveniles, & in theseincidents we already have the power to confiscate alcohol, therefore there wouldbe no requirement for a designated alcohol zone in certain areas. It could beargued that at times Adults are responsible for supplying the alcohol to minors,but does intelligence exist to substantiate that adults then in fact remain in thearea & drink the alcohol as well. I appreciate this is a problem the PCSO Sherwinsuffered in Galley Common, & perhaps an exclusion zone could work there, butis this consistent throughout the whole district?It was quite clear from the city presentations that they suffer with large scalebinge drinkers, who on a daily basis gather in groups, in large open spaces,streets, parks etc, drink alcohol & then become anti-social whereby they areverbally abusive to members of the public, they urinate where they stand, theyare noisy, drop litter etc & the alcohol exclusion zones are specifically aimed atthese groups. The reason for city wide zones is that it will stop binge90

drinkers/beggars from just crossing a road & finding they are out of the exclusionzone & free to continue drinking.In my experience we do not have these issues in Nuneaton & Bedworth, which iswhy I have also mentioned to Stuart Copeland that Warwick District Council &Police should be approached to gather evidence on how their exclusion zoneshave worked over the last 3 years or so & obtain a town perspective as opposedto a city.With regards to just town centre exclusion zones, the analysis completed duringAugust 2006 for Alcohol-Related Crime & Disorder would I believe not support aneed for an alcohol exclusion order in regards of the figures it offers, but again,the residents of Nuneaton in particular who have been asked about thislegislation, would support its implementation to reduce the 'fear' of crime.My final comments at this stage having read the online Alcohol Exclusion ZoneSurvey that the council currently have on going is that they are using the phrase'banned' & 'complete ban, these are the wrong phrases to use & therefore givingthe public the wrong perception of the legislation, an area designated for alcoholexclusion is simply NOT a ban on alcohol per se.RegardsDave.DAVID WILLIAMSPOLICE SERGEANT 546SAFER NEIGHBOURHOODS TEAM, EAST SECTOR, NUNEATONTel: (024)???????? Ext:????Voice Mail:?????Email:david.williams@warwickshire.pnn.police.uk91

Appendix 14: Security Officer CCTV SurveyResults of street; and public open space alcohol consumption within Nuneaton &Bedworth CCTV Camera range:Start Date. 15 Th August2006.(87) Results, of which,(49), Pool Bank Street Recreation Ground. = 56% of total result.(5), Riversley Park. = 5.7% of total result.(25), Nuneaton Town Centre. = 28.7% of total result.(6), Bedworth Town Centre. = 6.8% of total result.(2), Miners Welfare Park, Bedworth. 2.3% of total result.Date Survey ended 18 Th September 2006.John BrewinCCTV Supervisor. 18/09/06.92

Appendix 15: Letters and E-mails of evidence93

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