An Evaluation of the Local Government Safety Action Projects in Cairns, Townsville and Mackay
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CENTRE FOR CRIME POLICY AND PUBLIC SAFETY SCHOOL OF JUSTICE ADMINISTRATION An Evaluation of the Local Government Safety Action Projects in Cairns, Townsville and Mackay A Report to the Queensland Department of Health, the Queensland Police Service and the Criminology Research Council Marg Hauritz, Ross Homel, Michael Townsley, Tamara Burrows & Gillian McIlwain Center for Crime Policy and Public Safety School of Justice Administration July 1998 Mit Gravatt Campus GRIFFITH UNIVERSITY OLD 4121 Australia Contents Abstract 3 Acknowledgments 4 The Research Team 5 Chapter 1. Towards Safer Licensed Environments 6 Introduction 6 Trends in Violence 6 The Safety of Licensed Venues 7 The Surfers Paradise Safety Action Project 12 Improving Safety Through Responsive Regulation: A Community Action Model 13 Chapter 2. The Replication Projects 17 The Project Sites 17 Project Goals and Overview of Implementation 19 Overview of the Individual Projects 24 Cairns 24 Townsville 25 Mackay 26 Evaluation Design: Venue Observations 27 Procedures 27 Research Design 30 Evaluation Design: Police Data 31 Chapter 3. Results 35 Observed Changes Inside Venues, 1994-1996 36 Aggression and Violence 36 The Physical Environment 38 Venue Security 42 The Social Environment 45 Patron Characteristics 55 Bar Staff 59 Alcohol and Drug Consumption 62 Host Responsibility 66 Police Data 71 Cairns 71 Townsville 72 Mackay 73 Overview 74 Chapter 4. Conclusion 76 References 81 Appendix A. Observation Schedule 86 Appendix B. Code of Practice Cairns 109 Townsville 113 Mackay 123 Appendix C. Venue Observations: Significant Changes in Individual Cities Cairns 126 Townsville 131 Mackay 136 2 Abstract The aims of this report are to sketch the theoretical basis of a series of safety action projects in three diverse North Queensland cities (Cairns, Townsville and Mackay), and to report some results. These projects, which aimed to improve the safety of licensed environments in the central city entertainment areas, are replications of the safety action model developed in Surfers Paradise. Key features of the approach include creating a steering committee and community forum; forming task groups to address safety of public spaces, management of venues, and security and policing; encouraging venue managers to introduce a Code of Practice; and regulating managers through informal community processes as well as formal enforcement. The model is based on: prior experience with community interventions; the theory of situational crime prevention; and regulatory theory. The results are based on police data and on unobtrusive direct observations by patron-observers of aggression, drinking, and serving practices in licensed venues in the three cities in September 1994 and October 1996. The interventions took place in each city during 1995 and early 1996. From the observational data, there was a decline of 56.5% in all aggressive and violent incidents, and a decline of at least 75% in physical assaults, although conclusions concerning direct causality cannot be drawn. These declines, which did not differ significantly between cities, coincided with reductions in the levels of perceived "permissiveness" in venues, increases in sociability, cheerfulness and friendliness, and a range of significant improvements in host responsibility practices and a marked decline in levels of male drunkenness. Patronage (and crowding) increased and prices stayed the same, suggesting no decline in levels of profitability. Police data for Cairns and Townsville, but not Mackay, showed reductions in many types of street offences corresponding to the periods when the project officer was active or the Code of Practice was implemented, but there are difficulties in interpreting the police data (especially in Townsville). There are also good reasons for not expecting a close correlation between police data on street offences and observations of behaviours within venues, since many incidents within venues are not reported or recorded. Overall, the police data for Cairns and Townsville, but not Mackay, are consistent with the reductions in aggression observed within venues. Assuming some causal impact of the interventions, identification of "critical" components is problematic, one conclusion being that there are many paths to the same destination. However, whatever intervention techniques are employed, a reduction in male drunkenness seems important to reduce physical violence. Acknowledgments The research in this report was supported by the Queensland Department of Health and the Queensland Police Service: National Campaign Against Drug Abuse Law Enforcement Fund, and by the Criminology Research Council. Naturally, the views expressed are the authors* responsibility, and are not necessarily those of the funding organisations. We are very grateful for the understanding that personnel from these bodies have shown during the protracted process of data collection, analysis and report preparation. We acknowledge gratefully the assistance of the Queensland Police Service who provided data, the Cairns, Townsville and Mackay City Councils who supported the projects, and the many students who collected the venue data. Special thanks to John Fox, Gaye Rostron and Randina Randall, the three project officers who were central to the change process, and to Cathy Boorman, Cairns City Council Community Safety Officer, for invaluable support in Cairns. Russell Carvolth of the Queensland Department of Health gave constant encouragement and support to this project. Indeed, without Russell's professional expertise, knowledge of the alcohol field, and commitment to community-based approaches to prevention, this research simply would not have happened. Homel is indebted to John Braithwaite for sharing his thoughts on responsive regulation, and to the Australian National University for making the discussions possible through his appointments as Visiting Fellow in the Reshaping Australian Institutions Project and Research Affiliate in the Research School of Social Sciences. Finally, we are very grateful to Norman Giesbrecht and Robin Room of the Addiction Research Foundation in Canada for helpful comments on a paper which we prepared from this research. This paper, entitled "Reducing violence in licensed venues through community safety action projects: The Queensland experience," will appear in the journal Contemporary Drug Problems, in 1998. The Research Team • Marg Hauritz has a PhD in educational psychology and was for four years until mid-1997 a research fellow and Director of the Centre for Crime Policy and Public Safety, School of Justice Administration, Griffith University, Queensland, Australia. She is now a consultant in crime prevention and has a particular interest in action research and in the links between legislative reform, community development, and program evaluation. • Ross Homel, a criminologist, is Foundation Professor of Justice Administration at Griffith University. His interests include crime and injury prevention and all aspects of the criminal justice system. He has a particular interest in the prevention of alcohol-related injuries. • Gillian McIIwain, a clinical psychologist, is currently Assistant Director, Alcohol and Drug Services, Gold Coast District Health. She was originally the project officer for the Surfers Paradise Safety Action Project and continued with the initial stages of the replication study in North Queensland until she moved to Queensland Health. Her areas of interest remain with the ongoing process evaluation of the Surfers Paradise work, and more generally with alcohol-related harm and public disorder, and associated public health policy. • Tamara Burrows, a PhD student in clinical psychology, is carrying out research in the School of Justice Administration on the prevention of aggression against teenage women in public places. • Michael Townsley, a statistician, is carrying out his PhD research in the School of Justice Administration on the spatial and temporal distribution of repeat victimisation for break and enter offences. 5 CHAPTER 1 Towards Safer Licensed Environments Introduction The aims of this report are to sketch the theoretical basis of a series of "community safety action projects" in three North Queensland cities (Cairns, Townsville and Mackay), and to report the main results of the evaluation. Some details of the implementation and content of the projects are provided - enough to understand what is being evaluated - but for detailed accounts of the implementation processes (as well as extensive local data, project officers' findings and their recommendations) the reader is referred to Rostron (1995; 1996) (Townsville), Randall (1996) (Mackay), and Fox (1996) (Cairns). The projects, which had as their major objective improvements in the safety of the environments in and around licensed venues in the central city entertainment areas, were designed explicitly as replications of the safety action intervention model developed in 1992 and 1993 in the south east Queensland tourist resort of Surfers Paradise (Homel and Clark, 1994; Homel, Hauritz, Wortley, Mcllwain and Carvolth, 1997; Homel, Hauritz, Mcllwain, Wortley and Carvolth, 1997; Graham and Homel, 1997). The reasons for undertaking replications of the Surfers intervention were to determine how robust the model is when applied in diverse communities, to improve understanding of the change process, and to strengthen the scientific evidence for a causal impact of the intervention on crime and violence (since it was not possible