House of Commons Welsh Affairs Committee
Police Service, Crime and Anti–Social Behaviour in Wales
Fourth Report of Session 2004–05
Volume II Oral and written evidence
Ordered by The House of Commons to be printed 15 March 2005
HC No 46-II (including HC 1182–i–iv of Session 2003–04 Published on 23 March 2005 by authority of the House of Commons London: The Stationery Office Limited £31.30
The Welsh Affairs Committee
The Welsh Affairs Committee is appointed by the House of Commons to examine the expenditure, administration, and policy of the Office of the Secretary of State for Wales (including relations with the National Assembly for Wales.)
Current membership Mr Martyn Jones MP (Labour, Clwyd South) (Chairman) Mr Martin Caton MP (Labour, Gower) Mr Huw Edwards MP (Labour, Monmouth) Mr Nigel Evans MP (Conservative, Ribble Valley) Dr Hywel Francis MP (Labour, Aberavon) Julie Morgan MP (Labour, Cardiff North) Albert Owen MP (Labour, Ynys Môn) Mr Mark Prisk MP (Conservative, Hertford and Stortford) Mrs Betty Williams MP (Labour, Conwy) Hywel Williams MP (Plaid Cymru, Caernarfon) Mr Roger Williams MP (Liberal Democrat, Brecon and Radnorshire)
Powers The Committee is one of the Departmental select Committees, the powers of which are set out in House of Commons Standing Orders, principally in SO No 152. These are available on the Internet via www.parliament.uk.
Publications The Reports and evidence of the Committee are published by The Stationery Office by Order of the House. All publications of the Committee (including press notices) are on the Internet at www.parliament.uk/parliamentary_committees/welsh_affairs_committee.cfm. A list of Reports of the Committee in the Present Parliament is at the back of this volume.
Committee staff The current staff of the Committee are James Davies (Clerk), Dr Rebecca Davies (Committee Specialist), Paul Derrett (Committee Assistant) and Sarah Colebrook (Secretary), Jim Lawford (Senior Office Clerk)
Contacts All correspondence should be addressed to the Clerks of the Welsh Affairs Committee, House of Commons, 7 Millbank, London SW1P 3JA. The telephone number for general enquiries is 020 7219 6189; the Committee’s email address is [email protected]
Police Service Crime and Anti-Social Behaviour in Wales 1
Contents
Witnesses 3
List of written evidence 4
List of unprinted written evidence 5
Reports from the Welsh Affairs Committee since 2001 6
Police Service Crime and Anti-Social Behaviour in Wales 3
Witnesses
Wednesday 20 October 2004
Chief Constable Terence Grange, Dyfed-Powys Police Ev 1
Wednesday 27 October 2004
Chief Constable Barbara Wilding, Assistant Chief Constable David Francis (Community and Partnerships) and Paul Wade, Director of Finance, Administration and ICT, South Wales Police Ev 17
Wednesday 3 November 2004 Morning Sitting Chief Constable Richard Brunstrom and Inspector Paul Firth, North Wales Police Ev 31 Afternoon Sitting Chief Constable Mike Tonge, Gwent Police Ev 47
Wednesday 24 November
Stephen Rimmer, Director, Policing Policy, Louise Casey, Director, Anti- Social Behaviour and Margaret O’Mara, Director, Crime Reduction, Home Ev 57 Office
Tuesday 30 November 2004 Ruthin Castle Hotel, Ruthin Ev 71 Malcolm King, Chairman of the North Wales Police Authority
Carol Moore, Chair, North Wales Criminal Justice Board, Chief Officer, North Ev 78 Wales Probation Area
Chief Constable Richard Brunstrom, North Wales Police Ev 83
Wednesday 15 December 2004
Keri Lewis, Chief Executive, Bridgend County Council and Chairperson of Bridgend Community Safety Partnership “Safer Bridgend”, and Brian Ev 99 Greaves, Chief Superintendent, Rhondda Cynon Taff Division, Co-chair of Rhondda Cynon Taff Community Safety Partnership
Wednesday 12 January 2005
Simon Boyle, Chairman of Gwent Criminal Justice Board, Sue Hall, Chief Probation Officer and Chair of the South Wales Criminal Justice Board, and Ev 115 Stephen Routledge, Performance Officer, South Wales Criminal Justice Board
Owen Watkin, Chairman, Ceredigion Community Safety Partnership, Chief Ev 125 Executive, Ceredigion County Council, and Ian Miller, Joint Chairman, Denbighshire Community Safety Partnership, Chief Executive, Denbighshire
4 Police Service Crime and Anti-Social Behaviour in Wales
County Council
Thursday 20 January 2005 Bridges Community Centre, Monmouth Ev 137 Kevin Wong, Assistant Director, Nacro Cymru
Jon Trew, National Officer for Wales, Victim Support Ev 143
Chief Constable Mike Tonge, Gwent Police Force Ev 148
Wednesday 9 February 2005
Hazel Blears MP, Minister of State for Crime Reduction, Policing, Community Safety, Counter-Terrorism and Resilience Issues, The Home Office, John Bader, Director of Social Justice and Regeneration, Joanna Ev 155 Jordan, Acting Director of the Community Safety Unit, Welsh Assembly Government
List of written evidence
1 Chairman of the Association of Chief Police Officers in Wales Ev 170 2 Dyfed-Powys Police Ev 171 3 North Wales Police Ev 224 4 South Wales Police Ev 266 5 Gwent Police Ev 302 6 Home Office Ev 308 7 Further written evidence from the Home Office Ev 323 8 Ceredigion Community Safety Partnership Ev 325 9 Denbighshire Community Safety Partnership Ev 327 10 Monmouthshire Community Safety Partnership Ev 329 11 Blaenau Gwent County Borough Council, Community Safety Partnership Ev 331 12 Rhondda Cynon Taff Community Safety Partnership Ev 336 13 Bridgend Community Safety Partnership Ev 344 14 North Wales Criminal Justice Board Ev 350 15 Dyfed Powys Criminal Justice Board Ev 353 16 South Wales Criminal Justice Board Ev 358 17 Gwent Criminal Justice Board Ev 366 18 Nacro Cymru Ev 372 19 Cardiff Women’s Safety Unit Ev 374 20 Victim Support Wales Ev 375 21 Police Authorities of Wales Ev 378 22 Police Federation of England and Wales Ev 385 23 Police Superintendents’ Association of England and Wales Ev 387 24 South Wales and Dyfed Powys Black Police Association Ev 389 25 Audit Commission in Wales Ev 393
Police Service Crime and Anti-Social Behaviour in Wales 5
26 The National Crime Squad Ev 407 27 National Criminal Intelligence Service Ev 410 28 British Transport Police Ev 411 29 Tenby Town Council Ev 420 30 Tenby Walled Town Residents Association Ev 422 31 Paul Flynn MP Ev 424 32 Jocelyn Davies AM Ev 426 33 Further written evidence from The Home Office Ev 426 34 Welsh Local Government Association Ev 427 35 Welsh Association of Community Safety Officers Ev 431 36 Further written evidence from North Wales Police Ev 432
List of unprinted written evidence
Additional papers have been received from the following and have been reported to the House but to save printing costs they have not been printed and copies have been placed in the House of Commons library where they may be inspected by members. Other copies are in the Record Office, House of Lords and are available to the public for inspection. Requests for inspection should be addressed to the Record Office, House of Lords, London SW1. (Tel 020 7219 3074) hours of inspection are from 9:30am to 5:00pm on Mondays to Fridays.
Tenby Town Council Appendices Rhondda Cynon Taff Appendices Bridgend Community Safety Partnership Annex National Criminal Intelligence Service Appendices Audit Commission in Wales Annex British Transport Police Appendices, B, C, and D
6 Police Service Crime and Anti-Social Behaviour in Wales
Reports from the Welsh Affairs Committee since 2001
The following reports have been produced by the Welsh Affairs Committee in the 2001 Parliament.
Session 2004 – 05 First Report Work of the Committee in 2004 HC 256 Second Report Manufacturing and Trade in Wales HC 329 i & ii Third Report Public Services Ombudsman (Wales) Bill [HL] HC 234
Session 2003–04 First Special Report Government Response to the Fifth Report of Session HC 87 2002–03, The Draft Public Audit (Wales) Bill Second Special Report Government Response to the First Report of Session HC 459 2003–04, The Empowerment of Children and Young People in Wales Third Special Report Government Response to the Third Report of Session HC 708 2003–04, The Provision of Rail Services in Wales Fourth Special Report Government Response to the Committee’s Fifth HC 1126 Report of Session 2003–04, The Powers of the Children’s Commissioner for Wales Fifth Special Report Government Response to the Committee’s Fourth HC 1252 Report of Session 2003–04, The Draft Transport (Wales) Bill First Report The Empowerment of Children and Young People in HC 177 i & ii England and Wales Second Report Work of the Committee in 2003 HC 178 Third Report The Provision of Rail Services in Wales HC 458 Fourth Report Draft Transport (Wales) Bill HC 759 Minutes of Evidence The Wales Office Annual Report 2004 HC 808
Session 2002–03 First Special Report Government Response to the First Report of Session HC 413 2002-03, Broadband in Wales Second Special Report Government Response to the Second Report of HC 580 Session 2002–03, Transport in Wales Third Special Report Government Response to the Fourth Report of HC 989 Session 2002–03, The Primary Legislative Process as it affects Wales First Report Broadband in Wales HC 95 Second Report Transport in Wales HC 205 Third Report Work of the Committee in 2002 HC 263
Police Service Crime and Anti-Social Behaviour in Wales 7
Fourth Report The Primary Legislative Process as it affects Wales HC 79 Fifth Report Draft Public Audit (Wales) Bill HC 763 Minutes of Evidence The Wales Office Departmental Report 2003 HC 883 Oral and Written Changes in Customs and Excise Operations in Wales HC 916 Evidence
Session 2001–02 First Special Report Government Response to the First Report of Session HC 270 2000–01, Wales in the World Second Special Report Response of the National Assembly for Wales to the HC 311 First Report of Session 2000–01, Wales in the World
Third Special Report Response of the National Assembly for Wales to the HC 604 Third Report of Session 1999–2000, Social Exclusion in Wales Fourth Special Report Response of the Government and the Welsh Assembly HC 1169 Government to the Second Report of the Committee of Session 2001–02, objective 1: European Funding for Wales Fifth Special Report The draft National Health Service (Wales) Bill: HC 1215 Response of the Government to the Third Report of the Committee of Session 2001–02 First Report The Children’s Society in Wales HC 525 Second Report Objective 1 European Funding for Wales HC 520 Third Report The Draft National Health Service (Wales) Bill HC 959 Fourth Report The Children’s Society in Wales: Responses from the HC 989 Government and The Charity Commission to the First Report of the Committee of Session 2001–02 Minutes of Evidence The Wales Office Departmental Report 2002: HC 1216
Welsh Affairs Committee: Evidence Ev 1 Oral evidence
Taken before the Welsh Affairs Committee
on Wednesday 20 October 2004
Members present:
Mr Martyn Jones, in the Chair
Mr Martin Caton Mrs Betty Williams Mr Huw Edwards Hywel Williams Dr Hywel Francis Mr Roger Williams Julie Morgan
Written evidence from Dyfed-Powys Police is printed on Page Ev 171
Witness: Chief Constable Terence Grange, Dyfed-Powys Police, examined.
Q1 Chairman: Welcome, Chief Constable, to the Chief Constable Grange: I think there is a classic Welsh AVairs Committee. Perhaps you could begin misunderstanding of the complexities of policing by introducing yourself for the record to the somewhere rural. My background is I worked in the Committee? Metropolitan Police for sixteen years and then Chief Constable Grange: Terence Grange, Chief twelve years in Avon and Somerset, primarily Constable, Dyfed-Powys Police and Chairman of central Bristol. Providing resources in a conurbation the Welsh Association of Police OYcers. is easy. You have massive police stations, put all your oYcers in just round the corner, and they cover Q2 Chairman: We have had some written evidence one and half square miles, two square miles, four from you. Perhaps you could outline the main issues square miles. I have to cover two-thirds of Wales. I currently facing Dyfed-Powys Police? have a population of 488,000 spread out over two- Chief Constable Grange: The main issues: low level thirds of Wales. We get 13 or so million visitors a public disorder associated with drinking; travelling year. To do that, I have 50 police stations with police criminals primarily from South Wales, mid- oYcers. The distance between Carmarthen police England; elderly rural population; fear of crime station and Pencader police station, for instance, is levels, far in excess of the reality of crime levels; 29 miles. If you run up, not the coast road from funding diYculties. We are taking up a number of Cardigan to Aberystwyth but the road ten miles in major projects from Government, all of which have through Tregaron, until we opened a small police to be in place in the next two years, but in terms of station in Tregaron there was not a police presence crime, social disorder, we are low volume, in terms of along that road for 50 miles. To attend things means volume crime. Strangely enough, that breeds a high you have to have vehicles, a lot more vehicles than impact. If you do not get a lot of burglary when you you need elsewhere. It takes far longer. You have to get a burglary it has far more impact than if you lived have more buildings. We have just spent over in an area where burglary is rife. If you are not used £500,000 on a revamp wide area network because we to public disorder when you get public disorder it have to have an IT network that encompasses two- aVects you more greatly. All the impact you would thirds of Wales. It is not compact. The wiring itself have on a rural area of rural roads, motor cyclists. costs a fortune, as does everything else. The maintenance of your fleet, your buildings, your Q3 Chairman: Being brutal in killing themselves? relationships with others: it is all very expensive. The Chief Constable Grange: Born again motor bikers, I Committee will know that the Government partly think they are called Bambies, the vernacular. acknowledged that some years back with the rural People of my age and slightly younger who do not policing fund which my force put the paper in for, realise just how fast and how quickly a modern but they acknowledged the issue to the extent of one- motor cycle will go, in eVect, killing themselves on third. Had they acknowledged it in full my force, our roads. Those are our main issues. We have the which receives £2.6 million a year from the rural drugs issue that everyone else has and of late we are policing fund, would be getting £7.5 million. They noticing crack cocaine appearing in the area with attempted to give everybody some rural policing startling frequency. money. We ended up in the first tranche when the Met Police got some. Q4 Chairman: That is a very succinct rundown of your problems. We are aware, or course, that all four police forces in Wales are pretty good by most Q5 Chairman: Do you have a helicopter service? measures, but do you have any special issues Chief Constable Grange: We have one helicopter. We regarding the rurality of the Dyfed-Powys area? are currently— Ev 2 Welsh Affairs Committee: Evidence
20 October 2004 Dyfed-Powys Police
Q6 Mrs Williams: The first in Wales, was it not? me is that the Home OYce is very directive and Chief Constable Grange: It was the first in Wales. We is very keen on micro-management and sets are currently in serious discussions with Gwent, constraints on what I can do as a manager for my South Wales, to combine our helicopter with theirs force because it tells me how many staV Imust and have one helicopter unit covering southern employ as police oYcers, and soon how many I will Wales. That would produce eYciency savings in employ as community support oYcers. It, therefore, eVect of staV and would probably be much more constrains any ability to move money around to eVective for South Wales than for us, but we are all meet the needs of my public, but I would say that. It in it together and frankly if you have the thing and is in the nature of people that they want to be slightly South Wales need it you might as well send it there. independent. I am trying to run my Force. I want to run it. I have trained my divisional commanders to V Q7 Mrs Williams: I would like to discuss the national take devolved responsibility and use it, in e ect, policing plan and its relevance to Wales with you, until I get unsettled and ask them what they are Mr Grange. What are the main drivers in doing because I actually believe that you should determining policing priorities in Dyfed-Powys? I devolve authority down, but then you should audit am thinking about the national policing plan, the what is going on so that you understand it and can national intelligence model, the community safety ask the appropriate questions. There are tensions partnership. Are there any diVerences in drivers and between me and my divisional commanders. I have priorities amongst the basic command units within given them their own finance managers, their own the force? HR managers. I have given them complete control Chief Constable Grange: No. It starts from top down of their own personnel budgets bar 3% which I keep and bottom up, if you will. The national policing back in case of emergencies. They would like the 3%. plan is set by the Home OYce. The priorities and I will happily rail against government controls, but performance indicators that are given us to by the it is in the nature of the beast. In the round it works Home OYce we have to react to. We have no choice. quite well. I make my annual statement of We are measured against those things. The annual independence and want more money, but it works HMIC assessments and Audit Commission quite well. assessments are based on that. Therefore, we have to go along with it. In truth, some of the issues mirror Q9 Mrs Williams: What about at a national level? the concerns of our public, but not all. At the other Chief Constable Grange: The Home OYce? The end, it starts with: we conduct surveys amongst our Home OYce sets the national policing plan, keeps public. We do postal surveys. We have attended this back I would say an enormous amount of the year all the major county shows and fairs in the force funding that is for policing for its own plans. For area. We are setting up facilities at our major instance, the crime fighting fund, which they provide shopping centres and we are literally stopping the the oYcers, they provide the funding but you must public and going through their concerns about keep the same number of oYcers. There will be policing in their area. We have a citizens’ panel with 24,000 police community support oYcers. There is a Carmarthen. The thousand people that could be premises improvement fund, which you must bid contacted, we put questions through there. We are for. They have other bidding arrangements. In fact, developing citizens’ panels with the other three there is a plethora of separate bidding arrangements counties. We have focus groups, or virtual focus that all forces are bidding for to get what are fairly groups, using IT across the area. We have an minor amounts of money, but they are attached to independent advisory group for minority ethnic some rigorous control and audit from the Home issues. All of that provides us with an understanding OYce. It is accurate, as I understand it, to say that of what the public would like us to do, then we when I became the Chief Constable the Home OYce balance them together and then we use the national had two places to go to for additional money apart intelligence model to guide us through what is a from my budget. There are now 29. morass of information against the priorities set by Government and by my police authority and then we Q10 Mrs Williams: My question was about tensions deploy resources accordingly. and conflicts. Are you calling that a tension, a conflict? Q8 Mrs Williams: Would you say there are tensions, Chief Constable Grange: I think it is a natural conflicts between the force at the local level on the tension. There is always a tension between the centre one hand and the force at a national level on the and the local authority. The only way to deal with other? that is not devolve any authority. Even then you Chief Constable Grange: There are always tensions would have tension because people will want their between local groups and the centre, if you will. own authority. It was what we have all been trained There are tensions between my four BCU to do, but if you took a look at it over the long term commanders and me. Last week we had a regular those things exist. Yet we manage what we are meeting to discuss performance and planning at required to do, in my case despite all the tensions which one of my Chief Superintendents put forward between myself and the divisional commanders, the theory that he was autonomous. I put forward myself and the Home OYce, and we have not the theory that I do not know anybody in the world discussed the Welsh Assembly yet, we have managed that is autonomous. I pay you: you cannot be in my force area to increase the number of small autonomous. I am not autonomous. The issue for police stations by five. We have increased resources Welsh Affairs Committee: Evidence Ev 3
20 October 2004 Dyfed-Powys Police during my coming up five years in the force from million worth of money and property from them and 1,020 oYcers to 1,186. Crime is still low. The public an awful lot more to come. At that level we are demanding but basically happy. There are voluntarily combined. The Policing Standards Unit tensions. There will always be tensions, but you at the Home OYce has examined that and as I should examine them over time and see the understand it is suggesting that is a model of outcomes and not get trapped into constant debates collaboration. We then went further and in all four about what are, in eVect, in the round minor issues. forces engaged you understand that North Wales I could argue all day about the Government should operationally has nothing whatsoever to do with the give me the capital money so that I can use the estate rest of us. Everything comes east to west and west to strategy that my force has put together with experts east. There is no flow from North Wales into my or bid for £50,000 here for something that the force area at all, unless it goes into England and Government think I should do or not. In the round, comes round. Therefore, operationally we had little that all sorts itself out. The tensions are always there. to do with each other. In terms of drugs, harm It is part of the reality of life. reduction, education and dealing with communities and drugs, all four forces had an interest, so all four forces approached the Assembly through the Social Q11 Mrs Williams: The national police plan Justice Minister and she has funded much greater emphasises, does it not, the key themes for police involvement in schools and urged by us is community engagement and tackling anti-social funding much greater involvement from the health behaviour on the one hand and tackling organised service in Wales in drugs rehabilitation. At that crime and the terrorist threat on the other. How do level, it has been reasonably successful. It is my view you think that resources should be allocated and that within three or four years what we call used and how should police services be best V operation Tarian, which is a drugs operation, will structured and managed in order to e ectively evolve into what used to be the Welsh Regional address both areas I have mentioned? Crime Squad; it seems to be a natural development, Chief Constable Grange: Do you have a whole day? but this time it will be controlled by the four Welsh Seriously organised crime: within the Force, I have chief constables, should we still exist. my own surveillance unit: 18 oYcers highly trained to conduct surveillance. If we have, using the national intelligence model level 1, criminals who Q12 Mrs Williams: You say it is well structured and need surveying or intrusive surveillance, that is the it is well managed? use of technology to listen to what they are doing or Chief Constable Grange: That one is, yes. In terms photograph what they are doing, I have the of anti-social behaviour; that is primarily a very equipment. I have the people. I can authorise it and local thing and best managed very locally. The we are very successful at it. I can give you examples. legislation that has been produced of late has been Seriously organised crime that crosses force helpful, in my view somewhat too much enthusiasm boundaries: I would say that over the past eight, nine to view young people and children as trouble rather years since the formation of the National Crime than children needing to be protected. I should Squad that has become more complex because the point out my national responsibility is child National Crime Squad has become more and more protection and managing sex oVenders for the national until it became all but international, dealing police in England and Wales. I have a particular with the influx of foreign money, foreign drugs, view about legislation that keeps pointing itself at foreign nationals, traYcking of women and children children as if they are a problem. I would argue that for exploitation purposes. That is where the national far too little is spent on child protection and far too crime squad have gone. There has been a yawning much on incarcerating them, but that is a diVerent gap. In southern Wales, we went to the Assembly issue. In my force area, the local towns, the local and the Home OYce. The three Chief Constables got BCUs are engaged in regular discussion with town together and agreed that we needed to do something councils, community councils, County Councils, to about drugs coming in: primarily from Bristol, look at short-term palliatives for anti-social Cheltenham, Gloucester and Birmingham. My behaviour and long term arrangements. For argument was that it could be a problem for Gwent instance, Pembroke County Council, their and South Wales, but if they got the flu I would get environment health licensing and community a cold at least and eventually the flu would come my safety oYcers are engaged with the Fire Service and way. We put together a team of 50-plus oYcers with my staV in examining every outcome of drinking all the technology that you could wish for, part that can be examined in the whole of Pembroke in funded by the Assembly, a small contribution from terms of people going to hospital, people needing the Home OYce. We found accommodation for ambulances, damage on the streets, arrests. There is them in Bridgend End. We linked them with the a very wide range of information that has been British Transport Police and the Avon and Somerset gathered. Using geographic information systems police operation dealing with drug dealers, and with they put a footprint across Pembroke, one of which Birmingham and Gloucester as and when necessary. is smack in the middle of Haverfordwest and within We set out to hunt down the people bringing drugs that footprint you are very unlikely to be allowed to into South Wales, again, pretty successfully. You have any more licensed premises. The interesting will never fully stop the flow. We have arrested test will be that the footprint sits right across The hundreds of people and in terms of eYciencies Shire House in Haverfordwest which the council between us I think we have seized getting on for £2.5 own and Wetherspoons want to buy. We are Ev 4 Welsh Affairs Committee: Evidence
20 October 2004 Dyfed-Powys Police waiting to see whether the council sell it to safety will all be in the same building. So far as we Wetherspoons because according to their own and can see, that is the best example of shared working our analysis that should not happen. That takes you can get. The same applies in Pembroke with time to have eVect. licensing and event management. Within Powys, I have just had lunch with the new Chief Executive. Q13 Mrs Williams: To what extent do you have to There is a strong commitment there. They have cut back on the services you would like to implement issues about their structure as three small shires and because of national imperatives? Powys itself, but if I were to be critical it would be Chief Constable Grange: I do not think we have. No, outside the County Council. I do not think the I would argue we have not. The national imperative health authorities have ever really engaged in the for the last four years has been put more police issue, but you have to be sympathetic to their oYcers on the street which has enabled us to increase constraints. If you are the Chief Executive of a the services we provide. The diYculty is whether you health authority your major concern is the can see that continuing because once you have performance indicators given you by government. opened a police station you cannot close it without Therefore, working in partnership with the police on a lot of diYculty. We have, over the last four years, something, which is not one of your PIs, is going to opened half a dozen extra police stations. We are get less important for you, but I would say that from getting technology, automatic number plate my councils we were building up shared data retrieval systems which because of the extra staV we information sets, we get funding contributions. are able to put staV to, during the Royal Welsh Show Carmarthenshire have contributed towards the we seized £130,000 worth of stolen caravans using employment of police community support oYcers that technology and resources provided. I and Pembroke and Powys are considering it. understand the argument that hypothetically government imperatives will impact on what you are doing, but the government imperative on terrorism, Q16 Dr Francis: If I could reverse the question and in truth, does not aVect my force to that great an ask you: if the partners were there instead of you extent. We have plans for terrorism, but you have to answering these questions what would they say they acknowledge the reality that the terrorist will look were not getting out of the partnership? for a big bang. It is a wicked joke but if they actually Chief Constable Grange: I would think they want put some dangerous gases down in central Wales it police presence on the streets almost to order. I would be two weeks before anybody noticed. They would think they would want financial commitment do it in CardiV and they do it at Milford Haven and from police. We are able to commit human resources we make plans for that, but it has not impacted on and, if you like, estates resources for things, but the delivery of services. finance is diYcult for us. We did at one stage have a community safety challenge fund, which our The Committee suspended from 15.37 to 4.09 for a divisional commanders could use for community division in the House safety issues. That has been taken away by me because the divisions now receive funding direct Q14 Dr Francis: If we could move on to community from Government to do exactly the same thing. safety partnerships then: which of the partners pull Therefore, they do not need two sets of funding. I their weight in the partnership and which do not? was able to defray the council tax that year because Chief Constable Grange: My four authorities? My we had funding, but I suspect it would be financial view is they all pull their weight to various levels. contributions. What we trade in is providing people You have to accept that in certain parts people are and eVort. more able to engage than in others, but so far as my authority is concerned we have thriving partnerships with all four. We have more developed partnerships Q17 Dr Francis: In your evidence in paragraph 4.8 in Carmarthen and Pembroke, but that is because you discuss the impact of partnership on the safer earlier investment was made. That does not mean county strategy. Could you say more about the that Powys and Ceredigion are not committed to it. specific role of partnership in tackling anti-social behaviour in Dyfed-Powys and reducing the fear of Q15 Dr Francis: If I could ask the question crime and changing perceptions? diVerently then: what would you like to get out of the Chief Constable Grange: Paragraph 4.8? partnerships which you are not getting out of it at the moment? Chief Constable Grange: From the County Councils Q18 Dr Francis: 4.8 I think it is. Safer Counties. I think we get a great deal. Remember, the Chief Constable Grange: Safer Counties is the partnerships should be wider than that. From the construct of the force. In order to do performance councils, certainly we get shared ownership of management properly you have to be clear about problems. Pembroke County Council, Carmarthen what performance you are trying to manage. County Council are demonstrably sharing Therefore, you can work out what performance problems. Within Carmarthen where we are shortly indicators. We devised our own programme: Safer to commence the design of a community safety Counties. There are six separate boxes into which we building in Crosshands in which the council, the fit all the performance measures we need to achieve. police, probation and other partners in community Could you repeat the latter part of that question? Welsh Affairs Committee: Evidence Ev 5
20 October 2004 Dyfed-Powys Police
Q19 Dr Francis: We were talking about tackling Chief Constable Grange: There are national anti-social behaviour in Dyfed-Powys and reducing performance indicators which every force gathers. the fear of crime and changing perceptions of crime. They can be turned to use for every division. If you Chief Constable Grange: The way we are attempting set out to construct a response to an anti-social to do that is partly through the Safer Counties behaviour issue in a small part of the force area, and programme. It is an attempt to demonstrate to I am thinking the mount estate in Pembrokeshire people through local engagement with them, was one where they had diYculties with young through providing them with information, through people, the local people, the local council, the local showing them the performance of the force, that police together worked out a solution and together things are not quite as bad as they believe they are. worked out their own performance outcomes, what The diYculty is they are measuring things according they would see as success. You do not necessarily do to what they see in the national newspapers and the that in other parts because it is dependent on that Western Mail, set alongside local newspapers problem and a long term outcome. There are staged because they must report every minor incident in measures of performance. Where have we got to in their area and then suggest they are major incidents. terms of the amount of anti-social behaviour, the It is interesting to me that I think it was Felinfoel amount of damage, the noise nuisance, and their recently I received a letter from the council performance measures as I understand it were a suggesting that Felinfoel had become like the Bronx. staggered decrease and the community felt safer and The Bronx is in New York. I think one person a week much more of a community. You would do that for is shot there. Felinfoel has one incident of minor very local issues, but on top of that you have the criminal damage every three or four days, but the national PRs which everybody works to. public seem to think that that is an indicator of the wrath to come and their measurement of how society Q22 Chairman: You mentioned Pembroke, Chief has gone wrong seems to be built round what they Constable. We had some interesting evidence to the read in the papers and some minor incidents which I Committee from Tenby, which you may or may not would have to say get magnified. Having worked in be aware of, both from Tenby Council and I think a three forces, including this one, I can say with group of residents, who are deeply unhappy about confidence that there is nowhere in Dyfed-Powys I the policing of Tenby. Do they have any community would not feel safe leaving the car. We have one safety partnerships there or do you work with local burglary in Ceredigion area every third day. It is Y people? di cult to suggest that society in Dyfed-Powys is Chief Constable Grange: Indeed, they do. It starts falling apart when you get a burglary a day, but that with Pembroke County Council and the work on is what we get; domestic burglary. Shed breaks we licensing that applies across Pembroke County. I get two a day. understand the argument from Tenby Town Council. I would point out—and I have no doubt Q20 Dr Francis: If we look again at the partnerships: you have copies of press cuttings from August 2004 is there anything in the structures or the procedures where recounts of the Mariners Night Club being that you think could be improved to facilitate better opened and music is loud at 11.20. I would have to working relationships between tiers of government, say: yes, it is 11.20 and it is a night club, but you police, other agencies in delivering better opened it. If it is noisy, take it up with the council, partnership initiatives? but I have also a press cutting from 1954 which says Chief Constable Grange: I think information sharing exactly the same things. The issue for Tenby is that it is at the heart of it. Every organisation should be is a small town, that it is a holiday resort that became able to access its information and should, in a advertised for hens and stag parties, has a great V controlled environment, be prepared to share that deal of licensed premises and is su ering the information so that you can work out together what consequences. Its resolution, and I have seen the are the issues and then work out together with the document, is that the police should do something people concerned how to resolve them. We have about it. If we are engaged in a community diYculty with information sharing because the Data partnership then all parts of that partnership should Protection Act is put up as a problem. Read properly do something about it. The council and the police it is not. Twelve years ago when I worked in Avon do. The council, for instance, and the police, using and Somerset in Taunton Deane, every social the evidence gathered, examining all the information service, by that I mean the police, health, on licensing stopped an extra pub being opened in ambulance, education, Social Services, probation, Tenby. The solicitors for the company that wanted shared all our information on to a geographic to open took a look at the evidence we gave them information system. We managed it in a small part and decided not to apply, but the people that run the of Somerset 12 years ago; we are still struggling premises in Tenby they have a part in it too, and our with it. study of Pembroke suggested that in allocating resources, and we have a means of allocating resources that is exceedingly thorough in its Q21 Dr Francis: Could I finally ask one question examination of everything that would indicate about performance indicators. You devised your where resources should be allocated. We called in an own you say; when you say “you” is that the police external company called Occupational Research in or was that the partnership, and are those Health which assisted ambulance authorities across performance indicators comparable to other forces? the country to place ambulances to study a patrol Ev 6 Welsh Affairs Committee: Evidence
20 October 2004 Dyfed-Powys Police strategy for us and help us allocate resources. We concerns me. It is Ystradgynlais Rugby Club where then apply what occurs daily, weekly, monthly, to the young people or whatever are in the club, but that to, if necessary, reallocate resources. In terms of then come on to the streets when they are no longer Pembroke, Tenby is the fourth priority; they think the responsibility presumably of the club. The public that they are the first but everybody does. It is the complain to me that the police do not respond as case that in July this year following on from four quickly as they should to concerns at 11, 12 o’clock months of clear evidence that criminality was at night which are giving them a considerable increasing in Llanelli, we redeployed eleven amount of concern. constables to Llanelli. We took two from Pembroke, Chief Constable Grange: What they are complaining two from Powys, two from Ceredigion and the about is that people have been in Ystradgynlais remainder from force headquarters. It was carefully Rugby Club drinking all night and on their way thought through. I have to say I understand what home they are noisy; people are. Tenby are saying, but suggesting the police are the answer to all your problems suggests to me you have not thought through the problems properly. Q26 Mr Williams: But more than noisy? Chief Constable Grange: There are very few reports of damage, very few reports of things being tipped Q23 Mr Williams: Can I apologise for being away over. Mainly these people are noisy, they have from the Committee for a time. Perhaps now we can woken me up, I feel harassed. Yes we attend and yes look at the way the force tackles anti-social we speak to the people concerned, but it is a function behaviour and reduces violent crime. Can you tell us of human society that when people go out drinking perhaps what the priority operational crime and and leave at 11.00 they are noisy. If you have a rugby disorder problems are that aVect the force and where club and you live next door to it, I am afraid up to a does anti-social behaviour sit within those priorities? point you have to accept some noise when they leave. Chief Constable Grange: The priorities for the force: If it goes past noise to intimidation or harassment burglary, car crime, anti-social behaviour because then they get a police presence and people get they are government priorities and the public are arrested. We have been using fixed penalty notices concerned about them. Anti-social behaviour fits in with a will across the force area to deal with that kind on a par with both burglary and car crime. of behaviour. In fact, Powys for some strange reason was one of the 87 urban areas that conducted the Q24 Mr Williams: In your evidence that you have licensing scheme the government ran this year. I given to us in paragraph 9.2.3 you indicate that there have no idea how . I just got told Powys was is an intention to create a delay or a scheduled involved. It struck me as odd, but they did it very response to calls relating to anti-social behaviour. successfully. There is this thing about anti-social That perhaps does not give an indication that you behaviour. It is in your definition. People that are put anti-social behaviour on the same level as car noisy are anti-social. They do not think they are and crime. they are not actually committing a crime. There is a Chief Constable Grange: That tends to depend on the limit to police saying to people, “You can stop being incident; when we open up our new communication noisy or we will arrest you”, because we do not have centre all calls will be taken there. What people need the power to do that, and arguably nor should we. to understand is that well over 50% of the calls about anti-social behaviour are not calls that the police deal with, therefore, we would not attend. Where Q27 Mr Williams: Would you not agree with me that there is anti-social behaviour that merits police a police presence would actually deter quite a lot of attendance then it will be attended, but a lot of it is anti-social behaviour? about matters that the council deal with or another Chief Constable Grange: Indeed, it would, but I body deals with. The expectation is that we will send would suggest that if you counted the number of somebody and then generate the response. There is rugby clubs, pubs, other clubs and licensed premises a limit to that because we cannot be the answer to in my force area, it would be greater than the number every issue. An awful lot of the issues the public now of police oYcers. We cannot literally be present at raise are matters the council deal with. For instance, every location. What we do is work out where there Carmarthen County Council has taken over all are most likely to be problems, where the problems responsibility for parking enforcement. Many of our are persistent and locate ourselves there, and it is a calls for anti-social behaviour are about parking and gradation of problems. For instance, through the the use of cars. They are no longer our responsibility summer on Friday night and Saturday night we put because the council does it. It is about fires. We do extra resources into Llanelli and Tenby because we not deal with them. Where we are responsible we will anticipated problems. In fact, the oYcers that went deal with it, but bear in mind that when we do open to Tenby were bored out of their minds because not the Communication Centre properly the ambulance a lot happened, in their eyes, but the public thought and fire service will actually be in the building so the there were problems. On that scale, with the best will delayed response will be better managed. in the world Ystrogyunlais, Newcastle Emlyn, et cetera, would not get permanent police presence Q25 Mr Williams: You seem to be passing the outside all their licensed premises because the reality responsibility of a number of anti-social incidents on is in Newcastle Emlyn alone you have premises three to other organisations or partners within the miles apart. There are, at best, two oYcers on nights partnerships, but for instance if I give you a case that there. You cannot cover them all so you choose. Welsh Affairs Committee: Evidence Ev 7
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Chairman: Can I bring Mr Edwards in and then Mrs Q31 Mr Williams: Perhaps you could tell us what are Williams on this specific point. the main impediments to using anti-social behaviour orders in Wales? Chief Constable Grange: There are not any real Q28 Mr Edwards: When you say resources, could impediments to using them. When it began the Y that include community support o cers and would impediment was the classic: nobody understood that they be involved in having a presence, say, at 11.30 people were frightened of using them. The same on a Friday night? thing applied to sex oVender orders when they came Chief Constable Grange: In Llanelli we now have out, but people got the hang of them. A few solicitors Y eleven community support o cers and they are on working for police authorities understood how to patrol down the main licensed premises streets of get them successfully and it spread round the Llanelli nearly every single night of the week way country. There have been no impediments in any past closing time, but the only place we presently part of my force area. There was, in my view, a have community support oYcers is Llanelli. We marked unwillingness in Powys to use them with have a bid in for extra resources. We bid for 50. We youth oVending team dubious about them and the are not getting 50, but 3/5ths of whatever we get go magistracy unwilling. There has been one classic into Pembrokeshire. The other 2/5ths are going to example in Welshpool where I think we made three Carmarthenshire for this year. Then next year bids for one and we got it on the third. In the interim, starting in April bids will go in for Powys and the kiddie concerned, of course, had I am told Ceredigion. Remember there are 20,000 to be caused something like £50,000 worth of extra dispersed around the country. We will get our damage and misery. reasonable share of them. Q32 Mr Williams: That must have been the only one Q29 Mrs Williams: You talk about anticipating in Powys because there is only one. problems. Can I ask you a question and ask whether Chief Constable Grange: Strangely enough that is there are any statistics that you collected to answer the one. my question really? If there is a planning application being put forward for, shall we say, a block of flats Q33 Mr Williams: You also say there is a confusion for elderly people and you discover that there is a over a shared definition of anti-social behaviour. Is club or two clubs in the vicinity and you anticipate there any progress to achieving a common definition that there will be problems similar to the one we of anti-social behaviour amongst the forces in have been talking about, then you put your Wales? recommendation to the Planning Authority, do you Chief Constable Grange: You could have one keep a record of how often the Planning Authority amongst the forces in Wales. We could all have our listens to your advice because you are able to look definition of anti-social behaviour. The reality for into the future and thinking this is going to cause the public is anti-social behaviour is in what you major problems in the community? perceive as a member of the public. People have no Chief Constable Grange: We definitely do it the other memory of what they did when they were young. way round. Any attempt to change a licence or have Things they did when they were young are now a new licence or build new premises, we keep records deemed to be anti-social behaviour and deserving of of everything we have said about it. In terms of a an ASBO. I will quote one example. I do not know council building, sheltered homes, they would not what you call knocking on doors and running away necessarily consult us. They just build. If we noticed, where you were but where I was brought up it was and naturally we would, and there were licensed called ’knockdown ginger’. Now it is called ’urban premises there we would mention it, but I do not terrorism’ and people react to it far more so than think we would keep detailed records of something they used to. Words are used about it that are much like that. We tend to keep records of licensing stronger than they used to be and it becomes anti- applications not other people’s development. You social behaviour. would keep records of every property that went up because it is not just sheltered accommodation for Q34 Mr Williams: Sorry to butt in. Surely the point the elderly where people complain. Virtually is that it is not what the public think is antisocial everybody complains. behaviour, it is what the force is and how it defines it if it is going to use anti-social behaviour orders and implement them. It has to have some idea of what Q30 Mrs Williams: I need to check that, Mr type of behaviour it should apply to and how it can Chairman. I will come back to you on that because be used within the new measures. I have an example in my constituency where it did Chief Constable Grange: Indeed, that is true. Then happen and the police did give sound advice and the you would have to convince others to do it, but there local Planning Authority ignored it but they were is such a wide range of things that can be and consulted. I am finding it strange that you were not are anti-social behaviour, running through from in Dyfed-Powys. drunkenness, noisiness, intimidating the local Chief Constable Grange: It is not within my public, behaviour on council and other premises that knowledge that we are; I would have to make that upsets everybody, but if you actually try to list every clear. If it is done it is done very locally but it would single thing that somebody could do to annoy their not come through my oYce. neighbours and become worthy of an anti-social Ev 8 Welsh Affairs Committee: Evidence
20 October 2004 Dyfed-Powys Police behaviour order it would be a very long list. In eVect, you become incarcerated because you do not comply it is behaviour that so intimidates others, is so with it. People should go to prison for crimes and I persistent but not a crime, or you will not get a think they should only go to prison for crimes. conviction, that the long term answer is to say to Prison is the appropriate place for them to be. There these people: you are not doing that or going there are other ways of dealing with anti-social behaviour for the next three years. You will have seen from and there are other ways of managing people. Youth reports in the press across the country there are very oVending teams in my force area and others use wide range of things that people do that get intrusive supervision. They do not go to prison, they them anti-social behaviour orders or acceptable are just supervised and they know it is going to be behaviour contracts. very intrusive. There is, if you want to use them, the tracking devices for all the other things. Q35 Mr Williams: Can you perhaps give us a little more information about the role of anti-social Q38 Chairman: Chief Constable, what do you do if behaviour coordinators and what is the rationale for they do not accept intrusive supervision or tracking their appointment? devices? There has to be some sanction at the end of Chief Constable Grange: Across England and Wales the day, otherwise it is pointless? anti-social behaviour orders started oV I would say Chief Constable Grange: I agree with you. You know disjointedly. There was no national scheme to do it. the outcome. I think people have to understand that They became legislation and people picked it up or they are responsible for the consequences of their not. The Government wishes it to be done in a much own actions. I am not a great believer in “it is all more coordinated way, wishes to have a much better society’s fault” at all. If you are a teenager and you understanding of what is going on and wants to be find yourself looking at the wrong end of an anti- sure that the councils, police, and others are working social behaviour order and you start to mess around together. The way to do that is to have anti-social with it and you do not accept the options oVered, behaviour units who actually study the problems then prison is one of the options and you will not be and study the problem people. Then between the asked, but you make that choice, it seems to me. council, the police and others you have coordination. The only way you will get Q39 Chairman: That is slightly diVerent to what you coordination is to appoint somebody specifically to were saying just now. Maybe you did not put it over do it because if you left it to the councils and police in the way that you intended, but it seemed to me we would frankly probably leave to it each other. that you were saying that you did not like ASBOs because there was prison at the end of it for Q36 Mr Williams: Do you think appointing anti- somebody who had not committed a crime. Frankly, social behaviour coordinators is a successful you do need sanctions. approach to tackling anti-social behaviour? Chief Constable Grange: You need sanctions. I do Chief Constable Grange: I think it is an approach not like the idea that you go to prison for breaching that over time could be successful. I would hope that an anti-social behaviour order. It is a personal the approach would entail a thorough examination opinion; I think that is wrong. I think you should of the issues and all the options for dealing with the find a better way of dealing with it. issues being considered with ASBOs and ABCs being but two of the options because on many Q40 Chairman: Have you a better way of dealing occasions there will be a diVerent way of dealing with it that does not involve sanctions at the end of with this without giving somebody an anti-social it? behaviour order. If they are to succeed I hope the Chief Constable Grange: There have got to be anti-social behaviour units and the coordinators and sanctions. Intrusive supervision and surveillance the councils and the police and everybody else programmes are very sanction-oriented. There are engaged in this tries to think through the real any number of sanction-oriented things you can do problem and then uses an anti-social behaviour within the community with somebody. I am order if it turns out that that individual is the real unconvinced that sending them to prison for problem. As often as not there will be other issues. breaching an ASBO is the right solution.
Q37 Mr Williams: Some people have argued that Q41 Chairman: You have just said that you would anti-social behaviour orders are creating new send them to prison for breaching an intensive criminals. For instance, somebody causes a nuisance supervision order. At the end of the day, you have to and gets an anti-social behaviour imposed on them, have some sanction. then if they are found in breach of that anti-social Chief Constable Grange: At the end of the day that behaviour order they get sent to prison for the will happen. I just do not agree with it. breach and they have never participated in a criminal activity. Have you encountered that Q42 Chairman: I do not see the diVerence in argument and do you give it any credence? position. Chief Constable Grange: I have encountered the Chief Constable Grange: It is a personal belief: you argument. It can hypothetically happen and I bet it keep prison for criminals. has happened somewhere. It worries me that you can be frankly a complete pain in the neck and a Q43 Chairman: They become criminals through bureaucratic device is used to control you and then breaking an order, do they not? Welsh Affairs Committee: Evidence Ev 9
20 October 2004 Dyfed-Powys Police
Chief Constable Grange: No, actually they do not; next door neighbours are very quiet, you have there is just a sanction that a magistrates’ court conflict. Should you use an anti-social behaviour imposes on them for breach of the ASBO. It is not a order to deal with that? I am not sure. I think that criminal oVence. might be at the end of a long process of trying to get Chairman: Any prison sentence is a sanction some agreement about how you live side-by-side. imposed by a court. The distinction is very fine. When I was a kid, some kiddies ran around smashing and throwing things into the street and Q44 Mrs Williams: Given that we have a disregarding everybody. There have to be sanctions responsibility to look after people who live in the against that. I fully accept that. When they commit community and they should be allowed to lead a crimes, they should be dealt with. Where that takes normal life without having to face up to these yobs you in terms of the courts is, in my view, a matter for and vandals in the community, surely you cannot the courts. If you make it anything else, you have a disagree with that? If I have understood you very odd society, it seems to me. correctly, you are not too keen on ASBOs when they do not comply with that order at the end of the day. Q46 Mrs Williams: I am sorry, but I find your I do not feel you are actually telling us as a answers inconsistent. If you lived in that neighbour’s committee what the real alternative is to make sure house 24 hours a day, 52 weeks a year, I am sure you that Joe Public out there is able to lead a normal life. would change your mind. If you can answer that, I would link it with Chief Constable Grange: You have to take it from something else. Do you as a force, not just you but both points of view. The position of a noisy family is your staV as well, become frustrated, angry and that that is normal. The position of the quiet family concerned when you work extremely hard to take a is that the neighbours should not be noisy. Arresting case to court and then perhaps the magistrates are the noisy family will stop the problem for now. It is rather lenient and you do not achieve what you set debatable whether it will stop it for ever. Finding out to achieve, knowing full well that the person who some way they can live together, if they can, is was in court in your view has committed an oVence? possibly the best resolution. Frankly, I do not think That is why they are in court in the first place. the police are necessarily the best people to do that. Chief Constable Grange: My oYcers become very We can go in and say, “Any more noise and you will frustrated when people do not receive the sentence be arrested”. With some people that is precisely what they think they should get. When I joined the police we do. I am talking about the extremes. We have had force, I took an oath to investigate matters and place people in our force area who think it is quite normal the evidence before the courts, and that was my to rev a motorcycle at 1 o’clock in the morning in business, and what the courts did was their business. their front room. We arrest them and they move, and That is not to say I do not get exceedingly frustrated. then they do it somewhere else because they are I have a case in view of a woman selling drugs across never going to stop doing it. I understand how southern Wales from Bristol and she got four and a people feel about that, but some people see anything half years. Frankly, I would have locked her away the neighbour does as noisy. How do you manage for life, but I know the lady, I have known her for 15 that? We are constantly trying to work out the years, and she has caused death through selling right answer. drugs for years. In terms of anti-social behaviour, the oYcers in Welshpool were so frustrated by their Q47 Chairman: Surely, that judgment is made by the inability to get an anti-social behaviour order, the court on the basis of a reasonable person? That is the one they have got, they were screaming with rage. I whole point about putting ASBOs before the court: understand that. In terms of all their eVorts, when that judgment is made and it is sorted out that way. they have worked hard to put a really good case I agree with you that obviously it would be nice to together and then it is turned down by the Crown have things sorted out in some gentlemanly way Prosecution Service for reasons with which they beforehand, but that may not be possible. It may be disagree, they are frustrated, but you have to accept that the court makes those distinctions. I am not that is their role. They are independent and that is quite sure where you are heading with this one. their function. If the courts do not give a sentence Chief Constable Grange: I accept that but that surely you would like them to give, that is their function, should be at the extreme. Otherwise, you constantly and, yes, it is exceedingly frustrating. There is an ratchet down the level at which you take out ASBOs. interesting debate to be had about members of the public leading their normal lives. Some people are supposed to completely alter their normal lives so Q48 Chairman: How many ASBOs have you got in that other people can lead their normal lives. You your patch? like absolute peace and quiet and children are noisy. Chief Constable Grange: We have 17.
Q45 Mrs Williams: Are you playing with words Q49 Chairman: How many is that in comparison, here? say, to the average in England? Chief Constable Grange: No, I am not. The diYculty Chief Constable Grange: I have no idea. I do not is that the definition of a normal life is made by the know what the figures are for the other forces. Some person who is making the complaint. The other forces have very few, some have more. Each police people live diVerent lives. If you have neighbours activity—and some forces do far more than others— and one family is very noisy and boisterous and the has diVerent problems. Ev 10 Welsh Affairs Committee: Evidence
20 October 2004 Dyfed-Powys Police
Q50 Mrs Williams: Is that 17 under the new Act? Chief Constable Grange: Yes. Chief Constable Grange: No, these are anti-social behaviour orders. Q57 Mr Edwards: How do you explain that? Are you that much better at detecting crime than other forces Q51 Mrs Williams: I know that but is that under the or does it reflect the nature of the crime that goes on November 2003 Act? in your force area? Chief Constable Grange: Yes. Chief Constable Grange: There is a wide range of rationale behind that. It starts with what the relationship between the public and the police in the Q52 Mrs Williams: How many anti-social behaviour force is. It is a very good relationship. When the orders did you have before that? Has it been made public phones us up with information, we respond to much easier now since the 2003 Act? that. We investigate every single crime that is Chief Constable Grange: We were not successful in reported to us. All but one of the other forces has getting them before that. When we applied, we did what they call crime screening. They investigate at not get them. We have had diYculty getting them best 60% of the crimes reported to them; they do not through some of our courts. investigate the others.
Q53 Mr Edwards: Can we move on to serious and Q58 Mr Edwards: You said “all but one force”? organised crime. Will you tell us what the main Chief Constable Grange: Yes. I believe there is one problems that confronted your force were? Can you other force in the country that does it. tell us what proportion of your eVorts and resources go into tackling organised and serous crime? Q59 Mr Edwards: Is this in England and Wales? Chief Constable Grange: At the centre of the force, Chief Constable Grange: That is for England and at headquarters, we have an intelligence unit Wales. comprising four people; a surveillance unit comprising 18; and four senior detectives that Q60 Mr Edwards: What is your view of that? oversee that. Each of my divisions has proactive Chief Constable Grange: I think that, properly units, usually comprising up to ten oYcers and the structured, most forces could look to investigate all ability to call on as many oYcers as they need the crimes that are reported to them. We set out 20- additionally who are trained to do surveillance, if odd years ago to diVerentiate between the minor surveillance is what we do. External to the force we crime, which we did not have time to investigate, and have Tarian, which has 50 oYcers we can call on major crime, which we would investigate. The through the appropriate tasking and co-ordinating problem is that it is the minor crime that winds up process, to do operations within my force area if members of the public. We have long held the view necessary. that if you can investigate every crime, you do it. Because we do it, we tend to detect more oVences. Q54 Mr Edwards: Do you second staV to the National Criminal Intelligence Service and the Q61 Mr Edwards: Finally, what do you think about National Crime Squad? the impact of serious and organised crime on lower Chief Constable Grange: Yes, but not many. level and acquisitive crime in your area? Chief Constable Grange: If people are selling drugs and getting people involved in drugs, then inevitably Q55 Mr Edwards: How do you manage the need for they are going to need money to buy more drugs. specialist skills like detecting fraud and financial The way they get money is either oV the benefits intelligence? system or by becoming involved in low level crime— Chief Constable Grange: You examine how many stealing, primarily shoplifting, break-ins and car cases are coming in and you apply resources theft. It is a circle that just sticks together. People will accordingly. Occasionally you find yourself unable supply what you want to use. Once you are addicted to apply resources. When Operation Orr to it, in order to get it, you will actually commit commenced, nobody in England and Wales was crime if there is no other way of getting the drugs. expecting that to arrive. Nobody had the kind of in- depth base of computer specialist skills to strip out Q62 Mr Edwards: Would you say that about 70% of all the information contained in a computer in the crime is drug-related? way necessary for the 6,500 people on Operation Orr, Chief Constable Grange: That figure is quoted so we had to recruit. We now have four people doing regularly. I am not sure that is the case in my force that kind of work, but behind that we have access to area. I know it is quoted regularly across England resources in three of the biggest forces in the country and Wales. I am not sure of the provenance of that which have far more of those resources. In terms of claim. financial investigation, I now have four people. They are reasonably successful. You could argue there Q63 Julie Morgan: I am going to ask you about should be more but finding the funding for more of reassuring the public. I think you mentioned at the them is always an issue. beginning of the session about how you take into account the views of the public in deciding your Q56 Mr Edwards: You have come top of the league priorities. I wondered if you could tell us, from the for detection rates. Is that still the case? surveys and consultation you have done, what the Welsh Affairs Committee: Evidence Ev 11
20 October 2004 Dyfed-Powys Police public thinks you are doing well in Dyfed-Powys and either at work or it is dark and they cannot see you. what they think you are not doing so well. Do you It is an interesting issue. What people want is built have that sort of evidence? round what they believe they used to have. It is true Chief Constable Grange: Yes. They are usually very that back in the Forties and Fifties there was a content with the way we investigate the crimes they bobby in every village. There is a reason for that and report and the way they deal with the minor that is that society was completely diVerent. We are incidents that we attend and can deal with. They are recreating that quietly but we cannot do it for every not happy about visible uniformed patrol on the village. We are looking at working with post oYces streets, foot patrol. in Ceredigion and Powys, ten of them, to use the post oYces as staging posts for people to talk to the Q64 Julie Morgan: There is not enough? police, so that the post oYce can be used as a place Chief Constable Grange: There is not enough. where the public go to deal with firearms licensing, Certain of our customers are definitely not happy issues to do with their cars, or to leave a message for about the way we deal with speeding. Certainly the the local police oYcer. We are going to see how that motorcyclists that come into the force area works for us. positively dislike the way we deal with it. Conversely, our public do not think we deal with it Q68 Julie Morgan: You did mention the surveys you harshly enough. They are not happy about have done in Carmarthen. Is what you have been our answering the ‘phones—hence, a single telling us about the results of those surveys or is there communications centre. With 50-odd police something specific about Carmarthen? stations, I cannot answer the phones at all the police Chief Constable Grange: We have done surveys stations; that is just not feasible across the force area. What we have in Carmarthen is a citizens’ panel of 1,000 people, which is run by Q65 Julie Morgan: Do you mean some phones are the county council, but we contribute to it and we get not answered or that they have to ring for a long questions about issues into that citizens’ panel. We time? also run focus groups in all the counties. We have Chief Constable Grange: Yes. For instance, at attended the Royal Welsh Show, the United Crosshands Police Station there are eight oYcers Counties Show and the Pembroke Show and set up and one external telephone line. If you pick it up, a stall and run a questionnaire on three or four days nobody else can talk. If you have a station with four of the show, inviting people to discuss issues about or five people, and primarily that is what I have, and policing. We are now looking to do the same in the they are out on patrol, there is no-one inside to major shopping centre. answer the phone. In any event, the station is closed after 12 p.m. or 1 a.m. If you phone at 1 a.m. to that Q69 Julie Morgan: Do you get a good response? Do particular station, the phone will not be answered. people want to talk to you? The smaller the station, the more likely it is the phone is not answered. The way that we have been Chief Constable Grange: We did not the first time encouraged to deal with it, and the way to do it, is to because they put tee-shirts on and they could have have a facility that means you know the public will been anybody. On the second day, the tee-shirts said get an answer, and that is one place where all the “Dyfed-Powys Police” and people came and talked calls go. to us. We learnt quickly because if they think you are just doing a survey, they walk straight past you. Q66 Julie Morgan: Is there anything else they are dissatisfied with through the customer surveys? Q70 Julie Morgan: Could you tell us what use you Chief Constable Grange: It is usually to do with the make of the extended police family in Dyfed-Powys lack of police presence; the feeling that their and what you think is the value of the new forms of particular problem has not been resolved by the policing, including community wardens? police; an over-emphasis on dealing with speeding. Chief Constable Grange: It would be true to say that Most of the letters I receive are about people the oYcers in Llanelli love the community support speeding through villages. That is odd because the oYcers. I have had bids for CSOs from the other second highest complaint is the fact that we overdo three divisions. Over the next two years, they will all speeding enforcement. Primarily they want to see get them, subject to the Government providing the more police oYcers, and they want to see them on funding. In Carmarthen we have wardens working foot. They will happily accept community support in a couple of parts of the area. Through the Chief oYcers. Executive, I have an inspector working in the Community Safety Department of Carmarthen Q67 Julie Morgan: Is there any trend in the way the County Council’s oYces and he is developing public view you as a police force? community safety planning with the Council. They Chief Constable Grange: The unhappiness about work together. When the new radio system comes lack of a visible police presence is increasing. More on-stream, we are looking at them having that as and more, they want foot patrols. Given that we well. We have training arrangements and firm links police two-thirds of Wales and the villages are miles with all the licensed doormen in the force area. We and miles apart, it is almost impossible to provide a have not gone down the accredited scheme because visible foot presence that people like. The other for us, given the make-up of the area, it looks a less thing is that even if you are there, the people are enticing prospect than it would be in a major Ev 12 Welsh Affairs Committee: Evidence
20 October 2004 Dyfed-Powys Police city, but we are working with them. Their Chief Constable Grange: We have currently two communications systems are linked into ours. For victim support schemes, though I gather national instance, in Llanelli every doorman is known to all Victim Support wants to turn it into one. I meet with the CSOs, as are all their mobile ‘phone numbers, so the people concerned twice a year. They work with that we can actually get round them very quickly. our oYcers. They are constantly questioning Where there is benefit in widening the police family, whether or not we could do more, which is right and we do that. National Parks’ rangers are in the proper. We have just received funding from the station, the new build at Brecon. We own the Government for a witness support scheme alongside building in which they work. We have a relationship Victim Support, and we are developing that. It is a with them that I witnessed myself during pretty good relationship. Their view is that we could the summer, which is utterly comprehensive. always do more. My view is that they are right but It incorporates the Royal Navy Training we have to find ways of doing it within our budget. Establishment on the Beacons as well. When they turn up for a week’s leadership training, the 30 Q74 Hywel Williams: We talked earlier on about trainees are given the numbers of cars we are looking looking at performance data and how that informs for. When they are our exercising on the Beacons, if the way you develop the service. To what central they see one of these cars, we receive a call. The result government departments or organisations do you of that kind of thinking by the particular constable have to provide data in order to justify your who devised it is that car theft on the Beacons performance? What sort of eVect does that have on virtually ceased this summer. We are willing to work your workload and how you do your work, in terms with anybody, provided they are willing to work of costs and resources? with us. Chief Constable Grange: I provide information to umpteen departments in the Home OYce, and Q71 Julie Morgan: Do you think this has had an usually one department does not know that the other impact on public opinion, on the feel for crime? department has asked for it; the Policing Standards Chief Constable Grange: Certainly on the Beacons it Unit; the Audit Commission; Her Majesty’s has. In Llanelli, the public feel a great deal happier. Inspector of Constabulary; and the Health and The first night we had extra resources in Llanelli, I Safety Executive. I think there are nine. went down there myself on patrol. It was fascinating to see how happy all the people who were out Q75 Hywel Williams: Does that have an impact on intending to drink all night were to see uniforms the amount of money you have to spend? around. They actually preferred it; they felt safer. Chief Constable Grange: My Corporate Services That was an interesting lesson. Instinctively you Department has a couple of staV members who think they would rather you were not around but spend virtually all their time gathering this that is not so; they want you there. Occasionally you information to pass it on to various governmental have an argument with them, but, again, that is life. departments.
Q72 Julie Morgan: Your long-term strategy then is Q76 Hywel Williams: Does the data you have to to use as much of the extended police family as you collect influence your strategy because you are think appropriate and go on using it and increase it? having to tick certain boxes? Chief Constable Grange: We have quite consciously Chief Constable Grange: No. I am paid by my police placed an inspector with the Carmarthen County authority to provide the policing for which they ask. Council to help develop community safety with The Home OYce wants statistics. Occasionally what them. Each and everything that the Council does the Home OYce wants and what my police authority and that we do is built around community safety wants are in conflict. When that occurs, my policy planning. Mark James, the Chief Executive, and I authority wins. In gathering the statistics for ASR, meet regularly to pursue the agenda. It is the same we are slowly but surely automating the whole thing with Powys. Where there are benefits in working so that, for instance when there is a crime, that is together, we are doing that. Usually it is the recorded, and the system starts adding everything to constables that see the opportunity, ask if they can it. If it goes through a cautioning process or goes to do it, we say “yes” and they get on with it. Down court, the outcomes are added to it and the in Pembroke on two or three estates we information is all automatically gathered and sent. have arrangements with the Council’s oYcers— We are doing our level best to move away from environmental health, housing, social services— having loads of people laboriously gathering where we go in to assist the residents to sort out their statistics to hand on to people. Our force is very well problem, but they sort out the problem. It is their automated and we are looking for even more problem and you cannot resolve it in the end. You automation. Certainly the Government’s National can put a palliative on it. If it means putting Management Information System is destined to neighbourhood wardens in for a while or help, when it goes live. The gathering of the permanently is a solution, then I would help fund it if information does not aVect the proprieties or how nobody else did. I am all for widening this; the more we police at all. people engaged, the better. Q77 Hywel Williams: The chain is as you have just Q73 Mrs Williams: What relationship do you have described, which will improve your operational with Victim Support in your force area? performance eventually. Welsh Affairs Committee: Evidence Ev 13
20 October 2004 Dyfed-Powys Police
Chief Constable Grange: The more we can make going there to give them some information, then I do things automatic, the better. We are striving for, and not think that occurs. I would be interested to see I hope we will have it by next April, the information that paperwork. technology to gather all the information about what every single one of my oYcers is doing. The only way Q79 Mr Williams: I will ask the inspector. you will have a performance culture is if you know Chief Constable Grange: I will do that, too. what every individual is doing. When we have that and it is automated so that they do not have to fill out a single form—and the bug there is that they Q80 Chairman: Has the way that you have recorded have always had to fill the form out and that takes crimes in Dyfed-Powys changed lately? time—then you are able to ask questions through the Chief Constable Grange: You are thinking of the supervisors about what everyone is doing to National Crime Recording Standards. Yes, in contribute to what the local sector inspector is trying 2002–03, nationally National Crime Recording to achieve, the division is trying to achieve and the Standards came in. Loosely put, we stopped making force is trying achieve. You must do it in a way that the decision about whether or not a crime should be nobody has to do anything other than say, “I have recorded. If the person who attended said it was a arrested somebody. I will do the arrest paperwork”. crime, then you recorded it as a crime. In most That is required because it is going to court or for forces, that happened in 2002–03. In our force, it some other reason. Everything else is done happened in 2003–04. automatically for them. Q81 Chairman: Your figures went up dramatically Q78 Mr Williams: I was at the police station at then? Llandrindod on Saturday and was given an example Chief Constable Grange: There was a 25% increase in by the inspector there. If an oYcer went out to a recorded crime, some of which categorically should house where there was a report of an incident, even have been previously recorded, and of that I am in if he made a professional judgment that there was no doubt. You wonder why you are recording some nothing of concern there, he had to fill out a form things. We have had the Audit Commission in and with a matrix of everybody who was in that house, they are deciding whether or not things should be from the smallest baby to the oldest person, almost recorded. We have challenged some of their as a defensive type of operation, so that if something decisions but, in the main, we accept what they say. happened in the future, no accusation could be made that the police had not attended and made a Q82 Chairman: At least you are on the same basis as judgment. It seemed to me that we are not allowing the other forces now? For a while, you looked the police to use their judgment on a particular case. really good. They seemed overwhelmed with paperwork. What Chief Constable Grange: Give or take, 10%, every do you say about that? force is now on the same basis. Some forces are still Chief Constable Grange: I think that is case- failing the Audit Commission examinations, I am dependent. If we send an oYcer to an incident where told. domestic violence is alleged, I would expect that when the oYcer returned, he or she would be able to Q83 Mrs Williams: You have told us about your provide information about everybody who was in background, Mr Grange. What would you say are the house, including any children, the state of the the main diVerences in being the chief constable of a children, the condition of the rooms they were in, force in Wales compared to a force in England? By and anything else that might raise concerns about this I mean: in 1999 government changed in Wales, the child that other people needed to know. I think as you know. What is the impact of the National that is right and appropriate. That is not defensive at Assembly for Wales, and in particular your dealings all; that is about doing your job properly. If you do with the Welsh Assembly Government, on the force attend something like domestic violence, the odds and on policing? are it will not be the first time it has occurred and it Chief Constable Grange: I can literally, in terms of will not be the last. The way you deal with that is by being a chief oYcer, speak of my own force area and gathering information so that you have a really good compare that with where I worked in Avon and breadth and depth of knowledge about that family Somerset and London. The diVerence is amazing. It or that group that can assist either you, if we are the is literally true that I can be out shopping and a right way of dealing with it, or the local social member of the public will walk up to me saying, services, or others if they are the right way of dealing “Good evening, Chief Constable. I see you have with that problem. You will only do that if you bought some pork tonight. How is your wife, gather the information. The history of child abuse Patricia?” who happens to be living in Bristol. It across the country is that police oYcers attend always staggers me they know her name, but they do. incidents and do notice the children are in a shocking Then there is a general conversation, leading to the condition or are being abused. I want that issue in their village or the issue with their information. I want in-depth information, neighbour. That would not happen anywhere else. particularly if you are sent somewhere where there The feeling and knowledge the community have of are allegations of violence to a partner occurring, or you is amazing. It staggered me when first I went violence or neglect of children. If you are merely there. It is such a delight because there is a Ev 14 Welsh Affairs Committee: Evidence
20 October 2004 Dyfed-Powys Police community feeling down there, and you can feel part Q87 Mrs Williams: Did you give evidence to the of it. I had never really experienced that, but there Richard Commission? you are. Chief Constable Grange: We gave a paper to the Richard Commission. The Assembly talked about V taking over policing. That is an interesting concept. Q84 Mrs Williams: You are never o duty, are you? You cannot just take over one part of a system. If Chief Constable Grange: No, but that is not a bad you take over policing, you take over the Crown thing. Prosecution Service, the Probation Service and the prisons. It is a fact that if the Assembly took over the Q85 Mrs Williams: What happens with the prisons, rather like the Scottish Executive can Assembly? increase general taxation by 3p in the pound as I Chief Constable Grange: When I first got there, in understand it, that extra 3p would just about be the truth, we were not actually engaged with the cost of building one prison a year. It is not a lot of Assembly. They had just got going. I suppose that is money because prisons are very expensive. You almost natural. I met with the other chief oYcers and cannot, it seems to me, take one part of the criminal we consciously set about forming a relationship with justice system and leave the rest centrally. This is the Assembly. Constitutionally we are accountable many years away but we do have a thriving to the Home OYce and our police authority. The relationship with the Assembly. In my view, it is to Welsh Assembly Government is a reality and the good of the people that pay me and Wales in possibly the future, so we set out to work with the general. Assembly, and we made relationships with the Assembly, primarily the then Finance Minister and Q88 Mrs Williams: Are there not several then the First Minister. She is now the Social Justice Communities First initiatives in Wales? How many Minister. We agreed to put a superintendent in the of these are in the Dyfed-Powys area and do you Assembly at the strategy level to provide assistance provide any special police provision for these areas? to them in their community safety strategies and to Chief Constable Grange: We have 11 Communities keep us abreast of what was occurring. Then we put First areas and, yes, we provide policing there, but an inspector into the Regional Crime Director’s not through Communities First. We are not funded oYce to do precisely the same thing. We meet through Communities First for that, and we would regularly with the Social Justice Minister. We raise like to be. The South Wales Police, as I understand issues that are of concern to us about social it, have police units in Communities First areas. I behaviour in Wales, drugs, how the health believe they funded that themselves. I do not believe authorities are dealing with drugs. She raises her the Assembly have done any funding. There is an concerns about community safety and how police issue for the Assembly in that they have no function can assist. It is a thriving relationship. She is very in providing funding directly for policing. They challenging about what we do. That has developed provide part of our general funding but their own very well over the last three years, but it will only stay funding is not for policing at all. So Communities a happy relationship if we deliver. We all know that First money and other money, it may be argued, our job is to deliver and deliver for the Assembly as should not be used to pay for police oYcers. That is much as for everybody else. The Assembly have a reasonable argument, I suppose. funded some policing activities in Wales. Q89 Mrs Williams: Do you have problems in Q86 Mrs Williams: Do you detect a diVerence in recruiting oYcers in Dyfed-Powys? emphasis between the Home OYce’s focus on crime Chief Constable Grange: No, we have a waiting list. reduction and the National Assembly for Wales’s focus on welfare enhancement in the context of Q90 Mrs Williams: What about gender balance and police, crime and anti-social behaviour and what ethnic balance? impact would you say this has on policing in Chief Constable Grange: Between 20 and 21% of my Dyfed-Powys? force is female. We have made strenuous eVorts over Chief Constable Grange: I do not notice that much the last four years, since I took over the force, to alter of a diVerence in that force area. The Home OYce the gender balance through the ranks. When I took has its key performance indicators and its targets for over the force, we did not have a female oYcer above us to achieve. The Assembly has similar targets. the rank of sergeant. We now have seven female They are phrased very diVerently, and the Assembly inspectors. For the first two years, I advertised every is closer to us. We work primarily to our police senior oYcer post to attract people in from outside. authority, ever mindful of what the Home OYce In fact, we only attracted two oYcers of the quality wants and really mindful of the funding the Home we wanted. We have been involved in regional OYce has, just to see if we can get some. In truth, I recruiting. We are moving back to recruiting have much greater relationships with the Assembly ourselves because we find that more eVective. We because they are close. We expect that one day they have to have a balance of Welsh speaking; 35% of will be our government, and it makes sense to the force is Welsh speaking. In terms of minority develop an appropriate relationship with them. It is ethnic communities, if I include the two oYcers on a long time away. The Richards Commission has attachment to the Immigration Department, we predicated at least 2011, and I think they are being have eight minority ethnic oYcers, which meets the ambitious. target, but in my view it is unsatisfactory. We are Welsh Affairs Committee: Evidence Ev 15
20 October 2004 Dyfed-Powys Police making strenuous eVorts to recruit, but we have to document comes out and they want a reply in three recruit much wider than our own force area for weeks. That does not strike me as sensible planning. minority ethnic people. I have an estates strategy which has been devised to take us through the next five or six years. That Q91 Chairman: Does the increasing focus on should be looked at and funded and, if they cannot community issues and services have implications for provide the funding, I can adjust the estates strategy funding from the National Assembly Government? or try to find the funding myself. I think short-term, Do you think the funding formula from the UK managed, small amounts of money and the constant Government requires review, given these changes? bidding process is ineYcient. Chief Constable Grange: They are currently reviewing them. The problem with any funding formula is that it cannot meet every force’s desires. Q94 Hywel Williams: Finally, with the current You are trying to devise a formula to meet the needs structure of oversight and accountability, eVective of London, Manchester, Cumbria and Dyfed- as it is, would you comment on the idea of having a Powys, and we are very diVerent. My concern would stronger role for local authorities, directly-elected be about a formula that was skewed towards the big police authorities, that sort of agenda. How do you cities. Any formula must be population-led and then react to that? demand-led. Anything other than that, would be Chief Constable Grange: A directly-elected police complex. If we followed the formula slavishly, my authority would be as well known as my current force would have¨ 2 million less this year, so the police authority. You have to remember that in any Government has put in checks and balances, and I arrangement you are competing for attention. With applaud that. I believe they could acknowledge the council, the council cabinets, the MP, much more the rural policing issues, but in truth Government and then the directly-elected police devising a formula to fund policing is a very authority, you would get the same people. I think the complicated matter, and I doubt they could make Government has moved away from that and they are everybody happy, however they tried. going in for police authorities, probably with the same structure but with much greater powers to hold Q92 Chairman: I do not think it is possible to make me to account. I am a firm believer that a police everybody happy with funding. It is obviously a authority should be able to hold a chief constable to Y di cult issue. One other issue that has problems as account. I think I go against the grain with all my well is ad hoc funding. I think you gave an example colleagues: I think the police authority should do my in paragraph 5.1.0 of the withdrawal of the annual staV appraisal and I think they should have Community Safety Challenge Fund. hiring and firing rights. It seems to me an Chief Constable Grange: That was my own funding. appropriate relationship. I am probably in trouble now! On the balance between the police authority Q93 Chairman: How does that kind of ad hoc and Government, we have a tripartite situation and funding impinge on long-term strategy, because every now and again somebody kicks one of the legs obviously it is diYcult to plan, is it not? to see if they can have a bit more power. It is in the Chief Constable Grange: Within my budget of £77 nature of chief constables that we like to be million this year, and last year it was £73 million, we operationally independent. I think that is the had £270,000 from the Challenge Fund which expression. Some would like that to mean: you have divisional commanders could bid for to do no control over me whatsoever. I disagree with that community work within their division. Then the entirely. My view is that even my operational Government introduced direct funding of police independence—the case is R v Blackburn 1968: no divisions, BCUs, to do precisely that. They gave man may tell a chief constable who to arrest or where them more money than the Challenge Fund. We had to place his resources (Lord Denning, if my memory a council tax issue, so we withdrew from the is right)—is arguable, but that does not mean I Challenge Fund because they have three times as should be able to decide what cars I buy, what much directly from the Government. It seemed pointless to have another scheme behind that. We helicopters I buy and quite consciously buy something quite diVerent from everybody else had that fund from within our own budget for years. V Y There are other issues, such as the Government’s because I will be di erent. I think the Home O ce Premises Improvement Fund, where you bid for should be deciding on all those issues. I think the Y amounts of money in a sense to make the police Home O ce quite properly is dictating the IT we station more habitable for the oYcers and matters should buy. I think it should be delivered on time like that. I find those issues diYcult. It seems to me and to a decent cost but I do not think we should all the simplest thing to do would be for every police be buying something diVerent. I am afraid that is authority to have an estates strategy—ours is laid what has gone on over the years. In those terms, I am out for the next five years and is re-looked at every a corporate animal, but I believe I am answerable to year—and you submit, if you have to, to my police authority. I acknowledge that, at the end Government and then they could fund it of the train, is the Home Secretary. The best accordingly. Instead, you are bidding for small relationship is with the chief constable who clearly amounts of money and, as often as not, you find out understands that the police authority is the local you do not have any chance of getting it because you public and that we should be and are answerable to do not meet the criteria. When you are bidding, the them. I do not have a problem with that at all. Ev 16 Welsh Affairs Committee: Evidence
20 October 2004 Dyfed-Powys Police
Q95 Mr Edwards: Could you say something about four police services. You would not do that. You your link or the links of, say, your command teams would choose one of them and work to that. It is a with local Members of Parliament? measure of what you want from the police force. Do Chief Constable Grange: We meet with them once a you want it to be very closely linked to its public. year about financial matters, usually round about Then you start with defining “the public”, from a now. We meet with them fairly regularly. If they street up through a village to a town to an have an issue, they write in and we respond. If they identifiable county to its police force. You could want to come and have a chat, they come and have have, as I have, four divisions or six. During the last a chat. The relationship is usually as the MP wishes fire strike, in dealing with the fires, we took over it to be. Again, I think that is right and appropriate. Swansea and Port Talbot from my headquarters, There is a tension between MPs, AMs and the and we could as easily do it for policing. If you Assembly, but that is their tension. looked at southern Wales, Gwent is 30 miles by 30 miles. Why? It is a logical question. We have asked Q96 Hywel Williams: May I ask you finally about it. If necessary, we could reconstruct policing in your view on the benefits or disbenefits of reducing Wales, if people wanted us to do that. The diYculty the number of police forces in England and Wales? would be in having one police force because Chief Constable Grange: If you were to ask yourself Snowdonia gets in the way, and we literally have a question about what would be the appropriate nothing to do with north Wales. Everything comes structure for policing England and Wales on a blank in east to west, as it does for them. North Wales has screen, the answer would not be 43. For instance, the very thriving collaborative arrangements with City of London would not exist, and neither would Chester and Greater Manchester, as they should, Gwent. Why would it? The logic is just not there. If but you would never have 43 police forces, and you you are going to take a good look at how you would never have the Metropolitan Police the way it structure police forces, you should not even do that is structured either; it is just too big. of itself. You should ask yourself about the Chairman: I am sorry it has been a marathon, provision of emergency services. You would not, in Mr Grange. Thank you very much for your patience. my view, construct 43 police forces, or, in the case of I apologise for the division, once again. It has been Wales, one ambulance service, three fire services and a very interesting session. Welsh Affairs Committee: Evidence Ev 17
Wednesday 27 October 2004
Members present:
Mr Martyn Jones, in the Chair
Mr Martin Caton Albert Owen Mr Huw Edwards Mrs Betty Williams Mr Nigel Evans Hywel Williams Dr Hywel Francis Mr Roger Williams Julie Morgan
Written evidence from South Wales Police is printed on Page Ev 266
Witnesses: Chief Constable Barbara Wilding, Assistant Chief Constable David Francis (Community and Partnerships) and Mr Paul Wade, Director of Finance, Administration and ICT, South Wales Police, examined.
Q97 Chairman: Welcome to the Chief Constable and CardiV University and Swansea University have a colleagues before the Committee. I want to thank population together which is larger than many you for a very detailed and informative brief in towns in Wales. We then move along from the old which you have addressed all the concern the mining areas to areas of manufacture, along the Committee are looking at currently. It is very kind of coast and into the towns, and it comes obviously you to come. I am sorry about the delay in starting; down to the Gower. Also, of course, we have the it is almost inevitable that the private session takes ferry port at Swansea which has a very strong longer than it should. Could you perhaps briefly connection with Ireland. We have also flights introduce yourself and your colleagues for the coming into South Wales from Ireland, so we cannot purposes of the record, please? ever forget very much about Irish terrorism. Chief Constable Wilding: Yes, of course. Barbara Looking at international terrorism, CardiV is on the Wilding, Chief Constable of South Wales Police; on international map because, through its sporting my right is Mr David Francis, who is the Assistant events, it is internationally seen. We know—it is a Chief Constable responsible for community and fact—that they are a vulnerability, events where partnership, and on my left is Mr Wade, who is the large numbers of people gather, and so we have to Director of Admin, Finance and IT. Behind me is police these issues not just as public order but also Chief Superintendent GeoV Cooksly, who is in potentially to deal with terrorism as well. If we move charge of corporate development, my staV oYcer, up into the valleys you will know that in the force Chief Inspector Matthias, and Phillipa Merritt, who area we have 44 of the 100 Community First areas in was here last week, I understand. I do not Wales, highly deprived areas, where we are on understand; I know she was. second and third generation of families not working and, indeed, third generation of single parents as Q98 Chairman: One is prompted to ask: who is well. There is not, though there are quite depressed looking after the shop? areas . . . Clearly, with the title “Community First”, Chief Constable Wilding: I was thinking that they are depressed areas and therefore they have myself actually! become a natural attraction for drugs, local drugs, suppliers coming in from all over Bristol, Liverpool, Q99 Chairman: What are the special issues involved London, moving into the area. So we have local in policing that you have such a diverse area? There drugs activity and we have the supply side, the high must be special issues for your area. Could you level side. Where you have that you have the perhaps outline some? potential also for organised crime, and there is a Chief Constable Wilding: Yes, of course. The footprint in South Wales for organised crime. Our policing challenges of South Wales are quite role is clearly to stop it getting any bigger and to complex and, as you quite rightly say, they are eradicate it. That is a quick overview of the diverse. They range from policing a capital city that complexities of policing there. sees every weekend an extra 60,000 people coming Chairman: A very good overview it was. Mrs into the capital city, mainly to enjoy the Williams. entertainment and the licensing trade of the city, the cafe society, to policing the millennium stadium, Q100 Mrs Williams: Good afternoon. where we are still seeing the Wembley events, and Chief Constable Wilding: Good afternoon. that has certain pressures, of course. We have some games where we can manage just with the local Q101 Mrs Williams: Could I ask you what are the oYcers policing it and others, such as the FA Cup, main drivers in determining policing priorities in where we have to ask for mutual aid from other South Wales? In your introduction you mentioned a forces. In fact, on the FA Cup this year we deployed few issues. Could you tell us, are there any 901 oYcers. Moving on to its airport, it has got the diVerences in drivers of priorities amongst the Basic fastest growing airport in the United Kingdom. Command Units (BCUs) within the force and are Ev 18 Welsh Affairs Committee: Evidence
27 October 2004 South Wales Police there any tensions or, indeed, conflicts between the police to try and do anything on their own I think force and the local level on the one hand, and the would be crass in this day and age. Working with the force on national level on the other? community safety partners, with the local authority Chief Constable Wilding: The main drivers, it is quite having a key role there, but other partners also a sophisticated way. We now do what we call a having key roles, must be the way that we can do the “strategic assessment” of the force, of the issues best in terms of local service to the public. aVecting the force. That has been completed. We look at it every six months as well to see if that Q103 Mrs Williams: You did not mention anything should be changed. That tends to tell us what are the about the national intelligence model. issues now but what are the emerging issues as well. Chief Constable Wilding: In terms of community We engage in a tremendous amount of consultation safety partners? with the public. In fact, last year we sent out 25,000 surveys to members of the public. We engage with Q104 Mrs Williams: Would you like to comment our victims. Last year also we held focus groups with on that? the hard to reach groups in order that we could Chief Constable Wilding: Indeed. The national establish what were the issues for them. The Police intelligence model is a model that was mandated Authority engage in a considerable amount of pretty much about two/three years ago now. The consultation to find out what are the issues for the force is compliant in each of the areas in relation to local people. Within each BCU there will be diVerent the national intelligence model, and that mainly has issues, and, therefore, the BCU plan is put together been focused on crime in gathering intelligence on taking account of those issues that we at the centre crime and then finding the hotspots, all those sorts of have pulled together and aggregated up. They are things, and being able to tackle and put the resources corporate issues, and the BCU can also add on to into where the hotspots are and to work with our that plan the issues that have come out from the local partners in designing out crime in those areas. consultation as well. So there are diVerences, there Within the Community Safety Partnership there is a are bound to be diVerences, because they police tremendous amount of intelligence on community diVerent areas with diVerent concerns, but there are issues, which at the moment we are only exploring no diVerences in terms of the corporate part of it. how we can exchange that intelligence, how we bring Looking now at the national plan, the national plan it together, in order that we can have an assessment has hitherto been quite narrow and originally was of community intelligence so that we can be all just focused on burglary, violent crime and auto gauged towards doing the right thing in the right crimes. It was very narrow, very crime focused, place at the right time and our eVorts towards that. which was great if you lived in an area where they We started that in Rhondda Cynon TaV. They have were issues, but where perhaps they were not issues, chosen four areas to pool all their intelligence over, it meant that we were probably putting our resources the agencies. We have got over the confidentiality more towards those issues that were measured over issues. I have to say that the Bichard Inquiry was a than perhaps with the local concerns. I am very glad great encouragement in that area, and we are to say that now that is changing; that national plan working with the Information Commissioners as is becoming broader now and also it is becoming the well to make sure everybody is comfortable in area that we wanted to focus on, which has been sharing their intelligence. It is going into the anti-social behaviour and looking at customer focus; partnership, which is a very wide partnership, I have and I am delighted; I think that is a great move for to say there, and the four areas are: anti-social the future. The tension between the national plan, behaviour, juvenile oVending, domestic violence, therefore, I think was mainly historical, and I am there is another area which escapes me at the hoping, I do hope for the future with this greater moment—I am sorry, I cannot remember what the range and the way in which we are being measured fourth area is—and they are now pooling that in a number of other domains now it more reflects a intelligence. They have employed an analyst, and, greater range of police work rather than a narrow for the first time, we are going to have good range which did deflect us under the past. community intelligence which will fall into the national intelligence model and which will help the Q102 Mrs Williams: What about Community Safety Community Safety Partnerships work together in Partnerships? what . . . Apparently it is child protection. I beg your Chief Constable Wilding: I am going to ask Mr pardon. So that will help them formulate their plans Francis to answer a question on Community Safety and to see where they get their best return for their Partnerships, because that is his side of the business, eVorts. and he will give you all the insight into that. Assistant Chief Constable Francis: Community Q105 Mrs Williams: You note in paragraph 3.2, Safety Partnership is extremely important to the “Local police activity was often prioritised with people of South Wales. When one looks at the national targets in mind and sometimes at the problems that our communities face, it is very rare expense of more local concern. A requirement to that any one agency can actually solve the problems. meet national targets has sometimes skewed policing When one looks at the social and economic resources away from lower level public nuisance problems, employment, education, health, they tend issues.” Could you tell us, first of all, are all NPP to often be at the heart of the complaints and the targets appropriate to your force and to what extent problems that are troubling communities. For the do you have to cut back on services you would like Welsh Affairs Committee: Evidence Ev 19
27 October 2004 South Wales Police to implement because of national imperatives, and community issues as well. So that will tell us where what level of resources have been realigned to meet we have to focus some of our resources, but, we must nationally set targets away from local needs and never forget, the local people will tell us what they neighbourhood policing? want to focus on. What would I focus on diVerently? Chief Constable Wilding: As I said earlier, the Had I been sitting here a year ago, I would be telling policing plan has hitherto been very narrow. you very firmly I wanted to focus on what mattered Therefore, we are judged by being a family of forces. to the local people, and I would want to come up We are measured through being in this family of with a policing structure that would allow me to forces. There are eight in the family and clearly deliver that, and that comes down to a modernised nobody wants to be at the bottom of the pile being workforce really. I could give you lots of examples measured. So we do put resources towards what where it has been my extended police family who have been the national priorities. It is a fact, have done things within communities that have therefore, that we have not always been able to made people’s lives so much better, and some of invest the same sort of resource in those issues that them such simple things, where people were perhaps have aVected local people, and that has been a unthinking about their neighbours and uncaring, historic case. What we are looking at now is that the but, the moment it has been brought to their National Policing Plan is changing and that we are attention, things have stopped. So I would like to going to be measured against a range of other commit those resources to the front line. I am doing measures, which include customer focus, customer that now knowing that I am not going to be beaten satisfaction and the quality of service we give people, up in the press, because my resources have not all not just the quantitative terms but the quality of been targeted at crime. I am doing it now because I service. We are going to be measured against that, know the National Police Plan is changing to which means that . . . We had a planning meeting accommodate that. I have to say, the timing of the last week with my chief oYcer team for two days to publication of the plan is not helpful; it is coming out look at the plans for next year. For the first time I am in November. We have started our consultation sending a very strong message out to the force to say, process already. We have to start thinking about the “Yes, crime has been very important and everyone budgetary process, what we can aVord to do, and in has been very successful.” At the moment crime in our force we have decided to ask to look how we can South Wales Police for the first five months of this reshape the force—that is not to cut anything, but year is down by nearly 10%—they have been very how we can reshape the force to move resources, successful—but what we need to do now is to make more resources, into our community focus. sure it is a quality service that they receive as well. So we are going to invest in resources next year, a Q107 Mrs Williams: Would you, therefore, say that tremendous number of resources, in providing that the national intelligence model and the police quality of service on both counts. The BCUs are performance assessments hinder rather than help the measured amongst their family of BCUs, and I am police in providing services based on local needs? sending a message out to them to say, “You will be Chief Constable Wilding: No, it helps. By extending measured in both of these areas in how you manage into the community intelligence, it will help even crime and how you will manage the response to more. I am convinced of it. customer focus.” It will be tricky for them, and it is a balancing act, but they are good people. We give them support, we give them training and, frankly, Q108 Mr Evans: Good afternoon. Looking at anti- they would not be doing the job if we did not think social behaviour and the ASBOs, you can see in your that they could manage that juggling act. Hitherto submission that it has a disproportionate eVect on there have been tensions, I suspect there will be still the quality of people’s lives and you get your defence be some tensions between the two plans, but I do in early on and, say, “Perhaps the low level or low have some hope for the future, that it is getting number of ASBOs is because our strategy is broader and it is more focused in what the public working”. Put that to one side for a second. Looking want. at the figures of the number of ASBOs that were given between 1 January 2003 and 1 September 2004, that is a 20-month period, I have worked out Q106 Mrs Williams: You have mentioned it briefly, there are 69 in total. So that is just over three a but if you did not have national targets, what exactly month. In some areas like Swansea, only three were would you do diVerently? Which areas would you given during that 20-month period. I come from prioritise, for instance? Swansea and, I have to say, I am staggered at that Chief Constable Wilding: Again the model, the figure, that it is not much higher. Even in CardiV it national intelligence model, clearly tells us which is only 24; in other areas, like the Vale of Glamorgan areas we have to be concerned on through the only three; in Bridgend two. That is in a 20-month strategic assessment that is done of the force, and period. Are you happy that those who deserve the next week you are visiting my force area, I can allow ASBOs are getting them? you to see a copy of it, which might be of interest to Chief Constable Wilding: If I was to look at those you. In Wales, as a matter of interest, each force has figures as the single indicator, I would be deeply done its assessment now, and we have put that unhappy, and I would not want to be sitting here together in a Wales assessment as well which drives before you in that position, frankly; but the position our Tarian. What are the mere crime issues? We are I come from is something totally diVerent. I would now wanting to extend to it to what are the like to put the context. I know we have not got a lot Ev 20 Welsh Affairs Committee: Evidence
27 October 2004 South Wales Police of time this afternoon, but this is really important. behaviour of any kind, they can do so. Because of Our framework has been acknowledged as being our structure that then goes into the local Anti-social National Best Practice, our anti-social behaviour Behaviour Unit, there is a database in those units framework has been acknowledged as being that is added to and it is in constant withdrawal to National Best Practice. Last week the Chair of the see how this is being aggregated upwards. The anti- Youth Justice Board commended it as National Best social behaviour orders, the letter that you talk Practice and commended my approach to anti-social about, I think to know that they have just received behaviour in the round, not just in ASBOs, resulting a letter—is it not important that the behaviour has in an ASBO, as indeed did the HMI, when they have stopped? That is the important thing, surely. The done, this year, two base-line assessments on two of fact that little Johnny down the road has been our divisions, one of which was Swansea, and have causing a nuisance but has received a letter and the said how the early intervention programme is behaviour has stopped, surely that has worked. We demonstrably assisting young people and aiding monitor the displacement end, and there is very little others in their quality of life. So I feel quite confident displacement; but if it does not stop, then they get in saying to you I commend our framework—I the second letter and they get a visit as well, and then believe it is working—and I am going to hand you there is intervention to see what can we do with this over to Mr Francis who has some interesting person. It is not all young people that cause anti- statistics that shows you it in the round rather than social behaviour. We often quite glibly talk about in the singular. little Johnny, but we should remember that we are Assistant Chief Constable Francis: We are proud of quick to criticise young people but we are very slow the framework. It is one of the best structured. If I to congratulate them. could just say, the Swansea BCU is one of the better performing and one of the more progressive Q110 Mr Evans: And his big brother is worrying too. partnerships in dealing with anti-social behaviour; Chief Constable Wilding: Yes; quite. but the figure of 69, that stark figure, does not actually reflect them when you look at the Q111 Mr Evans: Bigger Johnny. framework that we have, which is a staged Chief Constable Wilding: Yes. framework, steps one, two, three, four, and we can always jump those in extreme cases, but in that Q112 Mr Evans: I appreciate all of that. It is taking period 3,000 stage-one letters were issued, 500 stage- the public with you really, which is part of your two letters and visits, 43 stage-three visits and 75 partnership that is there? acceptable behaviour contracts; and the point that Chief Constable Wilding: It is. the Chief was making was that with all those figures Mr Evans: Is there as part of your strategy an V behind that, and you see the drop o from the 3,000, opportunity for the people of Swansea, for the early intervention, the confronting the young instance—and I pick on Swansea because it is the people, meeting with their parents, explaining the area I know really well—if they are unhappy with impact and explaining consequences, we would feel your what you are doing—they hear he has been sent that taking that approach, the preventative early a letter and then he gets another letter and it is still intervention approach, is very important indeed, there—do they get an opportunity to—is there a and the 69, you could strongly argue, is a reflection dialogue that is established between the complainant of success in taking that proactive approach at an and yourselves as to when they say, “Listen, my life early stage. is hell now. This person needs an anti-social behaviour order”? Q109 Mr Evans: Do you think that is what the public in Swansea feel when people who live in certain areas Q113 Chairman: Would you like to answer that will know the persistent young thugs and yobs that question before I call the committee to order. make their life an absolute misery? How do you Chief Constable Wilding: Yes. I will be very quick. I think they feel when they find out that little Johnny, would say I have never had any letters of complaint the thug down the road, has just received a letter to of that accord. I go out a tremendous amount and I tell him to behave better? Are you taking the public have been to the areas of high crime and depressed with you on this, because whenever I go back to areas. People come up to me and say, “They are all Swansea and I read the South Wales Evening Post, away. They have gone. It has stopped”, and I have it does not seem as if everything is peaceful on the been out into the Swansea area as well and I have streets, to be honest? never had people come up to me and say, “It does Chief Constable Wilding: No. I could make many not work. Your process does not work.” The fact is, comments about media, but this is probably not the we could skip any stage of the process if it seems that place for it, having been misquoted on many people are not listening to what is happening and occasions, and I am sure you have been in the same they are not acting by it. position. What I say about little Johnny on the Chairman: I am afraid we have a division in the street, if little Johnny on the street is a thug and we House so I am going to suspend the sitting for do not know about it we are failing. We have in the fifteen minutes. force area leaflets throughout the force area at The Committee suspended at 3.31 p.m. until strategic locations where the public go, libraries, 3.45 p.m. for a division in the House etcetera, where if they wish to put in any information regarding somebody who is causing anti-social Chairman: I understand there might be another Welsh Affairs Committee: Evidence Ev 21
27 October 2004 South Wales Police division in 45 minutes, so we will try and get on as indeed, somebody in their family is being completely fast as we can, if members would keep their anti-social. Perhaps you could say something about questions as succinct as possible and, so far as you how you define anti-social behaviour? can, the answers as well. Chief Constable Wilding: It is a very wide area; it is a very wide, diYcult area. What is someone’s tolerance and what is someone else’s intolerance is Q114 Mr Evans: Are you surprised that I am so Y cynical about this approach, about the number of extremely di cult, frankly. If we were to have a ASBOs, because there is no-one who knows the national definition, I would absolutely want it to be people of Swansea like I know them. I would expect underwritten with some academic rigor, without any them to think that there would be considerably more doubt. I would not want a definition that is so broad over a twenty-month period than just over three a that the expectation of the public means we satisfy month? nobody. I would simply want it to be—I would want Chief Constable Wilding: I suppose if you looked at some academic work done to be able to generate a that and said that our calls for anti-social behaviour, definition which we could all sign up to. I have not the instances of anti-social behaviour, were running been primed in division time by the dear professor, out of control and we were not doing anything about but what I would say is that anti-social it, I would frankly say that, looking at the figures behaviour . . . I am conscious I have to be quick but that have gone through the process, I think they are I think it is important to state, recently a PCSO said fairly impressive figure and I think I that the drop that she had become aware that a lady who was in out rate . . . I commend the whole Bill, I really do her home, who was disabled, only went out once a commend it, because it allows the interventions at an week when her friend used to take her out and, if she early age, and to have such a drop out from 3,000, I went very far, she had to go in a wheelchair, was very think, to 500 tells you actually, and it is the range of distressed by the fact that the neighbours parked what the behaviour is as well. If you take anti-social their car outside her house and that her friend had to behaviour orders as a sign of success, then I would park some considerable distance away, which meant say, “Yes, it looks pretty disappointing”, but if you she had to go in the wheelchair and could not just look at it in the round of what we have achieved, let walk to the car. The PCSO went to the neighbours me just tell you, not coming out of Swansea but not and said to the neighbours, “Do you understand?”, far away in Bridgend, the Wildmill Estate in and they had not understood at all because their Bridgend, by working with the partnership there—it children had now grown up and they had cars, so the is not a Community First area but it was a very parking lot had extended and they had not depressed high crime area, and we put in three understood. They no longer park there. That could PCSOs and 500 hours’worth of Specials’ time and be defined as being anti-social behaviour, but in working with our partners they have introduced actual fact it was somebody just not thinking. quite a lot of youth activity and a youth worker and took over a shop as a drop-in in fact. The calls to Q116 Mr Evans: I accept that, but the anti-social bit, police for anti-social behaviour went down by over most people would judge that as anti-social and, 50%. The recorded crime as a result of anti-social when it is pointed out, they do something about it. behaviour went down by 44%. Crime overall went It is when it is pointed out to somebody and then a down by 78%. On that estate they did not have an tirade of four letters come about, a completely ASBO, but they have gone through processes and abusive reaction on behalf of the next-door they were intervening early on. That has to be the neighbour, that, as you know, neighbourly disputes right thing, surely. If you are saying to me that there then turn into disproportionate conflicts that lose all are areas of Swansea where people are very proportion, which is very sad. concerned that we are not acting on anti-social Chief Constable Wilding: We have a history of work behaviour, I have to say I would be surprised with our partners of moving people, through because Swansea has won all sorts of awards for it housing, because our partners extend to housing attitude towards community work. It is up for within the Community Safety Partnerships. We have national awards. Indeed, the Chief Superintendent a number now where they are altogether in one from there, only three or four weeks ago, won the building, all the people are represented in one national award for working with diversity. It is not building. We are working towards sharing the same a BCU team that is adverse to looking at problems IT systems, which is a little tricky but we are getting and dealing with problems, but if you want to there, and we have a history, we have a proven measure it just by how many ASBOs they have got, history of working with our partners of moving of then, yes, it is a failure, but I certainly do not see it neighbours, moving oV the estates. like that. Q117 Mr Evans: Is there anything else you would Q115 Mr Evans: Maybe it is because of what you say want to do as far as trying to tackle the anti-social in your evidence right at the very beginning, that behaviour that exists? If you were given a complete there is no overall definition of what anti-social free rein, is there something that you would really behaviour is, and maybe if there was one that was love to do? defined every police force in the country could judge Chief Constable Wilding: When I was a sergeant in it by that and, indeed, the person who is being anti- the West End here in the Seventies I got berated for social and the parents then may also be able to saying that I actually wished intervention to happen independently judge as to whether their child or, very early on and that before people become parents Ev 22 Welsh Affairs Committee: Evidence
27 October 2004 South Wales Police they are taught the parenting skills, and all the rest Q121 Mr Evans: So your message to other police of it, because I do genuinely believe it starts in forces around the United Kingdom is, “Look at the home. The earlier the better, frankly, the what we are doing. If you are giving a high level of interventions in the home, to give aspiration in the anti-social behaviour orders, there is something home and to make sure there is structure to mature wrong with the way you are policing that anti-social people’s lives and to children’s lives. It is not a behaviour”? policing issue, this is our partners’ eVort, but I would Chief Constable Wilding: And maybe your partners. be willing to lead that eVort to get people to do that, You need to look at the partners. As I say, we have to intervene. In Merthyr Tydfil they are doing some been quoted as being National Best Practice, and I work, in fact, with single mothers, particularly firmly believe it is because I have seen it work. giving them skills to get them out of the home and raising their feel-good factor about themselves. So it Q122 Mr Caton: Chief Constable, we may have a is at that end, because I genuinely believe that is diYculty with the definition of “anti-social where it starts. The socialising of young people— behaviour”, but we do know what crime is, and talk to any head teachers, junior school teachers— thinking of little Johnny in Swansea, is it not the case they will tell you they spend a lot of their formative that you and your partners have reduced youth time in school socialising the students to talking to crime by 30% using the strategy that you have? each other, not just resorting to violence and Chief Constable Wilding: Yes, indeed we have. physical attack. Again, that comes round to domestic violence. I would want to do a lot more Q123 Mr Williams: On a slightly diVerent issue: I with domestic violence, because it is what people became a aware yesterday that there is another sort witness in the home behind closed doors; they then of order, a risk of sexual harm order, under the become—there is an awful lot of empirical data Sexual OVences Act 2003, and it just seemed to me— which shows they become victims or they become it is on the same lines as an anti-social behaviour abusers in the future, and it is that bit about people order—has your force ever used those? not talking to them, not discussing and having that Chief Constable Wilding: I will just ask. No, I am not socialised life, that is where I would like to put aware of it, but we do have what I believe to be a more eVort. robust system for dealing with public protection which looks at children right the way through dangerous oVenders, etcetera, etcetera, and I am Q118 Mr Evans: Are you getting support from convinced that if they needed to use it they would use parents? it, but I will check when I go back and it is Chief Constable Wilding: I think the drop out rate information I will be able to pass to you and to the shows you. 3,000 to 500 shows you that when it is Committee on Monday. brought to the parents’ attention something is done about it, with little displacement, something has Q124 Mr Edwards: I want to ask you about serious been done. and organised crime and the problems we face in South Wales. Can you tell us about the impact of Operation Tarian in combating serious and Q119 Mr Evans: You are also happy with ASBOs organised crime in your force area? per se as a vehicle for sorting out anti-social Chief Constable Wilding: Operation Tarian started behaviour even when it may happen that a youngster in embryo form in 2002 and then became fully may get sent to prison? operational on 1st January this year, which has the Chief Constable Wilding: Yes, absolutely? components now of a taskforce with an intelligence cell; it also now has the regional intelligence cell for Special Branch; it also now has the asset and Q120 Mr Evans: You are happy that that is the right confiscation team, the IRAT team, in there; and so place for that person then? it is now a very sophisticated team altogether, in fact Chief Constable Wilding: Yes; I do not have any one of the most sophisticated in the country. It problem. I perhaps disagree with some of my originally was set up to look at the higher level of colleagues, but I do not have any problem at all with drug activity with class A drugs, as that was seen to someone appearing before a civil tribunal, being be where the analysis showed we tended to face a made subject to an order and then failing that order problem, and it was evaluated, in fact, by Professor and going to prison. It has happened for yonks— Levi’s team, in the first year and has been found to people who are debtors and all sorts—from a civil have achieved every one of its—outstripped each of action, absolutely: because if they have got to that its targets both for seizures and for asset recovery, point with our process, I am absolutely confident and the proof, if you like, is that we have had 17 less that, had we been able to intervene and deflect them deaths from drug overdose in my force area—17 less, into a better way of life, it gives them absolutely which is 17 less miseries to families, etcetera, every opportunity. In my service of 33 years I have etcetera, and that is very important. So their asset met very bad people and I have met mad people, and confiscation has increased. Between April this year I am afraid I like to think that we have come down and September this year the arrests have gone up by to a core. In Neath and Port Talbot they have got 14%; the heroin seizures over the same period have three in prison at the moment who have breached gone up by 31% against the same period last year; their orders. and I think it is extremely significant because one of Welsh Affairs Committee: Evidence Ev 23
27 October 2004 South Wales Police my team was asking for more resources for it. They but we have more collaboration outside of Tarian as may imagine I go in to challenge as to why do they well. We have at the moment a programme that my need it, do we know it is working, and am able to cite Deputy Chief Constable is the programme manager very clearly that operation Tarian has been highly for, looking at how we will—looking at the back- successful in stopping the spread of gun crime room services, seeing if we can collaborate on back- coming into the cities of Wales as a whole, room services to make us more eYcient and eVective, particularly in South Wales. We have not seen the and, equally, looking at that higher level of drive-by shootings, we have not seen the activities criminality which we call Level 2, which is not the that Nottingham has seen, Bristol has seen, local criminality but it is those that organise local Birmingham has seen, I can go on, Manchester has criminality and profit from it and operate and then seen, yet we have dealers coming from each of those move into the national level. So we are looking at areas into our area. My expectation, having those areas. It is a fact that I have the largest number, operated in this area for a very long time, is to say I as you would expect, of oYcers who are deployed to would not expect them to be wholly eVective for look at that Level 2 activity in my force, but it is also probably about another year or so because they are a fact that the skills that you normally—the building up the intelligence base, but the financial technical devices, the skilled areas, the covert areas side of it is proving extremely interesting. That gives that one would normally authorise to go to the us a lot of intelligence and will mean that we are higher level of criminality now—because of the more eVective. I Chair the Strategic Oversight methods of working at a local level, we have to Group of Tarian. On the last Strategic assessment authorise for a local level. There was a recent drugs there was some suggestion that we should move operation in Merthyr Tydfil where they arrested 19 away from drugs into other sorts of crime areas, to people, the covert buyers there. They had 32 buys which we agree. At the moment we are scoping fraud and every one was heroin; so we have had to use and at the moment we are scoping immigration as covert technical devices even working on a housing well, with our partners, not just ourselves. We are estate in order to be able to arrest these 19 people scoping that. So we are starting to look around who were making that housing estate miserable and because the intelligence is taking us into diVerent controlling the drugs there. I am glad to say that areas, and it is, quite frankly, my experience that between them they got 92 years. I was absolutely people who deal in drugs at a higher level will deal delighted. The evidence was good. The evidence in any commodity where there is a quick buck, but gathering was excellent. So we are collaborating on people who deal in fraud and forgery tend to stay the higher specialist areas, and I have seconded within that area; they tend not to move out of it. people from Dyfed Powys into my area because What we need to be acutely aware of is that not just they, frankly, do not get the experience in Dyfed the up-front drug use, all the activities that go on Powys to be able to deal with these sorts of crimes, behind how they fund it, what they do with the and I have young, and some young flyers as well, proceeds, etcetera, etcetera, and we need to be cuter. who need extra experience whom they second to us, Operation Tarian will shortly be extended to include we keep them for a while. We have one in Swansea at a witness protection team and a prison intelligence the moment. We have people who come to us, and, team as well across Wales to give it the best of all the indeed, the Chief Constable of Dyfed Powys recently intelligence that we have. We are very fortunate now explored with me the fact that we might service that the National Criminal Intelligence Service has provide his investigations into serious crime because moved their oYce in with Tarian so we are now tied his senior investigators do not get the opportunity to into the national perspective as well. practice their skills very often.
Q125 Mr Edwards: Can you say something about Q126 Mr Williams: Perhaps you could tell us what the collaboration between forces on Tarian? method you use to find out what the public in South Chief Constable Wilding: Indeed. This is not just Wales think about their police force and the service South Wales at all. The set up in terms . . . You may it provides for them? expect, because of our size, we have more people Chief Constable Wilding: There are two areas. One who are seconded to operation Tarian than the other side is the Police Authority, who statutorily are forces. North Wales does not second anyone in required to consult members of the public, and, as I terms of the tactical side because their crime and referred to earlier, they hold meetings and they are their criminals tend to come more from Merseyside starting to hold their meetings at the moment in each and GMP, the mountain range in the middle is very of my seven areas, the unitary authority areas, to see good, keeps them one side, although it is a very good what the public want. They are also at the moment break, and so that in Merseyside and Manchester, it standing outside areas where the public gather in tends to be there focused. So they are in the great numbers, so shopping malls, areas of intelligence part mainly, gaining the intelligence. entertainment, and they are stopping and asking The three Welsh forces second people across the people what they want from their police service and piece and, in fact, the Regional Intelligence Unit is what they think about the police service and, if they overseen by an oYcer from Dyfed and Tarian is had £120 to spend each, what more would they want overseen by an oYcer from Gwent, as supervisory to buy with policing, which is quite a novel approach oYcers. We work together, we fund together and we and I look forward to seeing the results of that. So have some Welsh Assembly government funding as there is no lack of willingness on their part, I assure well. That is the degree of collaboration that goes on, you, to consult the public. Last year, as I say, we sent Ev 24 Welsh Affairs Committee: Evidence
27 October 2004 South Wales Police out 25,000 forms to the public (questionnaires) to Q129 Julie Morgan: Assistant Chief Constable ask them what they thought about us, were we Francis mentioned the use of volunteers. I wonder if concentrating on the right things. We also consult you could expand on exactly what volunteers would victims of crime, follow-up telephone calls to victims do and do you have any already? of crime. What was the service? How did they feel Chief Constable Wilding: I wonder if I might leap in about it? The interesting thing: we are going to move and answer that, because I was at a community into a new area now. We recognise that is what we meeting not very long ago where they were talking have done, it has been tried and tested, but have we about the time that the police station was open and really got to the issues? That is the big question. So all the rest of it, and they were saying, “We would be we are now going to try something new. Perhaps happy to go in there”, and I said “Why not then?” David would like to come in. We agreed last week There are lots of people out there who are very this is what we are going to do. We are going to put willing, very community focused, really care about resources into this. their communities, who are very happy to go in and Assistant Chief Constable Francis: What we want to do things in their police station. One of the things do, and we are well down the road, is to get ahead of that we envisage from our volunteers is that they will police reform agenda that is developing, as we have be doing some of the routine things, like phoning seen through the recent results of building safe people back who have perhaps phoned us and said communities together and anticipating the White what that they have seen and we do not go back to Paper, if one can anticipate its contents. We are them and tell them what happened, what was the looking to put greater emphasis on the sector consequence. They are not actually victims, but they inspector through whom teams of police locally will are people who have contacted us. So it is police operate, and we will be looking to put the contact. I want them to be there so when people have mechanisms in place where there is more meaningful contacted us they actually get another response: consultation with the local community in the sense “Are you happy with the service? Is there anything that there will be a clear structure that all 34 sector more we can do?” That is real customer focus, but we inspectors will be held to and we can actually check are honest as well and we say when we cannot do the local discussion and the outcomes from those more than we can and where we have passed things discussions. Also we are going invest energy in trying on and another partner agency has not picked to build that base in terms of the extended police something up, but we are honest. Obviously there is family. Given the limit resource that we do have, I a confidentiality factor. If we can structure this expect—well, we are going to increase the Special correctly, with a short training programme, with the Constabulary numbers by a hundred in the next two right support, I think that this could be the thing that years, we are going to invest in volunteer schemes— we have all been looking for for many years, because hopefully we can encourage 200–300 volunteers to it has always been a factor, “Oh, the police do not get join us on that clustering around the sector inspector back to us. They do not tell us what has happened.” and the community based oYcer. We are waiting for This is where I want to focus those volunteers, in that the result of the bid on PCSOs. That is currently with contact getting back to the people who have been in the Home OYce. Whatever we get there we will touch with us to see if there is any more we can do actually be fairly into trying to expand our for them. In fact, they are doing that now, not with Communities First teams and our community base. volunteers though, with police oYcers, on two of my All of that will slowly but surely build into a much BCUs, and it is causing little problems because they clearer structure and framework that we are getting are being measured, the team is being measured, the a much better sense of what the public want from us oYcers are being measured. Have they gone back to and we can hold our local resources to account as people? It is proving quite interesting, and I am well. hoping to have the results of that quite shortly of how the customer felt. Do you want to add anything, David? Q127 Mrs Williams: On the point that you, Chief Assistant Chief Constable Francis: If I could just add, Constable, have mentioned, you talked about we are very conscious of the contribution that the consulting victims of crime. How close do you work existing volunteers make. Neighbourhood Watch, with Victim Support Schemes in South Wales? Victim Support, general members of the public who Chief Constable Wilding: Very closely, and they are are volunteering their time, and the Special present. In fact Victim Support coordinators are Constabulary. The Chief has identified there is present with our community teams in quite a another element there in terms of attracting number of our police stations. They work from those members of the public. What we would like to do is police stations, and it works very well indeed. I have gone out and I have talked to Victim Support teams bring in those existing groups, recognising that they as well. They have my whole-hearted support, and I are volunteers, and ask if we can sit down—a bit like always check to make sure that (a) we are referring using the national intelligence model—“Can we the right people to them and the fact that they have better coordinate all our activity to fill those gaps the resources to do what they need to do. that currently exist”? We could see, with a fair wind, in three years, perhaps 600, 1,000 additional people being brought to in work with us, many of those Q128 Mrs Williams: You operate an automatic being members of the communities that are saying referral system? that they are not getting the right service from us Chief Constable Wilding: We do. that they want at the moment. Welsh Affairs Committee: Evidence Ev 25
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Q130 Mr Williams: Getting back to Consulting the jobs, that they have ability to do the jobs as well. Put public what do the public think you are doing well? those two together. As I mentioned earlier, the If you are having trouble with that, what they think national framework was very restrictive. They were you are doing badly? judged by it. Each of them are in a set by which they Chief Constable Wilding: Before I answer that, I are judged within other BCUs up and down the wanted to make sure that it has not reduced, that it country. I am very pleased to say that most of my has improved. The overall level is in the top 70s to BCUs are either number one, two or three in just early 80s, I think, 86%, 86% of people think we do a about every data-set you can think of within their good job. BCU families, and so that has not always been at the exclusion of the local people. They have done their Q131 Mr Williams: Any specific aspects of your very best; and what I noticed about going to South service that they think you are doing well? Wales is that the partnership working does work Chief Constable Wilding: I will check. They are well. In some areas it works better than in others victims of crime who think that we have done a good obviously, but it does work well. They have worked job. Of course, in many ways, one has to say that is well with their partners to make sure that they can more about the feel-good factor rather than have deliver what the local people want, and I think you they by our standards done a professional job. are seeing those results now. If crime was falling tremendously but my complaints and you good folk were writing letters to me consistently about poor Q132 Mr Williams: I think we were told by the Chief performance, behaviour, etcetera, etcetera, and the Constable of Dyfed Powys last week that where you press were berating us, I would know we have got the have little crime people are more shocked by a crime balance completely wrong, but that is not the case; than when you have high levels of crime. Would you and as I do go out into the communities. On my first like to comment on that? week I got a handwritten letter from a lady saying, Chief Constable Wilding: The impact of crime is on “Please do not take our Communities First teams anybody. Whether you are used to crime being away from us; I would like to tell you what a committed in your street or not, it still has a marvellous job they are doing.” So I went to see her. devastating eVect, depending on the sort of crime, She brought the neighbours in, got the best china out but, yes, I could see that in an area where you and invited all the oYcers from the Communities perhaps do not have any crime whatsoever and then First team to tell me what a marvellous job they were you have one, it is very worrying, it is very worrying doing and how they had turned round that estate, indeed, and the impact therefore probably is pretty and it was tremendous, absolutely tremendous. I great. Could I just talk about our Community First hope you may have an opportunity to meet her, a teams? I mentioned earlier that we had 44 of the very forthright lady, but she has done a tremendous Community First areas in my police force, and my amount for her community. We will all have known predecessor was very fore-sighted and put policing people like this, but she wrote. So I do not get a sense teams into seven of those areas. We have now that we have got the balance wrong in the past, but expanded that to fifteen, and I am hoping, if we get all I want is to do more of it, which is why we are the PCSOs that we bid for, we will be able to expand going to move some significant resources. Believe that to 25 next year. I would eventually like each of you me, out there at the moment there are some very the 44 areas to have a Communities First team, and worried heads of department and BCU commanders it is doo’able but I would like to do it quicker than who will have received a letter from me this morning later. We have evaluated those Communities First saying I want a review from them to look at not less teams, and it has been a fairly superficial one to start than 5% of police staV, not less than 5% of police with, but now we have got to a more in depth one, oYcers, that we are not cutting but we might be able but, nevertheless, the communities are telling us in to reconfigure more into the community focused those areas they think those teams are great; even part of the animal. It is not about cutting serious down to the fact in one area, where there was a crime either. murder, they asked the Communities First oYcers to be the pall-bearers for the deceased’s body at the funeral. They really are disproportionately worth Q134 Mr Evans: Keeping public support, securing it their money in gold. is important for you to do an eVective job. Do you glean at all that you are having diYculty doing that Q133 Mr Williams: You state in paragraphs 4.2 that with the perception that the public think that the the dilemma facing many BCU commanders has police are too focused on a vigorous campaign on been how best to allocate resources to meet a fairly the speeding motorists, which are easy prey, and not narrow range of national targets against which so much on other crimes that they think you ought success or failure is judged in the face of growing to be concentrating on? evidence that public confidence is not directly linked Chief Constable Wilding: Wherever I go this to quantitative results. How can this best be question arises, as you may imagine, and the answer addressed in a world where resources are finite? I give is, and it is in relation to the money in many Chief Constable Wilding: That is right. (a) It is our ways that causes a lot of anxiety that they believe responsibility as chief oYcers is to make sure that the that we are persecuting the motorist because we are BCU have the resources that they need to be able to going to get more money from the process. The do the jobs; it is also our responsibility to make sure reality is we do not get any money whatsoever. The that the command teams in those BCUs can do the money goes to the partnerships, hypothecated to the Ev 26 Welsh Affairs Committee: Evidence
27 October 2004 South Wales Police partnership. The partnership which covers the South how they deliver it, which is extremely important. In Wales forces hypothecated that to run the cameras, terms of the consultation with the public that comes to take the films out, to process the films, to do the up to the centre through our BCUs they feed it all up follow up of the tickets, et cetera, et cetera. We do sit through to us, clearly that involves us: on 16th on the steering committee and we do influence it. I November we have a management day, a day with would say I turned to look at last year you saw your the Police Authority and senior managers of the papers full of criticism of the South Wales police and Force where we will have all the information the way in which we had used the traYc cameras for aggregated in and that helps towards the planning the Welsh rally and a number of rally drivers having process. What do we focus on and importantly how been disqualified. I came into this by—I do not know do we do it. It is extremely important. The key I quite how politely to put it really—this anxiety, think of the process that David was explaining which was very genuine because a lot of people work earlier about the sector inspector being responsible with the rally and could lose their jobs and the for the sector, delivering in there is, and we will prestige of Wales and internationally and all the rest monitor the contact they have with the local of it. I sat down with the partnership and we went community, and is it just the same people who put through it and I sat down with the QC representing themselves up as being the spokes people or are we the international body for rallying, which I knew getting in touch with the harder to reach groups? Are absolutely nothing about, I know a tremendous we hearing what the elderly have to say? Today more about it now, and came up with a process unfortunately I cannot be at a seminar arranged by which is sensible which tells the drivers when they Youth Council, a partnership safety partnership has are coming into an area which is restricted, when a youth county. They invited me to speak and they they are leaving the trails, all these sorts of things, chose the subject of domestic violence, its impact on and showing them the speed that they are doing as young people. That should inform our thinking too, they hit the trails. The rally team organisers came up very much so. I am looking at having a youth council with a process where they would fine people who for the Force. Equally, I am looking to establish a were—and they did so very successfully in one business council for the Force so that we can hear case—somebody over £1,000 who abused the what are the concerns that aVect business because if position. We came up with a very good process. That we do not create the security and stability for is about then informing people there are speed businesses, the investment, the inward investment restrictions, informing them why. I see on a lot of the will not happen, neither will the people travel to roads there have been X numbers of accidents on work to go to the companies when they invest. I have these roads, as long as people know why they are to say so far the people that I have spoken to they legitimately there. I have personally reviewed every have all been very willing to get on board and join camera in my Force area to make sure it complies with us. Indeed, even the questions that I ask about with the guidelines set down for it being placed there. particularly, say, the large supermarkets who have a There was only one that I raised a query about and large number of staV, “Would you be willing to was convinced when I received the answer back that support members of your staV being specials in your it was correct. It is one that we will review. The time”. The example I asked Asda and Tesco was: “If Chamber of Commerce based in CardiV came you would give ten of your people each week four forward to speak to me a few weeks ago. They were hours of your time to be specials, perhaps they might concerned about one in the Gwent area and we do another two hours, that is another 60 hours of picked that up with the partnership as well and with policing I can give in this locality”. Where that has my colleagues in Gwent. They were concerned about been piloted in London with one particular firm they it and there is an explanation for it so now they will found that their retail crime went down by 40% get the explanation. That is what people need. I do because people knew specials were employed by rue the day that the money was seen to come to those stores and internally their crime went down policing because I think that was when we lost a lot because the staV knew there were specials in the staV. of public support, but in terms of keeping the I think it is not just about—it is diVerent parts of the confidence: that is my role too as being out there and locality we need to tap into. We are not all there yet, being not internally being a leader but externally but we will get there. Call them what you will, being a leader and giving these explanations and community advocates, local advocates, whatever, being honest. but we need to listen to all of those groups.
Q135 Mr Caton: Going on to community safety or Q136 Mr Caton: You have already indicated that all going back to community safety partnerships, what seven of the community safety partnerships in your level of influence do the local partnerships have on patch are not performing equally well. Can you give police priorities in their basic command unit areas us an idea of what factors you think make a and indeed in the wider South Wales police area? partnership work well or less well? Chief Constable Wilding: Very much so on the BCU Chief Constable Wilding: Yes. Clear objectives, joint command, in the BCU command areas because that objectives, joint resourcing, joint expectations and is local because the partnerships are all about what deliverables; it is not undeliverable, it is doable, so are the issues for each of the partners, what is very clearly working together. That is what I would happening out there in the public and how do we all say would be the key. Establishing what are the tackle it together, so very much so. It is central to issues. You have your joint issues and you have the most of what they do in terms of local delivery and same priorities. At the moment it is a fact, say, and Welsh Affairs Committee: Evidence Ev 27
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I am not being pejorative in this, but health may not whole of South Wales. We have a representative be the most active partner at the table because their from health, we have a representative from priorities are slightly diVerent. I would say: in some education and I go there as well and we discuss sense what we have failed to do is to show if they policies. We are going to have the same policies come on board and work with us in relation to anti- across each of those unitary authorities, which as social behaviour at the beginning very often the you know have their own health boards, their own people will not appear in the health service. An education, et cetera. We discussed that and we are example I can quote some work done by the getting better, it was fairly unstructured when I came community safety partnership in CardiV by along. We are now employing a coordinator, we are Professor Shepherd there, work done with glasses in getting intelligence; it is getting better, so we are licensed premises and the injuries that they were seeing a concerted eVort at that level which then seeing in the A and E and then subsequently in on his moves down into the local safety partnerships as specialist surgery table as a result of an injury from well, so the direction is coming. We all agree things glasses then was able to influence the fact that glasses and then we take it down into our individual areas. were no longer used and another substance was used. In fact, the substance they turned to we found Q140 Mr Caton: If we asked your partners what do to be even worse than glass and so they changed to V they feel they are not getting from the police in the adi erent substance again. We have not been good partnership at the moment, what answer do you enough I think of painting the picture—I do say think we would get? “we” as I think we own this—we have not been good Chief Constable Wilding: One Chief Executive told enough at perhaps painting the picture to some of me very bluntly that he wanted police oYcers or our partners to say these are real savings if you come police staV to sit in the CCTV suite. That is what he on board with us. Last year in Swansea New Year’s thought he wanted. That is not a role for my staV Eve they opened a Triage Centre in Swansea in a frankly. I think it is those expectations which are shop. The health board did not want to come on unreal in the main because in my first two weeks of board, but the ambulance service did. 25 people were being in the post I went round and saw every Chief treated there, did not go to the hospital. The Executive. I wanted to see what their view of ambulances were not used. Thereafter, when they partnership was and I also wanted them to know saw the results the local health board gave us a that I would have high expectations of their cheque to cover what would have been their involvement in partnership as well. I did ask the proportion of investment to make up for it. We need question as you may ask: what could I do to make it to do more of this we really do. work better? That was the only one that came forward to me. Whether it is because they did not Q137 Mr Caton: Does health tend to be the weakest know me very well then and did not quite know how partner in each one of the services? I would react, whether I would take it seriously. It is Chief Constable Wilding: Yes. I say this in no interesting that I have seen them in normal business pejorative way. They have diVerent priorities. One now and I do not get that feeling that they feel that of the things I do hope that the Home Secretary can we are being tardy in any respect because, of course, pull oV is making his new customer focus cross a lot of my BCU commanders use their BCU fund to ministries. The same priorities appear across pump crime, various activities in the partnership. ministries then we all have the same targets. When that happens, people will naturally work together Q141 Mr Caton: Are there any changes in structure and not feel that by spending time here they are or procedures in the partnerships that could improve going to be failing here. It is a truism: what gets working relationships? measured gets done, so that is where I would like Chief Constable Wilding: If I could replicate what there to be a wider perspective. they have in Rhondda Cynon TaV, which is a purpose-built building where they have a member of Q138 Mr Caton: Are there any other things that you every partner there in the building, and this is where would like to be getting from the partnerships that we start to have the intelligence staV as well, the joint at the moment you are not getting? intelligence staV for every partner. That is where we Chief Constable Wilding: I think it is wrong to say are starting that there. They are there in the building. that some are not working well; if I did not articulate They have meetings regularly in the building. They it clearly that is not what I meant. What I meant was identify the same issues. It is wonderful, but it has that some are working at a diVerent level to others. not been evaluated yet. I only opened it a few months All are working well. ago, but I look forward to the evaluation because there will be so many positives that will come out of Q139 Mr Caton: That is what you said. it and the intelligence sharing will only be better. Chief Constable Wilding: All are working well and They have replicated it in a number of my have very clear focus of where they want to go. partnerships but been very much constrained Because we have seven unitary authorities, we have around accommodation in the main. It is not that what is fairly unique in South Wales, for the Force people do not want to get on board and be there and area for those seven unitary we have an overarching second staV. It is just that they do not have the leadership group which meets once a quarter. Each accommodation. I went into one oYce at Rhondda of the Chief Executives are on that group. The head Cynon TaV and they had the licensing oYcer, the fire of the probation service is on that group for the oYcer as well and someone from the environment Ev 28 Welsh Affairs Committee: Evidence
27 October 2004 South Wales Police agency as well all working in the same oYce. It just Assistant Chief Constable Francis: It is such an works very, very well. Across the road were children important point that we do need to spread the best services as well, across the corridor, not across the practice. If I were to say that the partnerships are on road, but you have the Chief Executive there who a journey and as they mature so we are learning so really understands the value of partnership working. much from them, but they are at diVerent stages of He was the Chief Executive I was hoping to bring maturity. One of the things the overarching before you today to show that this is what a good leadership group would want to do and is capable of partnership looks like and what we are all striving to doing is saying: let us do some benchmarking against work for. He is unfortunately going oV to Hull, he is each other, no threats there. There is a self leaving us and going oV to Hull but his model will assessment tool published by the Home OYce I live on. I would like to replicate that across my Force think we could improve on, and use that as the area because I believe it is best practice. method of sharing our best practice. It is happening, but it has been happening without the structure that we think should be there. A good example would be Q142 Mr Caton: I was very impressed in Swansea V recently where the prison is one of the partners in the dealing with anti-social behaviour in the di erent partnership and they had actually got prisoners to partnerships was progressing well. By bringing the write a booklet telling people how to avoid suVering framework in we have been able to try and spread from the crimes that they had committed. It is very that good practice across South Wales. That is what readable and quite an eVective method. You have at really should be done with the partnerships as well. least three prisons in your patch anyway. Are the prison always partners? Q144 Dr Francis: Would you say that what I Chief Constable Wilding: We have spread the mentioned about the Afan Valley is the case. Are partnership as widely as possible. We even have the their communities quite far down that journey? Chief Executive of Dara from down in Barry who is Chief Constable Wilding: I visited the Valley actually also on the partnership as well who talks about the and David and I were with the local authority on fact he has thousands in his workforce, between Monday, and of course the Mayor comes from there 2,000 and 3,000 in the workforce and needs the as well, so I was able to hear firsthand how he feels educational people to get on to really make sure he about it. Certainly from our perspective it is good has a workforce to recruit from for the future as well, practice, it is working well, and it is very eVective. and what they can do with young people who are Assistant Chief Constable Francis: Can I say that the going slightly oV the rails, how they can help the South Wales anti-social behaviour framework is community as well. The partnership can be as wide based on what we call the Rees boys started in Neath as you want. The only problem with the partnerships Port Talbot, Tim Rees and Steve Rees, started that that David has very neatly reminded me of is the fact and from that embryo became the framework. that they have a 3-year strategy and their funding is only for 12 months. That is really diYcult, very V Y Q145 Hywel Williams: What is the di erence di cult and makes things therefore short term. How between being a Chief Constable in England and a can you embark on long term solution fixing when Chief Constable in Wales, and I am thinking in the funding is only for 12 months? May I say it goes particular of the impact on the National Assembly beyond that because we are as policing as Paul Y and the Welsh Assembly Government, how does would go wax lyrically about the di culties we have that impact on policing and the Force itself? with not knowing even now how much money we are Chief Constable Wilding: Like my English going to have for next year. colleagues, I am of course am the head of my profession and direction comes from the Home Q143 Dr Francis: When you come to evaluate these OYce in the main. However, the Welsh Assembly community safety partnership do you publish them have particularly looked at the reassurance and as examples of good practice because it seems to me regeneration aspects and that ties into one part of that there are several examples of good practice. our work very clearly. We have an open access to the Whilst we have been hearing quite a lot about minister. Indeed, I have seen the first minister on Swansea could I say that in recent meetings that many occasions and discussed local issues. The first I have had in the Afan Valley the communities minister has been out to look at areas with us and there, particularly Glyncorrwg have been very discuss things with us. It is that firsthand experience complimentary about community policing. We and they are able, in some ways, to contribute to should remember that I think it was Glyncorrwg funding for us in particular areas. Indeed, as you are that had the very first ASBO and it took a lot of probably aware, they contributed towards funding courage for those communities to do that. Given the 30 extra police oYcers working within the those kinds of examples of excellent partnerships, educational side of Tarian on drugs. They were able would it be a good idea to be publishing this work to access some pockets of funding from them, very and celebrating it? much working in the reassurance area. They Chief Constable Wilding: Just before I hand on to extended the dependency abuse scheme to alcohol as David. Crime Concern have come in and done well, which is very welcome, so they are certainly evaluations of a number of our partnerships to be funding part of Tarian. They are also going to fund able to see where we are, and they are doing the one the extra support for health for the treatment for in Merthyr Tydfil at the moment as well, so we do drugs, which is very welcome. I just would like it to evaluate but I will hand over to David. roll out a bit quicker than perhaps it is. I would say Welsh Affairs Committee: Evidence Ev 29
27 October 2004 South Wales Police to you: we have the benefit of a region where we are oVering advice to the Chief and the Police able to discuss at a local, regional level real issues, Authority. What we cannot do is put ourselves in a policing issues, and that perhaps over my colleagues position where we have incurred expenditure in England the governance, to a degree, of Wales is without knowing where the funding stream is helped to be formed by our professional experience coming from. I would like to see some more and judgment because we are able to give it. It is a commitment to longer term funding than 12 months. fact, of course, in the Home OYce the policies and three years is diYcult to manage, but it is far easier plans are done by civil servants and the contact is to manipulate three year funding than it is 12 month through the ACPO hierarchy, whereas we 4 Chief funding. 12 month is very, very diYcult. Constables regularly meet with the social justice minister and we are listened to and there is a lot of interaction between us. I believe that our Q148 Hywel Williams: I am sure it is no comfort but professional judgment is valued and I would like to this committee sometime ago looked at social see that replicated in England. exclusion and community projects. They all said the same basically: you cannot work on a 12 month basis. You did, in fact, refer to that in an answer to Q146 Hywel Williams: I was really impressed Mr Caton. The implications of dealing with that reading the report about the commitment that you particular issue are short-termism, diYculty in have made to Communities First and I think 72 planning? police oYcers working very interestingly. Just to Paul Wade: By the time the people we have go back to the relationship with the National employed from that stream of funding have really Assembly. You have mentioned that you speak with become contributors to our plan the funding runs the minister and with the first minister. What is the out and then we have to make decisions: do we dog focus of that relationship? Are they the people with ear funding from elsewhere to keep that resource the hands on the levers of power? Do you feel that which has an impact somewhere else in the Force or actually works? What is the focus of your do we have to end that particular initiative and relationship? Is it at that level? accept it will decrease our service in a certain area. Chief Constable Wilding: I meet with a number of Chief Constable Wilding: The PCSOs will be a very ministers including transport and economy as well good example of that. It is a very complex issue now because policing is very central to the economy of about the first, second and third tranche. The people Wales. If we do not provide, as I said before, that we brought in on the second and third tranche, the security and stability then nobody is going to come funding reduces, I think if you explain, Paul, because and invest in there, so economic growth only comes it is so complex. when you have security and stability. The focus is Paul Wade: With the current phase there are 4 around policies and us being able to influence and phases of PCSOs. In phase 1, the Force was not being asked for our views and being able to influence successful with its bid. In phase 2 and 3 we were our policies. We an all-Wales emergency services successful, but in phase 2 we funded some of our 63 group where we meet with all the other emergency from our own resource, some from the BCU fund, services including the military as well as chief which unfortunately has now been withdrawn as an Y o cers. We have a group that also has the chairs of available source of funding to us, 50% from the the Police Authorities and the Chief Constables Home OYce funding, the partnership the Chief meet and the Programme Board for the mentioned earlier working in RCT, they also funded collaboration as well. We inform the minister of 50% of five. We have also had agreement with the what we are doing. It is very much focus about what City and County of CardiV that they will fund some makes the social environment and the regeneration as well. What we are now finding is because these of Wales better and where the policing fits into that. streams of funding are altering constantly it has become extremely diYcult for us to maintain the Q147 Hywel Williams: In paragraph 3.3 you discuss level of service in those areas. Without expanding concerns about the impact on short term and too much, phases one, two and three have now been centralised funding, which is to deal with the Force’s extended to 31 March 2008. Phase 4, the one we are local and long term problem solving requirements; not aware of what our bid will be successful for, it is this is something we discussed with the Chief in 100% funded during 2005–06 and then becomes 75% Dyfed-Powys as well. How do you think that this funded during 2006–07, so again we have to be should be addressed? careful because our resources have been directed by Chief Constable Wilding: I will hand over to Paul certain objectives and the funding may not always be here who is our expert in these areas. targeted at the areas we would most like to tackle, Paul Wade: Any short term funding makes it very but we have to do it to obtain this additional funding diYcult for us to decide how we should tackle a from central or regional government. problem over the long term. What we find is we have Chief Constable Wilding: We have to manage, juggle to issue many fixed term contracts which can only this all the time which is what we were doing last extend for the life of the funding that is available us week in two days of planning. I have made the to. It means our strategies can only be as long as the commitment and I did when I first came in: that first funding is available. With all the changes going on tranche of PCSOs, the 63 that we have now, we will in employment law fixed term contracts are build into base budgets somehow; we are looking at becoming as diYcult and possibly cost expensive at ways of doing that. I will not go below that. I will the end as a full-time employment is, so obviously, build that into base, but any expansion on that I Ev 30 Welsh Affairs Committee: Evidence
27 October 2004 South Wales Police have to look for other resources which, again, is my oYcer—depending on the make up of the Police role to look for other resources to be able to support Authority then it either has all the business acumen, that because they are so valuable to the community. the public acumen, the people acumen, et cetera, or in some cases it needs to be supplemented with independent people then, et cetera, but providing the Q149 Julie Morgan: I have some questions about the independent elected people have all the right skills structure now. Is the current structure of the and resources to be able to do their job I do not see oversight and the accountability of police services any problem with it, frankly. I do not see any eVective? Do you feel it enables Forces to deliver problem at all. local and national priorities? Q151 Julie Morgan: In evidence to this Committee Chief Constable Wilding: The oversight: it is multi- last week the Chief Constable of Dyfed-Powys tiered really. At one time, the number of inspections police suggested the Gwent Force be abolished and going on in a Force and was subject to ran into as a logical alternative would be the amalgamation hundreds, never mind if not thousands. You can of Gwent and South Wales. Do you have any imagine the number of recommendations that come comments on this? You have heard this before? out of that and your opportunity to complete on Chairman: You must have heard it before. those recommendations in a year frankly becomes a Chief Constable Wilding: Yes. The logic for this— bit farcical. At the moment as a service we are may I answer the most exciting question. The logic subject to obviously the Police Authority because we for this seems to come from the fact that the fire have to be an eYcient and eVective service. That is brigade went down from eight to three, that we our first port of call. Secondly, we then have Her should be coterminous, that two of my BCUs are Majesty’s Inspector Constabulary who look at how with the fire brigade that covers Dyfed-Powys and we deliver things. Then we have the Police Standards the other fire brigade covers Gwent and the other Unit which looks at what we deliver and our five areas of mine. I do not see why we have to be performance. We have all the audit areas of our coterminous with the fire brigade: is it good for performance being looked at. Auditing clearly is policing. That is what I would say. What is good for necessary when you are dealing with the sort of policing may not necessarily be good for the other money that we are dealing with and public emergency services. The ambulance is one. I would never suggest there ought to be one police service for expectation, et cetera, et cetera. It is very important, Wales because of the northern dimension and its if it could be graded in a slightly better way that we influences from the north-west. I would never say were not constantly putting resources into supplying that. If I were to look at a structure for Wales I data for a whole myriad of people. I have the would be saying it is the local structure we must get statistics here of how much it costs us to supply data right. I think that each of the three Forces has to a whole range of people. The overall cost is probably got that right. It is the next level, the level £328,000 in just the people we employ to receive the 2 that we are working on collaborating on at the data and marshal it. That does not cover the moment which, as I have said, Dyfed-Powys do not opportunity costs of those who actually then gather get the exposure to certain crimes to keep their staV the data first before it goes to the receivers. It is an levels and their competency levels right. We are awful lot of the public’s money that is being gathered looking at that. Then when you have that right, the to fulfil this complete plethora of diVerent ways that governance becomes a diVerent issue. This is exactly people want the same data gathered. If you had one what I said to the Police Authorities of Wales two structure that managed everybody’s concerns we weeks ago when I did a presentation on would probably be able to release more of the collaboration. For me, it is about the local part. It is public’s money to put into operational policing. irrelevant where the governance comes from in a way. If you have the local contact talking to local people, got the channels in, we are delivering good local service, we have a good structure then for Q150 Julie Morgan: What about the other part of specialist areas, you have a good structure, the the structure? Would you believe in directly elected capability and capacity to deliver across the three, police boards, for example, that is something that then the governance becomes a diVerent issue. I has been put forward as a possibility? think that is where the debate ought to be in some Chief Constable Wilding: Yes, I do understand. It time, when we have these other parts in place. has been my experience that depending on—and Chairman: Thank you. You will be delighted to I work with a number of police authorities as you know there are no further questions so you do not will understand as a chief have to come back after the division. Welsh Affairs Committee: Evidence Ev 31
Wednesday 3 November 2004 [Morning Sitting]
Members present:
Mr Martyn Jones, in the Chair
Mr Martin Caton Albert Owen Mr Huw Edwards Mrs Betty Williams Mr Nigel Evans Mr Roger Williams Julie Morgan
Written evidence from North Wales Police is printed on Page Ev 224
Witnesses: Chief Constable Richard Brunstrom, Chief Constable and Inspector Paul Firth, North Wales Police examined.
Q152 Chairman: Welcome, Chief Constable and small bite-size chunks and we are. That is rightly Inspector. I know who you are, of course, very well, accompanied, in my view, by significantly more but if you could, for the record, introduce yourselves accountability in lots of diVerent ways; that, or perhaps Chief Constable if you could introduce packaged together with significant willingness from yourself and your colleague? our organisation to restructure, to re-engineer, to ChiefConstableBrunstrom: Thankyou,sir.Myname rethink our culture, is being very successful. We have is Richard Brunstrom. I am the Chief Constable of the facts and figures to prove it, across the country North Wales Police. I would normally do this sort of and in North Wales specifically. thing on my own, but I have been requested to bring a colleague with me, so sitting on my right, your left, is Q155 Mr Edwards: Chief Constable Brunstrom, you Inspector Paul Firth who is a District Commander said there was an extremely sound Government for a geographical area: South Wrexham in North strategy.CanIcommendthe waythatyouputthekey Wales. legislation in your submission which outlines the powers that you have as a police force and all the Q153 Chairman: Thank you both for coming. I think legislation that has been passed in the last 8 years, youare awareofwhat wearelooking into.Itis afairly which does look like a wide range of legislation. I am general inquiry but it is one that the Home AVairs grateful that you have set it out in the way that you Committee would not really look into specifically, have set it out. which is our particular circumstance within Wales. Chief ConstableBrunstrom: Thankyou, sir.There isa Can you also for the purposes of generality can you very large amount of new legislation. One of my mention any of the special issues that you have in colleagues calculated the other day I think it was 262 North Wales related to policing in your specific area, new oVences created in the last seven or eight years both in terms of the general picture and also perhaps which could be interpreted as awful in a functioning Inspector Firth come in on the specific divisional or parliamentarydemocracy,buttheway ithasbeenput sub-divisional sensitivities? together and the way it is intended to operate on the Chief Constable Brunstrom: Yes, certainly, sir. street with all sorts of controls and balances of Would you like me to make a few opening remarks to accountability does not make it a threat to our get started? Would that be helpful? existence as a democracy. It is giving us as a society the powers to deal with anti-social behaviour which Q154 Chairman: By all means. has been a real blight on our society for my entire Chief Constable Brunstrom: If I may I think I will be adultlife.Atlastwearenowbeingabletogivethevast fairly brief. I have submitted quite lengthy written majority of people who live law abiding lives their evidence which I would seek not to repeat. In broad lives back to recover their quality of life. It is a terms, my general take on the situation is that for the revelation for me as a professional police oYcer that firsttimeinmycareer—Ihavebeeninthepolicefor25 this whole package does work. We are now so far into years now, a quarter of a century—we are winning. I it that I am confident it does work. It is not a flash in think in very general terms we have an extremely the pan. This is not one just year’s blips in the figures. sound Government strategy, which has been pursued We are on to something pretty powerful here. for many years. Rather than break it down into the Chairman: That is encouraging to know. jargon of the national policing panel I would sum it up very much more simply than that: we are being Q156 Albert Owen: Good morning, gentlemen. Can I giventhetoolstodothejobandweareupforit,weare ask you: what are the main drivers in determining the gettingonwithit.Thegeneralsynopsisatthemoment priorities of policing in North Wales? There are a is: more powers for the police, a much more locally number of things you have submitted in your written focusedpolicing.I thinkitmayhave beenBillClinton submission with regard to the national plan, the who once said that all politics is local; the same is national intelligence model, community safety or certainly true of policing. We have to get down into local consultation. What are the main drivers? Ev 32 Welsh Affairs Committee: Evidence
3 November 2004 North Wales Police
Chief Constable Brunstrom: I cannot answer that a very basic level, the people that they work with. I question simply, but I will be brief and I will ask Paul have undertaken to meet with elected members at Firth to come in in a moment. I think there are three County Council level on a regular basis to try and main drivers. One is Government strategy, which is determine what they needed from me as a local clear. The second is our intentions as professional district inspector, to be open and frank with them as leaders of the Police Service, and most importantly, to what I am trying to deliver; that has grown now and I do mean most importantly, it is the work that into a monthly meeting. We have a very good rapport Paul Firth does with real local people living in real locally which has helped me to determine where I communities. I think that has been missing in Police wanttoputmystaVandwhatwewanttofocuson.We andGovernmentstrategyuntilthe veryrecentpast.It have increased the number of dedicated Community has not been my normal experience. We have done Beat Managers by 50%: we have gone from five to 10. policing to society rather than done it for society. I Each of my areas now has a designated Community think having given Paul a chance to collect his Beat Manager and they have been set targets to make thoughts I would like perhaps Paul to develop. sure that they meet and regularly attend their local community or town councils. We are trying to Q157 Albert Owen: Just before you do, Mr introduce this relationship between local Brunstrom, can you outline the diVerences you have communitiesandourselvessothatwecanreflectlocal in diVerent CBUs within North Wales. Looking at solutions for local problems, I think as someone once the geography of North Wales you have large urban said. We are focusing in on those areas and in towns which Inspector Firth is responsible for, on the particular at the county council level it was a general West side, but also in between you have a lot of agreement that anti-social behaviour, particularly diVerent areas, including large rural areas. What are those that the anti-social behaviour involves young the priorities there? people, would be our priority. We have done quite a Chief Constable Brunstrom: North Wales is a very lot of work together to pull on that and to impact on diverse area. We have three basic commanded that problem. We have also looked at lots of other divisions. They are simply east, west and central, but things. We have targets to look at burglary dwellings those are, themselves, far too big to be coherent, to try and reduce the impact that has on members of neighbourhood type units, and that is a mistake the the community; violent crime, vehicle crime and police have made I think for decades. Policing needs others but anti-social behaviour has been our to be very local. It needs to reflect individual particular focus. We have done that side by side with constituents, customers, views of their locality, of county councillors and at local level community their neighbourhood, and a constitutional boundary councillors.Wehaveplans,whichIamquitehappyto like a police division or a county council means go into if that is what you would like me to do as to almostnothingtorealpeople.Oneoftherecognitions where we go next. in this is we need to get much smaller than that. We cannot do this through administrative units. We have to go and see real people in their lives, as it were, in Q158 Albert Owen: Just before you do perhaps both their normal circumstances—I did not phrase that of you could respond to this. The BCUs are very eloquently, almost literally in their homes, in coterminous with the local authorities and you say very local circumstances to get any coherence to nobody really cares about the boundaries and I policing. Paul Firth actually deals with an area south understand that. What I am really after is: is there of Wrexham which is a mixture of small towns and conflict between the local policing—and I do agree rural areas. I think it is quite reflective of the whole of and support your philosophy for local policing and North Wales. It is neither the very rural north-west local solutions at local level—is there a conflict nor is it the urban centre of Wrexham. It is probably a between policing at that local level and the national fairly accurate reflection of the normality or the level of policing? generalityofpolicinginNorthWales.Iwouldbekeen Chief Constable Brunstrom: I do not think there is for the Committee to hear what Paul actually does to conflict. There is, of course, tension. One thing the capture what real people want. I do stress, Chairman, policehastodoisdealwiththecurrentterroristthreat that this is really utterly new in policing. It has only and that is part of my job so I have to deal with the grown in the last handful of years. international border at the port of Holyhead. That Inspector Firth: Good morning, everyone. My area is has no interest or relevance really to local people even actually designated as Wrexham South, it is an livingonAngleseaasanissue.Itisjustsomethingthat Inspector District. As has been said, I cover a mixture has to happen in the background. I do not think there of urban areas, which is the small villages which have is a conflict there but there is a tension because we moved into one urban area that is the south of have to spread ourselves through the whole range of Wrexham and I then go down some very rural tracks our job. In the past, as I have said, perhaps this is not towards Dyfed-Powys, bordering on to the Cheshire quite the right phrase, but the bottom end of it, the border, so I have a good mix of areas. The Chief local community policing need, has not been Constable mentioned earlier about bite size chunks. recognised nor met. Now it is. It is part of a Even within my district it is too big to look at as just continuum. It is not a conflict but it means we have to one particular area. I have been in charge of the area readdress our priorities, we have to rethink how we for about 18 months. My focus was on behave, what we do, where do we put our resources, communication and getting to know the people in my how do we meet that newly expressed and newly area, focusing my oYcers on getting to know, even at recognised need, but no conflict. I think the planning Welsh Affairs Committee: Evidence Ev 33
3 November 2004 North Wales Police structure from Government level right down to a percentage of our budget. It is absolutely vital, Paul’s level with community councils is a coherent vital that we do that. It is not something we have and intellectually viable whole as a continuum. been doing in the past. Since I have been in North Inspector Firth: I would agree with that. Wales we are spending significantly more money collecting and using management information. It is Q159 Mrs Williams: Could I ask: are there tensions vital because I think policing for most of my career would you say between yourselves and, say, the has been pretending that we are some arcane science, British Transport Police because we have the very an art I should say, a craft rather than a profession. important railway route along North Wales. Can It has not done us any favours at all. We have not there be tensions there? been able to prove what we do with our time, what Chief Constable Brunstrom: There are no tensions at we do with our money, what success looks like. We all. I am very pleased to say that the British Transport have needed to get our act together. We have had a Police are responding in exactly the same way as the significant jolt nationally and we have responded to Home OYce Forces to act on the police national it. I could not do my job now, and I am sure Paul will government agenda. This has resulted in a Chief tell you the same at his level, without access Inspector from the British Transport Police to timely, accurate, relevant up-to-date, well- attending all our Dyna Ddigon meetings, which I presented, user-friendly management information have set out in my evidence. We had one of those last because we have to be able to demonstrate that we week. He has never missed a meeting yet. It has are on top of our job and that we know what works. increased the number of British Transport Police It is absolutely vital. oYcers working in North Wales. They are now recruiting special constables for the first time in Q162 Albert Owen: One final comment really, and North Wales. They have 2 starting very shortly. before do I would like to put on record my thanks to There is really complete integration now with other the North Wales Police who have been working with national police bodies, which again perhaps was not the local community for the dispersal order in the case, certainly not to this level, even a matter of 3 Holyhead was the first in Wales and moreover the or 4 years ago. I think there is a significant shift to all extension ofthat time limit becauseit is working.I am try and work oV the same agenda for the first time. seeing it working and I think for the record it should be said that many parents of young children welcome Q160 Albert Owen: You are clear there are tensions it as well as do elderly people in the local community. but you do not think there is a big conflict between My question is, you mentioned you now have your you. Are the targets that are set nationally all act together. Therefore, are you happy with the applicabletoyourForceanddoyouspendsometime, performance of North Wales Police and what were if you like, wasting time on going to briefings, the the shortcomings before? things that do not apply in the Home OYce or other Chief Constable Brunstrom: In terms of our position areas that do not apply to you? as I speak today, I am happy, extremely happy in fact Chief Constable Brunstrom: Personally no. We all with the performance of North Wales Police, indeed I have more work to do than we can handle, but that is am proud of it. I am not content with it, however. going to be the case if you tripled or quadrupled my Crime is only down just over 11% this year. I would budget for my staV we would still say the same thing, rather it was down 25% and so would you I am sure. I the same would be for the other public profession. I am very pleased it is down 10%. This is a real decline. am entirely content with the content of the I take account of British crime survey results and the Government strategic agenda and the national diVerences between recorded crime and the surveys. policing plan and the priorities that go with that. This isa realdecline incrime. Anti-socialbehaviour is They cause me as Chief Constable of North Wales no down. Our detection rate is up to one of the very concernwhatsoever, butofcoursethey onlydealwith highestin Englandand Walesnow. Ithas notstopped the national agenda. Equally, importantat least is the climbing. There is more good news to come, but I am local agenda, which is entirely within the remit of the most certainly not content. This is not as good as it North Wales Police Authority through their policing gets. It is a blooming sight better than it has ever been plan and me as their chief oYcer. I really do not see in my life before, but that is not enough. We still live any diYculty with that at all. in a society where there is too much crime, too much disorder. Quality of life is not as high as it could and Q161 Albert Owen: Most public service bodies I should be.We mustnever be complacentnor content, presume as the police had to collect a lot of data for in my view,but at the same time Iam extremely proud various agencies. How does this aVect the actual of what we have achieved. performance of the Force and how much time and cost is needed to provide this to the appropriate Q163 Albert Owen: I need to push you on this. You departments? say you needed a jolt from, if you like, the Home Chief Constable Brunstrom: Perhaps if I take that as OYce or at national level, so what were the a headquarters level and Paul could tell you what it shortcomings and why did you need that jolt? means on the street, as it were. We spend Chief Constable Brunstrom: I think we have needed approximately a quarter of a million pounds a year to or the Government has needed to gets its act on collecting management information and together, governance I should say. I am not talking producing it and circulating it. It is out of our budget just about the current one. I think that has of, in round terms, £100 million, so it is a quarter of happened. Ev 34 Welsh Affairs Committee: Evidence
3 November 2004 North Wales Police
Q164 Albert Owen: I am talking about the Force, Paul Firth in to answer part of Mr Owen’s question with respect. about how we manage performance locally. It really Chief Constable Brunstrom: Thank you, but it is part is very important because policing is a people of the same circular loop, so there had to be a clear business. We do not make widgets. indication of what we were expecting to achieve before we could go and achieve it. We have had a Q168 Albert Owen: What I was trying to say is: is the sharp knock and we have needed it and part of it has national target at a local level, I think you been subjecting the police to a more obvious answered that. performance regime at national level, led in large Inspector Firth: I am quite happy to answer that. measure by The Treasury saying, “You are not From my perspective the introduction of, we have getting any more money until you can”, in crude always had statistics, but we now have statistics we colloquial terms, “until you can prove that you are can use because they are meaningful and they are worth it”. I think we have had to learn that lesson at timely. I am in a position now where I can review national and local level. In terms of where we are not what I am doing and what my staV are doing on a so good, our culture is changing rapidly. I do not regular basis. We can use that to good eVect when we think community policing or reassurance policing is are talking to our staV, when we are setting targets yet fully embedded in all our staV.Itisgrowing for them and we are giving them a direction. I want rapidly but it is not secure yet. I cannot take my eye the staV to be going out with a focus. We can use the oV the ball for a moment. We still have lots and lots statistics to provide us with that. What we are also of detailed work to do. Our relationship with the looking at is how we provide a meaningful County Councils is very, very much better than it performance measurement for our Community Beat was, but there is a lot of work to do there to get full Managers; that is one area where I am particularly benefit from this. There are lots and lots of things— focused on making an impact. We have introduced a I could talk all morning, sir, on things which I wish performance review mechanism for our Community we could do better—but I use that as a reason for Beat Managers which as well as looking at all of the optimism. We are already doing good work and we general statistics it looks at the actual impact they have an agenda as long as your arm on things that are making within and together with their partners. we need to do next to get even better. I am extremely The actual information is coming down to us now. I optimistic that we can turn out significantly better have reviewed approximately every 8 weeks, 6 to 8 work across the whole of the foreseeable future. weeks with my divisional commander. We go through the entire region of Wrexham South, the Q165 Albert Owen: At this moment I share your district of Wrexham South. Then I use that optimism. The point I was making is: whilst I information as well to relay back to my sergeant and acknowledge the huge improvements that you have to my constables. What it provides us with is, as I made as a Force what I am really after is why say, a clear focus on what we expect our oYcers to comparatively with the rest of the Police Authorities deliver; that is something that we have not been able and police areas in Wales in particular you are so far to do eVectively in the past. What I would also say behind on certain issues? though is that beyond that we need to take Chief Constable Brunstrom: I do not agree at all that cognisance of what the community are telling us. I we were behind. need to be able to reflect what is happening locally. I need to be able to target my oYcers on what is Q166 Albert Owen: These are the Home OYce happening locally. That is not always captured by statistics on detection rates? pure statistics. You need to have a personal contact Chief Constable Brunstrom: You are leading me into and that is now bearing fruit that we have been able a very complicated area on the Home OYce to target local issues that do not always manifest statistics. SuYce it to say that I do not agree that we themselves in statistics. were behind, and if you would like to look at the most recent statistics you will see that we are Q169 Albert Owen: Just a simple question: you do significantly ahead. not think the national targets are taking your eye oV the ball? Q167 Albert Owen: I am acknowledging that. Inspector Firth: No, not locally at all. Chief Constable Brunstrom: I do not agree that we were behind in the first place, and that has been part Q170 Mrs Williams: Could I declare an interest at of the problem that there has not been an agreed the start of my questioning session in that my eldest method of measuring police performance ever that is son is a serving oYcer with the North Wales Police comparable across police boundaries. That has held and I would like that recorded please. I would like back the development of policing at Government now to turn to tackling anti-social behaviour and level and professionally within the service but it is reducing volume crime. I am very familiar of course now being fixed. I think we can look at the future with your Dyna Ddigon project, but can I ask you to with a great deal more confidence in terms of being tell the Committee a little bit more about Dyna able to compare and contrast one policing area with Ddigon and could you also tell us what proportion another. Nationally, within Wales and locally right of the Force’s resources are allocated to Dyna down to Paul’s area and even within Paul’s area Ddigon and are there any issues that are because we need to find out what works, who is marginalised, under- resourced perhaps as a result of working and why. I did not get a chance to bring the money put into Dyna Ddigon? Welsh Affairs Committee: Evidence Ev 35
3 November 2004 North Wales Police
Chief Constable Brunstrom: We were very early in cleverer than that. Distaste for the yob culture and the field amongst police forces in England and Wales investing in protecting young people. Do not forget in thinking seriously how we were going to tackle that young people are victimised more than adults anti-social behaviour. We could see a Government are. They are a particularly vulnerable group in campaign coming. We could read the writing on the society in the first place. Also another limb to this wall, but we recognised we needed to respond to this was to try and recover civic pride. I think it is a independently but we needed to respond to it. We phrase which had almost gone out of use in the came up with this Dyna Ddigon concept to try and English language and certainly had done in civic look at, given that we are going to be given society; an idea of smartening up the environment, significant powers, what are we going to do to being proud of our communities, being proud of our respond to that? What does it mean us locally? It is town centres. Not cutting back on the refuse okay having all this statute but if we do not use it it collections as local authorities have been doing for does not achieve anything. We looked around the the last 20 years, but recognising that the refuse world because we want to be working at the cutting needs to be collected because we ought to be proud edge of world policing. One of the big things that had of our town centres. In doing that, this is perhaps been operating in the United States was a concept of where part of a dispersal order comes back in again, zero tolerance. We thought that was inappropriate making public open spaces welcoming rather than in Wales. We do not think it has been enormously threatening. All that could not be adequately successful in The States where it has been tried encapsulated in zero tolerance but could we thought because you need a more rounded approach to this. in this Dyna Ddigon concept. We tried it out for a we wanted a more philosophical, a more thought year or so in three places. One that immediately provoking, more supportive, constructive approach, springs to mind was the Peblig Ward of Caernarfon rather than just cracking down the law, which is which is a very disadvantaged council estate. The what zero tolerance implies. On the other hand, we early results were extremely encouraging. We do did not want to be do-gooders. The law does need to intend to make it comprehensive across the whole of be enforced. We need to protect the 95–99% of North Wales in every aspect of our business in the decent law abiding people in this society who are foreseeable future. We have been determined to go being subjected to an appalling quality of life by a at a step by step approach, so we have kept with a small handful who refuse to behave. That hard edge site-based approach at the moment. As I speak, we is necessary, but we wanted to set it within a much have 19 Dyna Ddigon sites across the whole of more thought-provoking context. We came up with North Wales. In 17 of them at the moment there are the idea of Dyna Ddigon which probably means significant and I think sustainable decreases in crime more to a Welsh speaker than it does to a native and anti-social behaviour. English speaker like me. It is the sort of thing that a Welsh speaking parent would say to his or her young Q171 Mrs Williams: What criteria do you use to teenage child: “pack it in, stop it, that’s enough”, a select these areas? sort of fairly gentle parental reminder that this sort Chief Constable Brunstrom: They have to be an area of behaviour is not acceptable and if you do not stop where there is an identifiable crime and disorder there will be consequences. We have tried to problem. Identification has to be negotiated with encapsulate something in the Welsh concept that and agreed by the local authority and, if we can, the meant a little bit more than “the law is the law and local population in some detail. That has been, in if you do not behave, sonny, you will be in trouble itself, part of the success because, as Paul will be able with me”. We wanted something much cleverer than to tell you, none of this is worth anything if we do that but something also that we could sell within our not have buy in from the local population. If we are own organisation and to society generally. I think it not working on behalf of the population we are is been a spectacular success so far. We deliberately simply an army of occupation; that is what not what started small and we chose some particular we need to be. We have done a very great deal to locations, some of our most diYcult locations in make sure that the things we are doing with Dyna North Wales, 3 initially, to try the concept out, to try Ddigon is lined up with what local people want. I and galvanise local society to recognise distaste for think the most extreme example of this would be in the yob culture. Yes, to enforce the law, but also at a village called Pentrefoelas in North Wales, which is the other end of that scale to do something to invest a small village on the side of the A5, one of our single in young people. A crucial part of the dispersal order carriageway trunk roads. I went to give a speech in that you mentioned, Mr Owen, of course is it is not Pentrefoelas myself seven or eight months ago. The just there is a dispersal order that says “You will population who turned up in the village hall—excuse not”, but society has to provide alternative things for me being anecdotal but it is relevant to your young people to do so that there is not just a “You question—they said, “This is fascinating, Chief will not congregate in this area”, but, “you do not Constable, but what has it got to do with us because have to congregate in this area because society has we do not have a yob problem here. We do not have produced these facilities for you so that there is yobs in this part of North Wales. We do not have a something else for you to do. There is no excuse for litter problem. We do not have a vandalism you to misbehave.” That is vital. There is the zero problem. The problem we have is anti-social use of tolerance approach which is saying “you will not the A5 road.” I said: “That is fascinating because congregate in this area, if you disagree with that you there is no point in us bringing our Dyna Ddigon will be arrested”. The Dyna Ddigon concept is much concept to your village if it does not fit”. We now Ev 36 Welsh Affairs Committee: Evidence
3 November 2004 North Wales Police have a Dyna Ddigon site in Pentrovoilus(?) and the information bulletin, which is part of what we spend only target is anti-social use of the road. We have our quarter of a million pounds on, our monthly local people there now trained up to use handheld bulletin. You will see set out in there for each of our speed cameras at their own request instead of the Dyna Ddigon sites grants on anti-social incidents police doing it because it is their village. They are not that we have recorded for each of these sites, quite prosecuting people, but sending warning letters to meticulously because we have put eVort into drivers saying, “You have been caught speeding capturing that. If you want to know how that through our village. Please do not do it any more”. happens Paul can tell you the detail, but this is more We have the Welsh Assembly Government looking or less unique to North Wales because at the at road signing and constriction markings to create moment there is not a consistent national method of a nicer environment with the backing of the county defining these incidents in capturing the data, what council, the community council, the local is desperately needed, the good thing it is coming population, the Welsh Assembly Government and over the horizon, so very shortly we will be in a much the police, a very extreme example of this Dyna stronger position. we in North Wales have very Ddigon concept. The other extreme I think would be detailed and comprehensive records of anti-social Conwy or Wrexham town centre. Conwy is behaviour. probably a very good example, and in your constituency so you will know it extremely well. Q173 Mrs Williams: In your report you mentioned Conwy is a world heritage site. It has the best a range of methods available for tackling anti-social preserved town walls in the United Kingdom. It is behaviour, page 51 to 71 I think? tiny. It ought to be the easiest place in Britain to Chief Constable Brunstrom: Yes. police, but we have not succeeded. I think I have received more complaints about the policing of Q174 Mrs Williams: You talk about ASBOs and you Conwy in the time I have been in North Wales than also talk about a yellow card system. anywhere else in North Wales, but sometimes more Chief Constable Brunstrom: Yes. than all North Wales put together. The town was being run by a small group of about 20 people, most of who are under the age of 15 who were just running Q175 Mrs Williams: Can you provide any riot and we had not gripped it. We had not dealt with information and concrete examples on the it. Now it is a Dyna Ddigon site, the problem has comparative eVectiveness of these tools in tackling more or less gone away. We have had more than a anti-social behaviour? 50% decrease in crime and disorder in Conwy simply Chief Constable Brunstrom: I can, and again I by applying the dispersal order, thinking it through, encourage Members to speak to Paul Firth about talking to the Chamber of Trade, the local people, this because he is doing some of this work for real. the local council. It is just fabulous. There is no end Anti-social behaviour orders are an enormously to the good news that comes from this once we get eVective tool if properly applied. They have not our act together. taken oV anything like as quickly as we would wish and there are a number of reasons for that and there are still severe diYculties with them, most Q172 Mrs Williams: I think you said twice it has particularly in the way that the courts approach been a success. What data do you have you have to them, the courts and the legal system I should say. I prove this? think it will be fair to say that the police have been Chief Constable Brunstrom: In the Police Service nationally and locally slow out of the traps to take nationally we have very good data on things advantage of the concept of an anti-social behaviour regarded as Home OYce crimes. We have been order; a very new idea in the Crime and Disorder Act keeping crime records in this country for about 200 several years old now. It is still the case across years. We have some very very sophisticated crime Britain and in North Wales that many local information. Unfortunately, it has rather been authorities have not yet started and we have some serendipity as to what particular oVence is regarded good examples of this sort of thing in North Wales as a crime and what is not. I think probably the most and some fairly poor examples. We have in North ridiculous example is drawing a trailer on a tractor Wales at the moment 53 anti-social behaviour with a solid tow bar is a Home OYce crime which orders. We had a total of 56 taken out. 3 have does not seem to have a great deal of logic to me, and expired as they should do over time, so we have 53 yet anti-social behaviour is not. Because anti-social live ones at the moment. Almost all of those have behaviour is a new priority in our society, and it is a been initiated by the police, almost without society issue, not just a Government and police issue, exception. Increasingly nowadays they are our done we do not yet have sophisticated data capture with the support of the local authorities, but if I methods for anti-social behaviour. They are in contrast this with the situation in Manchester where development at the moment. There will very shortly there have been I think in excess of 500 taken out by be a thing called the National Standard for Incident Manchester City Council alone, there is a significant Recording, known as NSIR in Home OYce and diVerence in philosophy between the Manchester police circles for short, and it is intended that that Council approach and the councils in North Wales. will start on 1st April next year. That will, for the I do not say that that is right or wrong, by the way, first time ever, capture anti-social behaviour data in because there is a very interesting debate as to a consistent fashion across Britain. My answer to whether more anti-social behaviour orders is a good your question, of course, is in the monthly idea. We have gone down a route of trying to target Welsh Affairs Committee: Evidence Ev 37
3 November 2004 North Wales Police them where they are most needed and to try and myself, but everybody knows that if the referee divert people away from that formal sanction. We waves a yellow card at you then you have to change have a whole series of filters in place which I show in your behaviour or you are oV the pitch. Everybody my evidence to try and avoid the need for an anti- knows, even I know that. Our yellow card scheme is social behaviour order. There is still a lack of an idea to demonstrate with a bit of a flourish, a bit engagement I think. I will come to the yellow card of showmanship, a bit of humour to a misbehaving scheme in a moment if I may. We still have a serious person of any age: this is a yellow card and all your problem in our courts. The Government has had to friends can see you are getting one and so can legislate more than once to try and correct this. everyone else. There is reluctance in the Court Service at every level I think to engage in this. The lawyers are having a Q176 Mrs Williams: Is it working? field day. We are regularly now having anti-social Chief Constable Brunstrom: It is. Let me come back behaviours orders that take two or three days of to that in a second. To say, look, this is not serious court time: two or three days. We had one booked yet but stop now or else. The impact that it has had recently where it was 4 days. They were expected to on people upon whom this has been used has been be over in an hour. There really is a need to have a significant. We cannot say yet how well it is working slicker court process and I fear the Government is because the scheme is new. We have only given going to have to legislate again to make it extremely hundreds of these things out, but the immediate clear to the courts that they are expected to change impact on a person who is misbehaving is stark. It is their behaviour in the way that I have been expected there to see. This whole thing, because it is so bold to change mine. The yellow card scheme—I should and dynamic and done with a little bit of humour to say by the way we have had a number of breaches. I level it, it really does work very well indeed. For the think if memory serves, we have had about 23 first time ever it is enabling us to keep records so that breaches of formal anti-social behaviour orders that we now have a record that you have had your have been formally investigated so far. You would warning and if you come to our notice again you will have to expect that, of course, because we are not get a second chance. We have never been able to making orders against people who lead chaotic lives do that before because we have lacked the and are not used to having their behaviour mechanism and the technology to do it. Chairman, constrained, so you would have to expect that some perhaps I have—sorry, I was going to say I have breaches would take place. It would also be fair to been talking at enormous length. I really would like, say that we have attempted to make some quite if I may, to bring Paul Firth in because I think it is naive orders, that we have attempted to have things okay hearing from me. I polish a desk at put in place that just are not going to work. We are headquarters. Paul walks the streets and does this putting a control upon somebody that is evident for real. I think it would be really helpful for the before we start is not going to be eVective and, Committee to see how this whole new concept of therefore, a breach is inevitable. I think there is a Government strategy works on the street. learning cycle there for us too to make this more Chairman: Absolutely. That is why we wanted Paul sophisticated. Overall, and Paul can I know give you along because I know the work he is doing in my some specific examples, properly managed these constituency. Can I say we are running massively things work. There is a risk that we end up over time. If we can be a little bit more succinct with concentrating not on solving the problem—and we our answers, Chief. are very big in problem solving in North Wales which is a new concept in policing—there is a risk Q177 Mrs Williams: Can I ask Inspector Firth if he with this that we just concentrate on trying to V can link into his answer, give us concrete examples control the o ender rather than solve the problem. of best practice? Many of these problems surround the use of public Inspector Firth: Particularly with the Dyna Ddigon space. I could give you a theoretical example. Paul site and the anti-social behaviour in those areas, we could give you a real one. It is commonplace to have have one site, a village Chirk which is on the border people kick a ball around on a public space and there with England towards West Mercier site and it was is often a thing through from the Council saying identified as a consequence of the crime and disorder “Ball games not permitted in this space” and you audit and we have worked with partners to look at then find somebody that gets an anti-social incidents of disorder in the area. We have used anti- behaviour order made against them for alleged anti- social behaviour orders. We currently have two in social behaviour. The actual problem was: why is that area and one in a local area close by. We also use there not a public space available to kick a football acceptable behaviour contracts which is a precursor around on? If we are not careful we concentrate on to an anti-social behaviour order which is basically the oVence rather than saying: can we solve this an agreement between various parties that a set line problem in the first place so that the oVence never of behaviour will be adhered to, otherwise there is a takes place, which is something that is missing from potential to, at the very most, will be to consider an the thinking in the strategic level at the moment. The eviction because these are run by ourselves and yellow card scheme is an idea that we borrowed from housing. We have used a range of options within the football because we wanted something that made Chirk area. In particular, I would highlight that the sense to young people. Personally I hate and detest biggest problem that we had in that one location in football; I have spent half of my career being paid to Chirk itself was a combined multi-use facility, which police it, so I do not have any interest in this at all was the primary school youth club and leisure Ev 38 Welsh Affairs Committee: Evidence
3 November 2004 North Wales Police centre. This site had been the subject of two or three I visit, each of the local areas to put together a incidents of disorder every single night. We worked strategy for young people. The local town and I think over two years ago to identify the key community councils do not have in general terms a problems behind this generating of police response strategy to deal with young people at all. As a on a regular nightly basis. As the Chief alluded to consequence, the dispersal orders, and such as that, there, we talked about the problem with the location I am very limited in being able to achieve dispersal itself, the victims who were being impacted upon by orders where I need them because there are no other the public and also the oVenders. It was as a options. There is nowhere else we can send the kids consequence of that work that led to the first anti- to, so we have to get that part of it right. That is social behaviour I think in Wales for the youth in crucial. When we talk about anti-social behave Chirk itself. Unfortunately, although the oVender orders they do work. I am confident, I have seen the was dealt with and his colleagues as a problem the benefits of them working, but they are not the actual location itself, because we dealt with the answer in themselves. We have to look at a broader oVenders, the symptoms went away and we did not brush approach and that partnership, again, that we do anything. The other agencies that were working talked about before. with us did nothing about the location itself, so Chairman: Can I just say at this juncture it looks as 18 months later the same problem started to though we are getting very useful information from manifest themselves all over again. We were then you, so we do not want to curtail the debate. I want faced with having to readdress the whole problem. to finish at 11.30 because it is Welsh Questions today We had breaches. We breached the youth and as a unfortunately or fortunately. What I am thinking a consequence of that breach he was put in detention possibility would be that if we adjourned until our initially. He was taken away from his home. I think visit to North Wales and then continue to take he got some notoriety on a Channel 4 programme formal evidence from you in North Wales; if you because he was the first in Wales. It really was could think about that as a possibility that would be impactive. However, since that particular problem quite good, in which case we will not have to rush the occurred, since that breach, he has subsequently questions. I think we are getting a lot of useful work been breached on two or three other occasions which done now. Perhaps if we can carry on on that basis. have not led to any kind of detention; it has been I intend to adjourn at 11.30. community orders and such. The Chief alluded to the issues about the courts because the local council Q178 Albert Owen: If I could just go back to have considered what they can do about that as an something which Mr Brunstrom said with regard to issue. That is something the courts need to perhaps the courts in your opinion blocking the system, if look at. It is losing confidence, the local public are you like. Are you serious about having to bring in losing confidence in the breaching process. That is a legislation or do you think with greater education message that has come back to me strongly from the that the courts will catch up with the police and some council. What we did do to redress it, and we talked local authorities who have been slow in about problem solving and local work together, we understanding the concept of ASBOs and their eVect reassessed the problem of the multi-functional site, on society? the leisure centre, and pulled together a public Chief Constable Brunstrom: I think the Government meeting. We had some fairly senior members of the has already had to legislate twice. The original local county borough council to come along to that legislation said that the standard of evidence meeting and to look at the real problem, which were required for an ASBO will be the civil standard of not the symptoms of the anti-social behaviour. It proof, which is the balance of probabilities: it is was the location itself that was generating it. As a more likely than not. The courts have for some time consequence of that and the work gone on now, tried to say this must be done to a criminal standard there has been a huge investment by the county of proof. The Government had to re-legislate to borough, education, leisure and various others to make it extremely plain that the civil standard of improve the site. There is CCTV, a diVerent proof was expected. We still end up, I think because construction to the centre, there is better of the structure of our legal system, with this management from the youth service; there is as a adversarial system. It has become a lawyer’s field whole range of options. As a consequence, we have day because we are trying to aVect people’s lives in a gone from having two or three calls per night to not very interventionist sense and some people are a single call in about four months now, which has bound to contest this. I do think there is going to had an absolutely massive impact on that particular have to be further thought given by the Government site. Can I say that given my wife is a receptionist with the Department of Constitutional aVairs as to there it has saved me a lot of earache at home as well. how this process is intended to work in court. It It has been a massive support for us. It has been might be that we simply have to put it up with it, that really evidenced not just how we can use anti-social we are on libertarian grounds putting significant behaviour orders to target oVenders, but the fact constraints on people’s lives and it is right and that we need to have local council and local proper that it be debated in court at length. You partnership support in dealing with location and could argue that that is better justice, but it is not victim issues. That is a particular issue that we have what was originally intended. The Government raised not just in Chirk but in other council areas as intended this to be a quick, simple and cheap process well and I have challenged at the county council’s and it is not turning into that. I think the meeting and the council town and communities that Government will have to consider further Welsh Affairs Committee: Evidence Ev 39
3 November 2004 North Wales Police legislation. It will certainly have to consider some Bench is not as strong as the next. The same court sort of programme to aVect the culture of the can take a lenient or an apparently Draconian judiciary: magistrates and district judges and Crown approach on alternate days depending on who is Court judges. It simply has not changed and we are sitting behind the table. It is apparent that diVerent not getting the process that we were expecting. groups of magistrates have diVerent cultures. You can see that across the whole of Britain. This is not Q179 Albert Owen: Legislation or guidelines to the new. This is across the whole range of Magistrates’ magistrates? Courts work. I know people in the judiciary who do Chief Constable Brunstrom: One or other I think is not agree with the concept of anti-social behaviour going to have to happen if the Government is not orders and have said so in public, which I find content with what it sees happening in courts and surprising but I know that it has happened. I know there is lots of evidence as to what is happening in governments are reluctant to legislate and it is courts. always diYcult to get time to legislate, but my fear or expectation is that it is going to have to legislate Q180 Albert Owen: We will ask the Government. because I do not think it has the mechanisms to force The frustration you have as a police force is it ad hoc a change in behaviour in the judiciary without across Wales with diVerent ventures or are you statutory basis. Anybody in a judiciary position will saying that it is the legislation that is letting you immediately respond: hang on a minute, you keep down? out of that. The judges are independent with the Chief Constable Brunstrom: I do not think the Executive and I will do what I see fit with the law. It legislation is letting us down; I think it is an ought to be like that in a democracy. My expectation interpretation of it and it is not for me to say whether in a fairly long timescale is that the Government is that is wrong or right. It is clearly not what was going to have to legislate again. originally intended and it is resulting, as Paul says, at one level with people getting breaches of ASBOs, Q184 Mrs Williams: I would like to turn now to the V e ectively getting away with it because sometimes policing of the Night Time economy, Chairman. V there is no e ective sanction. On the other hand, we Have any eVorts been made to quantify how much had a 10 year anti-social order made in North Wales crime has increased over the past, say, seven years in only yesterday, so you are right. Sometimes it relation to the increase in the number of licensed appears Draconian and other times it appears premises? lenient and very often it appears overly bureaucratic, Chief Constable Brunstrom: Some, yes. As you will but then you might expect me to say that because I be aware, all crime figures have to have a caveat am looking for a quick solution out of court and this round them and particularly the sorts of crime that had a 10 year anti-social order made in North Wales we experience round the Night Time economy, which is largely violent crime as opposed to property Q181 Mrs Williams: One could argue that we do not theft. I am afraid, Chairman, I am going to have to need further legislation, that it need not be patchy be verbose to give a proper answer to the question. across North Wales and indeed across Wales. I will be as succinct as I can commensurate with Would you say it could be a question of magistrates giving a full answer to the question. You may be needing in-service training concerning their work? aware that traditionally reporting rates for violent Chief Constable Brunstrom: Yes, that is certainly crime are low. Something like half of all violent necessary. As Mr Owen says, it is clear a matter for crime traditionally was never reported to the police the Government not for me whether further in the first place. This is two lads having a fight legislation takes place, but my oVer, my opinion is outside the disco on a Saturday night, they both go that more is going to have to be done than has been away with a black eye and neither wants to tell the already in order to eVect a change of behaviour in police about it. We have a very large amount of the courts. unrecorded crime. Of course, we cannot go back and find out how much there was in 1950 because by Q182 Mrs Williams: Are you avoiding my question? definition the records do not exist. I do know what Chief Constable Brunstrom: I am not trying to. has happened to recorded crime as a result of the Please let me try again. Night Time economy and I will tell you that in a moment, but the caveat is: you cannot be certain Q183 Mrs Williams: My question really is following than the figures are accurate. I will give you an Mr Owens’ question that it does not have to be example in Wrexham, which is our biggest problem patchy throughout North Wales or throughout with the Night Time economy. The Night Time Wales need it with current legislation? If some economy has changed dramatically. Wrexham is magistrates were able to take action based on now a 24/7 town in the modern vernacular. It was information provided to them by the CPS and the not 25 years ago. Violent crime recorded by the police why can they be not as lenient as other areas police in Wrexham in the last seven years has gone perhaps? up 400% overnight between 7 o’clock at night and Chief Constable Brunstrom: Forgive me if I have 4 o’clock in the morning, a 400% rise, from given the impression I tried to avoid answering approximately 20 oVences a month to something because that was certainly not my intention. like 80 or 90, but that does not mean Wrexham has Patchiness is a given within our system of become a more violent place. Two things have Magistrates Courts in the United Kingdom. One happened. First of all, very much more crime is now Ev 40 Welsh Affairs Committee: Evidence
3 November 2004 North Wales Police reported to us in percentage terms. People have about it. I think the new Licensing Act will be a more confidence in the police reporting system. We significant spur to us to say: how can we exploit this are much more meticulous at writing it down if you for the better. tell us about it, so if you come and tell us “somebody has socked me in the eye”, we will listen to you and Q187 Mrs Williams: You mentioned in answer to my we will write it down. In addition to that, of course earlier question about the increase and so on. Has there are many more people in Wrexham. Last year, there been any attempts on your part to cost this in I think I am right in saying 3.7 million people went terms of extra reassurance patrols—I am thinking of through Wrexham bus station; that is 600,000 more Llandudno in my constituency, for instance, where than the previous year. There is an explosion in bus there is a block of old people’s apartments right usage in Wrexham overnight because there is a between two nightclubs—attendance at incidents, significant proportion of the economy in Wrexham investigation and custody and the justice processes? now is our biggest town in North Wales depends on Chief Constable Brunstrom: I am afraid I cannot give that sort of club and shopping culture. Good news you costing figures regarding that today. I could in lots of ways but so there are more people there, easily make some sort of stab at it and I would be there are more licensed premises than there were in more than happy to do so and, Chairman, if you are the town centre and crime reporting habits have intending to reconvene in North Wales, I could changed dramatically. All I can really give you at the make sure that happens before you do so. You pick end of all that is a professional opinion which is that an interesting example of which I am aware because we are under a very great deal more pressure at night I happen to know that that particular set of old now than we used to be because if you report a crime people’s retirement flats on the seafront in us to I have to do something about it. There may not Llandudno was built on an empty plot when the two be more crime happening, but there is definitely nightclubs already existed and there is a huge more work with the police. The Night Time planning issue there as to how that took place, economy has significantly changed our workload whether it was the right thing to do and why people and the time of out work load. I have to have more who bought flats between two nightclubs should people on duty at night now then I would have done then start complaining about it and expect some sort 20 years ago. of service from society and how we got into that situation in the first place. This is a much broader Q185 Mrs Williams: Do you get involved with the issue than just licensing or just public order. There is consultation process when applications are made to a huge question to ask there about town centre Local Planning Authorities concerning the opening planning, quality of life and style and all sorts of of new licensed premises and the extension of hours? things way beyond the licensing issue itself. Chief Constable Brunstrom: Yes, we do. Q188 Mrs Williams: Have you considered Q186 Mrs Williams: Do you feel that the local recovering some of these costs from the licensed authority is listening to your point of view? premises, late-night refreshment outlets and so on? Chief Constable Brunstrom: Hitherto, of course, it Chief Constable Brunstrom: Yes and I would has been a matter for the magistrates much more so absolutely love to do so. Indeed, it is the policy of the than the local authority. They have not really been Association of Police OYcers nationally that we able to engage in the sort of debate with us that we should be allowed to do so. The licensing trade will would have wished because of their judicial tell you now that it is currently unlawful for us to do independence. There has been a very great deal of so. We do recover costs from private enterprises on debate about the new Licensing Act which of course private grounds, so we do it, for instance, at football will transfer the licensing powers in the first instance clubs within the grounds, but those who do this sort away from the magistrates to local authorities. One of thing will always say that, once you get on to great benefit of this is going to be that the police and public property, that is what they are paying their the local authorities are already required by law rates and their taxes for. At the moment, I lack the under the Crime and Disorder Act to work in wherewithal to charge licensed premises for the very partnership. We are already beginning to do that significant extra policing cost and I would very much now in gearing up for the introduction of the new like to be able to do so because I see no reason why Licensing Act. The first appointed day is next the taxpayer should have to bear the cost of those February. The process transfers across completely who choose to get drunk and then misbehave. The next November. There will be a very, very much licensing trade is a particularly rich, aZuent and I closer working relationship with the licensing have to say influential body. I think it is high time authority, as the local authority, the county council, that they were required by the Government—and it and the police than there could have been with the is going to require legislation—to take some of the court. I think that must be very good news. I think responsibility for their actions. it would also be true to say going back to perhaps some of our weaknesses that Mr Owen was asking Q189 Mrs Williams: You mentioned diYculties me about I do not think the police service in North around the lack of a shared definition of anti-social Wales or nationally has been paying enough behaviour and the subsequent lack of a national attention to licensing over the last 20 years. I think performance monitoring regime. Could you tell us a we could have been more engaged than we have been little more about this. For example, what kind of and we know that now and we are doing something definition would you like and how could it be Welsh Affairs Committee: Evidence Ev 41
3 November 2004 North Wales Police achieved? Is there any scope for a theory-driven We do not think that people have become more definition rather than simply a long list of tolerant, in fact the reverse seems to be the case. behaviours? Forgive me being facetious, it is not global warming, Chief Constable Brunstrom: Sometimes it is helpful there is something happening and the only thing we not to have a specific definition of anti-social can put our finger on is that we are actually winning behaviour and a good example of this would be and we have some confidence and the process is Section 59 of the Police Reform Act, 2002 which working, at least in those areas where we are paying gives the police very useful powers to deal with very serious attention to it, our Dyna Ddigon sites in people using a motor vehicle in an anti-social particular. fashion—in fact, it arose out of a constituency issue in the Home Secretary’s personal constituency in Q191 Mr Evans: Or perhaps they think you are not SheYeld—and it has turned out to be phenomenally going to do anything about it. successful because we are now able to deal with the Chief Constable Brunstrom: Or the alternative—and boy racers who blight many of our towns and cities you are right to correct me on that—which has been throughout the whole of England and Wales. One of true in many places and may still be true even in the benefits is that anti-social behaviour is not parts of North Wales is that the public have utterly defined. It is up to us and the victims and the courts given up on us and it is not worthwhile picking the to say, do we agree, in the normal use of those words telephone up because nobody is going to care in English, that this behaviour was anti-social, and anywhere. I have no evidence now in North Wales not having a boundary around it makes it quite that that is the case other than in individual people useful because we can then say, yes, this definitely in isolated incidents because, as Paul says, we are was because a number of people are complaining now so close to the community that it would be about it and therefore it must be. If we ever try to almost impossible for us to miss that sort of thing if define it by theory or by a long list, we would it were happening. I am not going to pretend that we inevitably fail to encapsulate all the potential have picked up every single incident that has permutations. On the other hand, if we are going to happened in North Wales in the last 12 months properly record and analyse and use this data, we because of course we have not, but I am very have to have some set of definitions. I could not confident that we do not have that sort of easily operate now without a definition of burglary institutional malaise that I think I would have because, when I come round to see you at home and agreed with you about as recently as five years ago. you say that something has been stolen from your garden shed, I have to know that that is or is not a Q192 Mrs Williams: You mention in your report crime and what sort of crime it is before I can deal that one of the diYculties in tackling anti-social with it. So, for recording purposes and for analytical behaviour is that all the tools made available in purposes, there most certainly does need to be, in my England under the Anti-Social Behaviour Act 2003 view, a fairly well developed set of criteria for anti- are not applicable in Wales. social behaviour and that is in being and, Chairman, Chief Constable Brunstrom: Yes. if you are interested, I could give you a copy, or through your clerk, of the current criteria that are set out in the national standard for incident recording. Q193 Mrs Williams: For example, you cite clause 23, I am sure that will develop into a more sophisticated penalty notices for parents in cases of truancy. product over the years to come. So, I think my Chief Constable Brunstrom: Yes. answer is twofold: yes, we do need much more detail and definition distinction structure for recording Q194 Mrs Williams: Can you tell us what particular and analytical purposes but I think it is actually diYculties arise as a result of this? rather helpful to us to take a commonsense normal Chief Constable Brunstrom: There is only one issue meaning of the words approach to what is anti-social so far where the National Assembly of Wales has behaviour. taken a conscious decision not to implement legislation that applies in England and that is the issue of truancy. In every other event that I am aware Q190 Mrs Williams: Given that there are those of at the moment, there has simply been a delay, problems that you highlighted just now, how can sometimes a significant delay, in bringing in you be confident therefore that anti-social behaviour appropriate regulations in Wales because the is down? regulatory process has to complete its passage in Chief Constable Brunstrom: Because we are looking Parliament in London before it gets to the National at the complaints recorded from the public. One very Assembly Government and they tend to introduce useful way of looking at what is anti-social sometimes quite a significant delay, many months, behaviour is, in very broad terms, anything that and they do not always work on the same sort of causes a member of the public to feel that they are timescale. So, I have had the devil of a job, in alarmed, harassed or distressed—those three words preparing for this, to try and find a comprehensive exist in legislation elsewhere—and therefore this list of what is actually in force in Wales at the must be anti-social behaviour because I am a normal moment and what has happened to some of the person and I feel alarmed, harassed or distressed, things that are not and who is in charge of it and and we are recording those and complaints are going whether there is a problem. So, we do not really have down. We see no good reason for complaints going as slick a communication mechanism and an down other than incident occurrence is going down. understanding as I would like, but I do not see any Ev 42 Welsh Affairs Committee: Evidence
3 November 2004 North Wales Police evidence other than the truancy issue where the we have needed to do more of it, but it is not a Welsh Assembly Government has specifically sophisticated enough answer. What matters is that decided not to implement an option. I have to say we have children in school, not that we can issue too that I do not think that particular issue is causing fixed penalty tickets. us any significant problems and Paul has been Inspector Firth: The patrol system that we have in working with truancy for some time and could tell place now actually looks at the reasons why it has you how we get round it. The issue however is likely happened and there are negotiations between the to grow because, as there is more legislation and as youngster, the parents and the school. So, it is not the Welsh Assembly Government chooses its own just a sanction and that is the end of it, we do actually path, there is clearly going to be a small but distinct take further steps to look at why it has happened diVerence between England and Wales and I think which I think is absolutely crucial because to that is an inevitably consequence of devolution. actually give someone a sanction will not stop them from doing it again if we do not address the reasons Q195 Mrs Williams: Are you going to tell us how for it. So, the approach that we have is one which you can overcome these problems? tries to identify the reasons behind it happening. Inspector Firth: We have been working with our educational social worker partners within our area Q199 Mrs Williams: Are you getting the support for quite some time and, on various numbers of that you would expect from parents? days throughout the school term, we will have Inspector Firth: There are always one or two that we community beat managers and our educational never get across to and the educational social social workers patrolling areas where we know we workers will take independent action on that basis. have had problems with pupils not attending schools We have actually seen a number of people who will and together they will approach the youngsters and only come to notice once and will never come to either take them straight back to school or, in some notice again. So, if you look at that for some kind of cases, take them home. We have actually been mechanism for success, we do not get repeat running that process and that system. It is organised oVending. through a joint partnership between education and ourselves and it is something that I think we have Q200 Mrs Williams: Some have argued that ASBOs been running for over two years in actual fact. I feel are creating new criminals. For example, young that we are not impacting upon the need for fixed people cause a nuisance, get an ASBO, they are penalty tickets or whatever for truancy at the found in breach of the ASBO and they can then be moment because the system we have works well. sent to prison for that breach, which the Chief Constable has mentioned earlier on, having never Q196 Mrs Williams: You say that it has been really participated in criminal activity. Have you working for two years. encountered this in North Wales and do you have Inspector Firth: I think it is actually longer than that. any specific concerns in this area? We have a system in place in Wrexham County Chief Constable Brunstrom: To take your last point Borough which I have been involved in personally first, I have no specific concerns in this area at all. I for about two years but I know that the actual think it must be true that ASBOs are creating a new initiative has been in place for more than three or class of criminal. I think that is really what they were four years but I could check for you. intended to do. If people do not behave, they are told, “Your behaviour is not acceptable. If you do Q197 Mrs Williams: Is it working? not stop, in a nutshell, you will go to prison” and Inspector Firth: We return to school quite a number that is what is intended to happen and that is why we of youngsters. It has actually reduced significantly have prisons, to send criminals there. Provided we from when we first started. I think the message has send the right people there for the right reasons— got out that we do actually run the patrols. They are organised; we know exactly what day they are on; we Q201 Mrs Williams: How can you do that? know which community beat manager is running it Chief Constable Brunstrom: If you would bear with and our anti-social behaviour oYcer that works me, and this is properly targeted, then I think it is within eastern division is the coordinator for it. absolutely right and proper that if people will not behave, then they should be branded criminals and, Q198 Mrs Williams: That is the Wrexham area but if necessary, they should go to prison. I think that what about the rest of North Wales? is right. Personally, I think that is what the Chief Constable Brunstrom: Similar things are Government have been trying to do, to say very happening across the rest of North Wales and we are publicly, this is something our society should not not asking for that particular power to be have to put up with and we are going to blimming implemented in Wales. We really do not think it is well stop it. So, I am not only not concerned by it but necessary. There is a danger with the enormous I actively support it. The process that we have going amount of legislation that the Government have in North Wales filters an awful lot of people out. So, produced of simply taking a sanction-based we are dealing with at the moment something like approach. We are always back to the zero tolerance 1,500 young people who have come to our notice concept. What we want is something that works and who are causing us concern as to their behaviour out simply enforcing the law and thrashing people of our population of about 680,000 in total. We have harder has its place, undoubtedly it has its place and 50 ASBOs because we are trying hard to find another Welsh Affairs Committee: Evidence Ev 43
3 November 2004 North Wales Police way of controlling people’s behaviour through Chief Constable Brunstrom: I think it is trivialising sending them warning letters, engaging in formal what is some quite serious debate and I long ago discussion with their parents, negotiating acceptable ceased to worry what the Daily Mail calls me. behaviour contracts with Social Services, the parents and the police. All these things are filters to say to Q204 Mr Evans: They hate you! people, “Please change your behaviour. If you will Chief Constable Brunstrom: If there were a badge of not change your behaviour” and there are a small honour, I think it is appearing with some irreverent minority who will not, “then you are a criminal and comment in the Daily Mail. So, I am in danger of I think it right and proper that you be branded as mischievously revelling in being public enemy such.” I have no shame or compunction about that number one. at all. I would be quite concerned if we were doing that to thousands of people but 50 seems to me to be an entirely defensible number. These people have Q205 Mr Evans: You love them as much as they love been making life hell in some of our most you by the sound of it. impoverished/most disadvantaged places. Why Chief Constable Brunstrom: Yes and I would not wish should people living there have to put up with this? to recommend our tabloid press to any other country Of course they should not. So, I am not only not in the world. concerned by it, I actively support it. Q206 Mr Evans: I think most of our press is tabloid Q202 Mr Caton: Chief Constable, we were in CardiV now. as part of this inquiry and met some police oYcers Chief Constable Brunstrom: In a serious answer to involved with a Community First project in that city. your question, the Home Secretary is on record as Some of them said that a worry that was growing was saying that he believes that appointed as opposed to that anti-social behaviour orders were almost elected public representatives in our society and becoming a badge of honour in certain communities particularly senior police oYcers ought to be public and there was almost a shame if you had not achieved figures, that we ought to have opinions, perhaps not one and one can imagine the same thing with your to be opinionated but our opinions ought to be yellow card scheme. Is that a phenomenon that you known, that we ought to be engaging in public debate have become aware of? at many levels and that we ought to be tackling Chief Constable Brunstrom: I personally have not. I controversial subjects. I do not welcome the, I think, am aware of the debate and it is a concern of mine unhelpful and destructive sensationalist media that, if we use anti-social behaviour orders too attention that some of the tabloid press gives to the liberally, they will indeed become a badge of honour Police Service generally or to me particularly but I do and there is a severe diYculty if you are dealing with agree with the Home Secretary, I think it is right and gang related behaviour, which we do not have in proper that people like me ought to express views on North Wales but there are many of our conurbations relevant controversial topics in our society and that I in England where that is a serious problems, that they ought to be some sort of lightening conductor for couldindeedendupbeingliterallypartoftheuniform public opinion, for the sake of argument, which by shelling these things out like confetti and, if there makes it easier for elected people like yourself, are no eVective means to control people’s behaviour, perhaps, to judge what the public think. I think it is then I do share your concern. It has not been an issue right and proper that I try to further debate on in North Wales because we have tried very hard to interesting topics and I am going to continue to do so. target these things properly, to divert people into other activity in order that you do not get one unless Q207 Mr Evans: That is interesting because I get the you need it and then, if you do get one, because we feeling that you bring most of it upon yourself, to be have relatively few of these, we have the resources to honest. I have been reading some of the news continue targeting these people in order that there is a headlinesthatareassociatedwithyouanditisnotjust sanction. This is not a badge of honour if you end up the Daily Mail. One says that you are the most locked in your house or sent to prison. You end up controversial police chief in Britain. “Police Chief with your behaviour controlled and more miserable denies speed obsession.” “Brunstrom told to get a than you were beforehand. So, if we can impact upon grip.” A deputy mayor lost his bid to sue you for his people’s lives in such a way that they think, this is not policing element of the council tax. Even 12 of your funny; this is not a badge of honour; this is actually own police oYcers were caught speeding and it just spoilingmylife,sotheychangetheirbehaviour,thenI goes on and on and on. Your views on drugs and you think that worksand there is evidencein North Wales do have an obsession with speeding which is way that it does. If we had, instead of 50 active anti-social beyond what seems to be proportionate and I am just behaviour,500or600,Idonotthinkwewouldbeable wondering whether you think you have brought it to control those people properly. There would simply upon yourself. betoomanyofthemforustomanageandIthinkthen Chief Constable Brunstrom: Well, I am more than there is a real risk of the suggestion put to you in V happy to answer that, Chairman, if you wish. Cardi becoming a reality. Chairman: I really think that we are oV the track. Mr Evans: No because— Q203 Mr Evans: Do you revel in the fact that you are Chairman: No, I am in the chair and the fact is that termed the most controversial police chief in Britain this meeting is about anti-socialbehaviour and how it or do you think it is an irritant? is being tackled. Ev 44 Welsh Affairs Committee: Evidence
3 November 2004 North Wales Police
Mr Evans: No, my point is about serious and risk of repeating myself, look at the figures. They are organised crime and what I am going to suggest, there to be seen. I do not really think I have anything Chairman,isthefactthattheChiefConstablehasthis else to say. reputation and goes oV on various tracks which Chairman: I could extend this debate because I have means that there is a perception out there that the my own views on this and happen to think, as you do, police chief is not taking serious crime and organised that we should be opening up the debate on this issue crime as seriously as speeding, for instance, which he and I do not think that necessarily cracking down on has this reputation for and that is the track I am dealers or whatever is actually going to solve the going down. problem. I think we have to have something coming out of the box on this, but we are not here to debate that particular single issue and I think you have made Q208 Chairman: We will leave it there and allow the your point, you have said that the figures prove that Chief Constable to reply on that one issue. you are cracking down on organised and serious Chief Constable Brunstrom: On which particular crime and I think that they do prove that. I would like issue? to move on now to questions from Mrs Morgan. Chairman: On the issue Mr Evans has just suggested that you are concentrating on other issues other than organised crime and that is aVecting your ability to Q211 Julie Morgan: I was going to ask you a little tackle organised crime. That is how I understand it. I about how you reassure the public and you have am not sure that I agree with the point. covered some of the points I was going to ask you Mr Evans: That is the point. already, but perhaps you could say how you know what the public think about the police force in North Wales and the services. I think you have already said Q209 Chairman: Can you just answer that and then that you are very locally based and that you get we will get back on what we are here to do today. feedback there, but do you have any other sort of Chief Constable Brunstrom: Very simply, our record information that you could give us about that? across the piece in police work specifically including Chief Constable Brunstrom: We survey and have tackling serious and organised crime stands surveyed the public mood and public opinion in comparison with any other force in Britain. I think police forces, and North Wales is no diVerent to any you are right to say that I have, in your terms, an other, for many years and we have a fairly clear idea obsession with speeding but I am proud of it—3,500 in general terms at national and regional level what is die on our roads each year and something ought to be happening and you will probably be aware as a done about it. I do not intend to stop talking about background that, as far as we can tell, public opinion drugs. Drugs are a scourge in our society, they are about the police, the esteem with which we are held, destroying our quality of life; they have their worst has traditionally been very high and, over the last impact in some of our most impoverished 10 or 20 years, it has been drifting very slowly communities and things need to be done about it. downwards by some sort of process of attrition. I There needs to be a debate. I really take serious think that is mirrored with an increasing cynicism exception to people trying to close that debate down about public authorities generally over the same because it is the most serious debate that we need to timescale, but I think that the drift downwards is a have in our society. I also wish to say that Mr Evans real one and I think it is where the Government and has been extremely selective in the newspaper the police have recognised that we need to change our headlines that he chose. I can produce an equally behaviourbecause,ifthatdriftcontinues,thatisquite impressive list saying exactly the opposite and I think worrying. In general terms, public support for the that is really where I ought to be because I ought to be police in North Wales is on or slightly above the somewhere in the middle with people at both national average,so weare aboutin thetop half ofthe extremescommenting. Ithinkthat isright andproper pack, but it is changing rapidly for the better because, and I feel fairly comfortable with it. I must repeat that as I mentioned in opening, one of the things we are my serious answer to the question is, look at the exploring now is very, very localised public opinion. figures. If you ask somebody, “What do you think about policing in the United Kingdom?”, you get a very Q210 Mr Evans: I am not so sure that you are actually diVerent answer to, “What do you think about perceived to be in the middle on these issues but, on policing in your street?” and “Are the police paying organised crime, for instance on drugs, which has to attention to the problems in your street?” and that is be one of the most serious organised crimes that there where Paul comes in to get into very local is in the country, never mind North Wales, do you communitiesandnottryandsellthemstatisticsbutto really believe sending out the message that they say, “Look, what is the problem? What is irritating should be legalised is the answer to that particular you? What is impacting upon your quality of life?” I problem or do you think more resources ought to be can give no better general answer to this than looking made available to the police to ensure that you crack at the issue of litter. If you ask, just as a particularly down on those who are peddling drugs? pertinent example, people in any community in Chief Constable Brunstrom: First of all, we do crack Britain what list of things causes them most concern down on those who are peddling drugs. That is the about their quality of life, then litter is up there in the law of the land and it is enforced equally thoroughly top three or four in any community that I have ever and enthusiastically by me and by all my oYcers in comeacross.Ithasbeenatthebottomofthepolicelist North Wales as it ought to be, and again I say, at the of priorities for a very long time and at the bottom of Welsh Affairs Committee: Evidence Ev 45
3 November 2004 North Wales Police local authorities’ list or priorities. Paul can tell you a the groups of people I was already meeting were little about this because we now go and ask people, reflecting the views and needs of that particular “What actually matters to you?” in very small groups community. We are looking constantly for ways in and do something about it. At an anecdotal level, which we can involve local people. It is the start of a before we started down this route—and Paul can give process. We are not there yet but at least now I can you some detail on this—we used to get complaints turn round and say that the work that my local from people that now do not exist. We do not get oYcers are doing has an input from and reflects what complaints from local councillors because there is the local community needs. That in itself provides me nothing to complain about. They complain to the with some indication of the fact that we are getting to police oYcer rather than about the police and that is a the community and providing them with what they monumental shift. want.
Q212 Julie Morgan: So, you are seeing a shift in Q214 Julie Morgan: Thank you. It is very impressive public opinion of the police? that you have got such local links. For the Dyna Chief Constable Brunstrom: Yes and it is not yet fully Ddigon initiative do you get media support? and accurately reflected in the figures: (1) because we Chief Constable Brunstrom: Overwhelming. There is are not catching all those figures at national level yet; no doubt at all that we have touched a public nerve (2) because we are dealing with a very fast moving here. I think we have got more support because we field. Paul, can I perhaps bring you in at this stage to have made very certain, as I was saying earlier, that say how you make certain rather than guessing that this is not just a zero tolerance approach. There is you have captured the public mood. much more to it than that. It is firmly and formally Inspector Firth: It is by asking people. backed by all the six county councils in North Wales and there is a real partnership behind it supported by Q213 Julie Morgan: Are these formal surveys? local people. The press recognise that. They can see Inspector Firth: These are meetings which take place the benefit of it and we have had nothing but praise with myself at county council level and at community and support for it. I cannot remember a negative council level. We started by putting community beat article in any of the media outlets of any sort since we managers back into post—that is the mainstay/ started it. bedrock of what we are trying to achieve—so that we have local people who have local understanding and Q215 Julie Morgan: What about the role of the knowledgeofwhotheirpoliceoYceris.Wehavetheir extended police family, community support oYcers? names, photographs and phone numbers in the What is their role in North Wales? You have newspapers; they run local articles; they are mentioned the community beat oYcer already. contactable; they have mobile phones. So, people are Chief Constable Brunstrom: One of the things that is contactable. They are integrating with the happening in the broader Police Reform Programme community. We started with the community beat is this concept of having a wider police family which manager and ourselves putting together an action has many manifestations. We were rather slow out of plan as to what was the priority in the local area. That the tracks on the police community oYcer idea, not action plan has now been evolved so it is actually because it does not work but because we were delivered and owned by the local town or community extremely cautious about being caught on an council. The local council in my area have an input economic hook. Community support oYcers cost in into what the local oYcer does. The next phase of round terms as much as a police oYcer and yet the that, which has already started in the planning government is allowing us to have money only for process, is to extend that local action plan into a PCSOs without any long term commitment to the neighbourhoodplanwherebygeneralmembersofthe funding, so we can see some really quite awkward public come along and express their opinions and economic questions in the future. Nonetheless we include what they feel is appropriate and required to have joined the herd and we now have something like achieve local policing. We are giving the opportunity 35 police community support oYcers in North Wales for local people to come on board and talk to us and and we are expecting another 40 or 50 in the next tell us what they feel is appropriate. In addition to round. They are phenomenally successful; there is no that I would highlight the fact that I have started over question about that at all. They are very popular with the past six months another liaison group with the public, they are popular with our oYcers and it is members of my black ethnic minority communities enabling us to do things that we could not otherwise whereby I speak with individual members who have do. My only concern is the economic future because themselvesperhaps beenthesubject ofahate crimeor that economic trap still exists and if the government some incident that is perceived to be about racial does not find a way of letting us oV the hook there is background. This is a very informal meeting, it is not going tobe some seriousdiYculty. We havealso done minuted or anything; it is a discussion and I talk some other things. We had the very first community about what we are trying to do in depersonalised safety accreditation scheme in England and Wales, terms. I go through the incidents that have occurred which is a method that allows me to authorise people inmyarea,explainwhatwe havedoneorhavetriedto not employed by the police authorities who exercise a do about it and they have come up with good ideas or smallrangeofpolicingpowers.IthasnottakenoVyet they have said, “Yes, I am very happy with the way to the extent that I had hoped. We had the very first in you have dealt with that”. That has been done to England and Wales. There are some others now but reflect the fact that I was not completely happy that not many. Most of them have been copied from us. Ev 46 Welsh Affairs Committee: Evidence
3 November 2004 North Wales Police
We did intend to use this widely within the six local will equip it, we will manage it, we will train you, we authorities in North Wales as a first instance before will pay for it, but you have to sit inside it and operate we oVered it to the private sector because this could it because if that is what your community wants we apply to somebody acting as a night club bouncer in need you to do that deal with us”. the centre of Wrexham or in CardiV. Rather disappointingly, there was not a rush from the local Q216 Mr Edwards: Can I ask you to clarify the authorities to take this up. One of the things I have position with regard to special constables? Did you learned in going through this crime and disorder say earlier in your evidence that you had not debate in the last five years is that things do not traditionally employed special constables? happen as quickly as you would wish. You would Chief Constable Brunstrom: Forgive me; I have think that you could just pass a law, tell the police to misled you. We had a special constabulary which was get on with it, flick a switch and it all happens. I am like anybody else’s and it replicated the structure and afraid human life is not like that. I am very pleased to style of the ordinary force. We had traditionally 100 report though that this is now undergoing something or 150 special constables with a rank structure and a of a rebirth and we now have accredited wardens commandant in charge of it. That just does not fit the working in Wrexham. There are four at the moment public need or mood at the moment. You will be and there are 11 jobs advertised, so there will be 15 or aware that the Red Cross and the scouts have the 16. Flintshire County Council have started their same problem, that people are not volunteering for scheme up. Their first accredited wardens have that sort of thing in the way that they used to. Leisure started work and they are looking to expand it. We time is used diVerently. It became old-fashioned and are looking hard now to recruit people not just from anachronistic. What we decided to do was to see if we the public sector but also from the private sector, could find people who wanted to put something back shopping centre security guards, for instance, or the in a very much more local fashion. This came out of Securicor dog patrol or the guy who sits on the front an idea suggested by one of our community beat gate at an industrial complex. I see a significant oYcers. It happened to be a lady. She was a member expansion of this into quite a new concept of public of the school parent/teacher association and one of order maintenance and it is a really good idea. We are her friends at school said, “Do you want some help at also expanding our special constabulary, the work? I am only prepared to help you because I know volunteer police oYcers. They are changing a lot as you as a person and I like you and I know you are well but the key issue at the moment is that we cannot committed to this town. I do not want to work for the pay them because they are volunteers. However, we Chief Constable. I do not want to go and police a have now changed them so that rather than being football match on Saturdays. I want to help you look some sort of reserve force we have made them after our kids’ town”. The penny dropped with me community special constables so they work within a that we could do something utterly diVerent here and specific community,usually theirown community,so find a completely new stratum of people who would itisalocalperson walkingtheirownstreets.Thereare be prepared to do something if we could strike a deal not lots of people who want to do this but there are with them on their terms. That is what we are enough to make a big diVerence, and because they are investing in heavily at the moment. We have a local they have a passionate commitment to what recruiting oYcer tasked with this and it is spreading they are doing. It takes a bit of courage to do this, not very rapidly because it is popular. It is working and necessarily physical courage but mental courage. We there are lots of legs left in it yet. We have done away are also looking at some other innovative ideas using with the old-fashioned police reserve concept of the thelifeboatcrewascommunitysupportoYcers.They special constabulary. We do not do it like that any are already geared up. They have the public service more. ethos and they can be turned out on a bleeper, so we are doing a deal with the RNLI to use those lifeboat Q217Chairman:Atthatpointwewillhavetoadjourn crews that we have got as an emergency response thissessionuntilwecanseeyouagaininNorthWales. squad. We are trying to do the same with the Fire I do apologise for having to do this but it is Welsh Service in North Wales, most of which is retained, so questions day and unfortunately we are likely to be they are all volunteers as well, and we are looking at a inquorate in about five minutes. Thank you for significant expansion of volunteers. We are looking coming this morning and we look forward to seeing to try and re-open a huge number of police stations you again in North Wales shortly. that we used to have in North Wales Chief Constable Brunstrom: Thank you, Chairman. 50 years ago by using volunteers, in other words, We will be delighted to facilitate the visit as and when saying to local people, “If you want a local police you see it and we will do anything we can to assist you station you can have one. We will find it for you, we in your endeavours. Welsh Affairs Committee: Evidence Ev 47
Wednesday 3 November 2004 [Afternoon Sitting]
Members present:
Mr Martyn Jones, in the Chair
Mr Martin Caton Mrs Betty Williams Mr Huw Edwards Hywel Williams Julie Morgan Mr Roger Williams Albert Owen
Written evidence from Gwent Police is printed on Page Ev 302
Witness: Chief Constable Mike Tonge, Chief Constable, Gwent Police, examined.
Q218 Chairman: Good afternoon, Chief Constable. the National Policing Plan categories do link very, Thank you for coming and thank you for your very closely the concerns of the public of Gwent. Our written evidence. Can I just say at the start that we major areas identified by the National Intelligence have only got an hour because there is going to be a Model are burglary, vehicle crime, violent crime and number of votes, we have been told, at four o’clock the traYcking of Class A controlled drugs, and we and it would be unfair to expect you to come back are very successful in dealing with that. Our after waiting for an hour. So we intend to do what detection rates at the moment are around 45% for all we have done with the North Wales evidence this crime, which is only bettered by one force at the morning. When we come to visit your Force, as we moment and we are rapidly catching that force. are planning to do, we will arrange it at a time when Chairman: Thank you very much. you can give evidence to us in public there. So we will get as far as we can, though, today. Could you briefly introduce yourself to the Committee for the record and if you could then go on to give us a run-down really of the kinds of issues, the special issues that Q219 Albert Owen: Good afternoon. You you have particularly in Gwent. mentioned the National Policing Plan there. Is that Chief Constable Tonge: Yes. Thank you, Chairman. your main driver for police priorities or are there My name is Mike Tonge. I am the Chief Constable other ones, for example the National Intelligence of Gwent and I am proud to have been appointed to Model, Community Safety Partnerships, local that role from April of this year. I have got twenty- consultation? What are the main drivers for your six years of policing experience, twenty years in Force? Lancashire, five years in Merseyside and then I Chief Constable Tonge: Well, there are many drivers, joined Heddlu (Gwent Police) in April this year. As obviously, and as Chief Constable I have got to try far as my Force area is concerned, we cover quite a and bring a balance to them. Obviously what the large geographic area. We have got a budget of communities in any locality want is my overriding £98 million. We have got 1,400 police oYcers and concern. The National Policing Plan is broad 720 support staV; 83% of my budget is spent on enough at the moment. Whilst it might have four or people. As far as the make-up of the area is five major factors, if you actually look at the content concerned, it is a county of contrasts. In the west of of the plan it does cover all eventualities from the county we have got some of the old mining terrorism to the rare incident, to quality of life issues. communities and valleys, the Sirhowy Valley, the So my job as Chief Constable is to ensure that the Rhymney Valley and the Ebbw Vale/Blaenau Gwent Basic Command Units (I have three of those in area, which has a lot of social deprivation. I have Gwent which are coterminous with local authorities) got 43 Communities First areas within my Force deliver a policing style that meets local needs but area. I have then got the city of Newport, Wales’s also addresses the factors that we are measured on in newest city, with lots of social issues—a lot of terms of Government, HMIC and other immigration people have been placed there stakeholders. So there is a balancing act to be recently—and a lot of drugs links and organised brought to this. I have to say the new National crime links over the Severn Bridges to Bristol. We Policing Plan, which we have now just seen sight of, have got a rapidly growing area along the Severn does shift the context somewhat in favour of what Estuary by the two bridges and the Chepstow area. the local public will want, a lot more about quality We have got rural Monmouthshire to the north, of life issues and about anti-social behaviour. So I which has its own specific issues, which are think the new plan, which will involve the public in categorically diVerent from those in the west of the a much greater way than they have been in the past, Force area, and then in the centre of the Force we is something that I feel oVers a big opportunity for have got the local authority of Torfaen and we have me and my staV and I will need to restructure and also got the Caerphilly area, which again has its make some changes in Gwent from April next year main social issues there. As far as crime is concerned, to reflect the new National Policing Plan. Ev 48 Welsh Affairs Committee: Evidence
3 November 2004 Gwent Police
Q220 Albert Owen: You mentioned the three Basic such that it can reflect local needs. As I have said Command Units that you have within your Force already, the new National Policing Plan gives even and they are coterminous with the local authority? more scope for that local involvement and will Chief Constable Tonge: Yes. require forces to not only keep the public informed about what we do but also have the public very much Q221 Albert Owen: How do they diVer and how do engaged in deciding what the local issues are. The you prioritise which areas get what? tension will be delivering against those local issues Chief Constable Tonge: They diVer substantially. As whilst also dealing with the big jobs that come along I said before, the make-up of the Force is one of which we cannot plan for or cannot control always. great contrast. We have got one BCU based on a very tight geographic area, on Newport City Q224 Albert Owen: You said you have these tough Council, and that is the major operational drive in the whole Force and the make-up of that area tends decisions to make and what I am really getting at is, to be to deal with the reactive, more volume type of here you have pressure from the local community asking for more oYcers on the beat, etc., when really crime and has strong links with the local authority. Y The mechanisms the local authority employs to deal the Home O ce is looking for you to perform with local issues are tailored for that area. So that against other forces, for example, and you have to unit works very, very focused on the Newport area. respond to those. Those are tough decisions I am If I then take the Monmouthshire and Torfaen area, talking about. What is your priority? Are you saying there is again a mix there in terms of demands in the the local police authority is also putting pressure on area but the local policing style, linking in with those you to get results locally? two local authorities, has got to reflect the needs of Chief Constable Tonge: Yes, there has been. I think those communities, and they do. So the policing the tensions have been broader than they are now plans in relation to those two diVer, as it diVers and will be in the future because if you look at those again, because when you go over to the west of the tensions what gets measured in any organisation county into the old mining valleys there is a very tends to get done and performance indicators tend to strong identity in the communities there, which is drive activity. If we were being critical, going back to actually a great strength for us to police because you the late seventies and early eighties when we got a have local oYcers based there who get to know a dose of performance management from the private heck of a lot about local issues. Gwent prides itself sector, we did measure perhaps the wrong things. It (and I inherited this) as being a Force which has a was all about speed of response, about the number traditional style of policing that is close to its of calls you answer in a certain time, nothing about communities and that oVers some big opportunities the quality. So what happened was the Police Service for me and the Force in the future when the new of England and Wales became highly reactive. National Policing Plan has the public right at the People got dragged oV foot patrol and put in cars front in terms of priorities for the Force. and leapt from job to job, and it is very diYcult to form trusting relationships when you are travelling Q222 Albert Owen: Do you find there are conflicts or at thirty miles an hour down the road. I think if you tensions between your local policing priorities and look at trends in England and Wales at the moment the national level of policing? by any stretch of the imagination crime is at its Chief Constable Tonge: Yes, there could be tensions lowest level since 1981, but working in the Police but providing they are healthy tensions I think that Service of England and Wales you would not realise is a natural consequence of what the public will want that because the demands are going up and the rising expectations of the public and what tremendously. My demand has gone up by 40% in myself as a police professional has got to deal with. the last eighteen months alone. I now get nearly a For instance, if you went to a community forum, million telephone calls a year now and a lot of that quality of life issues and low level crime would be the is around quality of life issues, around that major thing you would be discussing, but when we reassurance agenda. So we have really got to make a have a murder or a major incident, or a terrorist step change and move away from some of the incident, whatever it might be, or we are policing the reactive side and get some qualitative measures Ryder Cup at Celtic Manor then obviously the about how you are actually dealing with some of the resources will be required to police those issues and public’s concerns. So I think the way performance you have got to make a professional judgment as to indicators have gone is they have moved from the where those resources go. That is what I am paid to quantitative, chunking sort of indicators to more do. They are tough decisions sometimes, but that is qualitative indicators that reflect what the public what I am paid to do and I have to do that. want to see from its Police Service and that will allow, I think, the Police Service to get back to its Q223 Albert Owen: Are the national targets basics of being locally based and dealing with local appropriate to your Force? issues and I welcome that. Chief Constable Tonge: Yes. I think there is suYcient flexibility within the targets to tailor them to meet any Force. I have worked in Metropolitan Q225 Albert Owen: You mentioned about these Merseyside before I went to Gwent and there was a diVerent measures that you have to meet, etc. In completely diVerent pace of life and operational terms of costs resources how much eVort are you pressures there, but the National Policing Plan is putting into responding to providing data to Welsh Affairs Committee: Evidence Ev 49
3 November 2004 Gwent Police diVerent organisations and agencies? I put it to you look at policing anywhere in Wales compared with that your time and the time of your senior oYcers England then the levels of crime in Wales, the levels could be better spent doing something else. of satisfaction and confidence in Wales and the levels Chief Constable Tonge: Yes. We do put in a lot of of crime per head of population, the quality of life in time, eVort and energy, but we have got to be Wales is better than England if you use any of those accountable and demonstrating our accountability measures. If you ask me as the new Chief Constable is an important part of it, so let us be clear, we have seven months in whether I felt the performance of to give information to people and I think the nature the Force could not be improved, I would be wrong of that information is important. We are, in my view, to say it could not; it will. We have got to shift into over-taxed in terms of providing data to a lot of giving much more qualitative information to the diVerent agencies and I think over time, as that shift public and getting closer to our public and that is from the quantitative to the qualitative type what we intend to do, but there is a proud tradition indicators comes about, we might be able to tidy it there. We can hold our heads up. Our detection rates up. The Government did say last year, actually, the are fantastic. We are one of only two forces that new National Policing Plan will have less targets and investigate every crime that is reported to us and I monitors in there and they will be more qualitative, think just the fact that we sit down with victims and but I have to say, having read it, there are even more take a statement from them for whatever crime they measures in there and not many have dropped oV the have had committed against them really impresses agenda. So we do spend a lot of time providing the public, that we take quality time to understand, information to diVerent agencies, but I think warts and all, what has happened to them. We get it information needs to be provided and we need down in black and white and we then investigate it to shift into giving local people much more and I think our detection rates are a strong testament information about what we do. For instance, every to our strength in investigating crime and dealing time a call is made to us we often do a heck of a lot with it. In terms of quality of service, I think we have of work in relation to that call. The only person often got a step change in terms of what the Government who does not know what we have done is the person now calls “citizen” focus policing, in that when they who rang us in the first instance. We have got to do ring us for help we genuinely care. If you look at a lot more about giving feedback to people about the satisfaction and confidence levels in Gwent Police, work that we do if we are going to gain credit and now we measure the type of service we give to victims reassure people that we take their issues seriously. So across a whole spectrum of crimes we can see where I see a shift in terms of information being more from we are falling short. For instance, if we go to a statistics to all the diVerent bodies—let us get that burglary it is not very often that we get there quickly tidied up, and there are some opportunities to do and it is not very often that we apprehend an that, but let us shift to that local information getting oVender that has a big impact on the victim, it is back to the public about what is going on in their whether when we turn up we take quality time, we area and what in the main we and other agencies are genuinely care, we are compassionate, we show that doing about it. we are being professional and take their concerns seriously. That is the factor that stands in their Y Q226 Albert Owen: You did not quite refer to the minds. If the o cer has just been dealing with a cost element of it. How much does it cost the Force violent incident, it may have been an assault, and to collate all this information? turns up with the wrong attitude, by God we Chief Constable Tonge: It is always a diYcult thing undermine public confidence. So I think we have got to put a direct cost on this. If I look at the staV whose to shift our focus as public servants to dealing with day job it is to provide information, I probably what the public wants and treating those issues spend something like £200,000 a year in terms of seriously. wages and the infrastructure that go with it. If I then wind it out to see how much I spend on Q228 Albert Owen: That has been your priority communication and marketing and liaising with the really. You saw that as a weakness, perhaps? media in a much wider dimension I would add a lot Chief Constable Tonge: If you look at the police more to it. In my previous force we used to provide performance assessment framework, the radars that about a thousand pages of information to the police the Government use to measure and if you look at authority alone, but if you then add to it Her Gwent’s strengths, its strengths are its traditions, its Majesty’s Inspector of Constabulary, the Police investigating crime, its responsiveness, its visibility Standards Unit, the Home OYce and all the other of patrol, but where it undermines itself—and this is agencies that we deal with then it is a lot of data. the position not just at Gwent but I think the Police Then you couple with that data to our partners Service—is information, keeping the public whom we work with, which is very important. It is a informed and the quality of the service that we give, huge amount of eVort. and that is really what I am pushing on at the moment. The new National Policing Plan is all Q227 Albert Owen: One final comment. Are you square with that and that is where we are going. happy, Chief Constable, with the performance of the Albert Owen: Okay. Thank you. Gwent Force? Chief Constable Tonge: I think the performance of Q229 Mr Edwards: The submission that you gave, the Gwent force measured by the traditional Mr Tonge, is very much written by you. It is your performance indicators has been very good. If you version, your interpretation of what you believe to Ev 50 Welsh Affairs Committee: Evidence
3 November 2004 Gwent Police be right and, as you say, you have come into the post partnerships working since the Morgan Report in only since April. Can you tell us first if all, with 1981, in the eighties we were not talking about these respect to your approach to anti-social behaviour, things. What makes partnerships work, in my view, what are you bringing that is diVerent and what do are three critical factors. Number one, that you have you want to achieve? got real accountability. You need a proper Chief Constable Tonge: If I look again at the performance management framework to make sure strengths of the Force when I got there, it had got a people do do what they say they will do and commit very strong sense of community and local focus and to it, and number three is the relationships. the local authorities in my area, all five of them, had Structures and systems in themselves do not deliver. got very good linkages with the Police Service in You have got to build trusting partnerships with Gwent. If you look at the Government strategy, people, getting to know one another and working Together, which looks at tackling anti-social in a committed way towards those ends. I think behaviour, I think that is a very measured and sometimes we do not help ourselves with the sort of appropriate response to dealing with the issues turnover we have in staV. We have got to have some because there have been so many societal changes in continuity to make those partnerships work. the last ten or fifteen years. The Americans say the generation that is coming through now is called Generation X, the generation that knows all about Q231 Mr Edwards: Can you tell us something about its rights but very little about its responsibilities. the tools which you want to deploy, given all the There is a little less tolerance in society today than legislation that has been passed in the last few there once was. If you look at anti-social behaviour years—the Crime Disorder Bill, the Anti-Social in the full spectrum of it from somebody having an Behaviour Act, and such like. What are the tools which you are finding most valuable and what tools opposing view to their neighbour all the way Y through to murder, you have got to have a do you think you are not deploying su ciently? proportionate response to dealing with any issue at Chief Constable Tonge: There is a lot of new tools, by any one time. If you look at the strategy the the way, given in the Together guidance, which has Government has launched, I have to say I fully come in this year, and we have still got to drive home subscribe to that measured approach. What we have some of those tools to make them work. I firmly got to do to make that work, however (and I think believe we have got to have a proportionate response we still have some way to go on this) is to ensure that to problems and issues. I am passionate about there is a truly joined-up approach to that strategy. involving young people at a very early stage. I would In my Force area we have got some very good commend the Welsh Assembly Government’s linkages with ourselves and the local authorities but support that they have given to me as the lead on the all the other agencies which have a part to play in youth initiatives in schools and they are providing delivering that proportionate response to anti-social some more money for the future to get involved with behaviour have got to take their part quite seriously disengaged young people and people who are and commit to it. When I talk about that, I talk outside the education system, the very people we about even in prisons because in my view at the need to target on that. If I look locally, in every one moment short sentences for people in prisons are not of my local authority areas at a ward base level doing anything about oVending behaviour and are (I have got 134 wards in Gwent) we have got a strong not doing anything about people’s values and structure at the moment with a sectional inspector in attitudes and if you are not going to get that in the charge of an area which is made up of wards and we home through poor parenting you are not going to have, at the practitioner level, ward-based problem get values and attitudes instilled in schools and you solving meetings where we have a local authority are not going to get values and attitudes instilled by person who is an ASBO coordinator working alongside a police oYcer, a crime and disorder the Police Service. We have got to look at how we Y deal with that rather than just rush to a zero reduction o cer looking at the full implications of tolerance approach and stick custodial penalties on the Crime and Disorder Act in order to tackle problems. They are able then to look at people who people. So I think there has got to be a joined-up V agreement about the way forward and that needs to have o ending issues in their area and you can have be reflected in strategic plans at the top of the all sorts of interventions. We have got probably just organisation as well as the very good practical over fifty ASBOs at the moment, but beneath that approach by practitioners in the field. we have got seventy-nine Acceptable Behaviour Contracts, we have got interventions and injunctions which involve housing associations with Q230 Mr Edwards: Is that getting through, though, residents. We have not made a lot of use yet of to all your staV at all levels and do you think it is fostering orders. We have got opportunities to use getting through to the staV in the other agencies as fixed penalties in an appropriate way. Again, we well, that they need to reciprocate with such a have not used that in the way that I would like to see partnership approach? yet. We need to accelerate that one. So there is a full Chief Constable Tonge: I think locally at practitioner range of penalties which are there and are able to be level there is a very good understanding of the applied, and I do commend the work that we do with pragmatic issues that they are facing and very often all the local authorities. What we have to do is quite a feeling of joined-upness. What tends to engage some of other partners, though, in order to happen is that it is in the middle management areas make those work more eVectively than they are rather than at the top. In my view, if you look at doing at the moment. But overall I have to say, as a Welsh Affairs Committee: Evidence Ev 51
3 November 2004 Gwent Police newcomer coming in, the framework that pertains in like CardiV, but you will know that there are serious every one of our five local authorities is they are in a problems with drinking, under-age drinking, in the healthy state. In some of them they just need small market towns as well. Can you give me your accelerating a little bit more to use the full range of assessment on that and how you feel the Police can penalties available; in others (and I commend best respond? Newport particularly for its stance on this) they are Chief Constable Tonge: Yes, I can, and I fully making very good use of the range of sanctions support what you are saying there. In my view, if you available to us. look at the fear of crime, the fear of crime is highest in the elderly, who are at the lowest risk of crime. Q232 Mr Edwards: I have been to see you about The fear of crime is actually lowest in the eighteen to aspects of anti-social behaviour in my constituency, twenty-seven sort of age group and yet they are the vandalism in Clydach, litter, graYti and the debris people out in the pubs and clubs on a Friday and from drinking and under-age drinking in Saturday night who really are at risk of drink-fuelled Monmouth, and I appreciate that you have come aggravated violent types of crime and disorder. In out and seen those issues yourselves. Do you think it the short time I have been in Gwent I have seen it as is getting through to everybody? My own feeling is my duty to try and show what happens to policing. that ASBOs are not that well-known in Monmouth. Policing gets sucked in on every Friday and They might be well-known in Communities First Saturday night, and in some of the valley areas but I am not too sure they are that well-known communities on a Sunday, to deal with the licensing in market towns, the role of community support type of behaviour of people in drink whose oYcers. I met three with Rhodri Morgan recently, behaviour and morals drop to a low. I took ITV who told me they served the patch from the top of Wales out a week last Saturday evening to show the heads of the valleys road to the whole of them what it was like policing Newport on a Friday Abergavenny and down to Usk. Can they and Saturday night when the communities of Newport, who live in the estates on the outskirts of realistically do the job with the public’s support Y when they are serving that sort of patch? the city, would love to see uniformed police o cers. Chief Constable Tonge: The short answer to that is, But where are they? They are sucked in to deal with no. I had an away day yesterday with twenty of my the licensing trade in Newport city centre. It is the senior managers to look at the opportunity we now same in your constituency. If you look at what have to build on the strong foundations that we have happens at throwing out time on a Friday and got and to really have a step change to make us get Saturday evening or many other evenings in ahead of the game with the new National Policing Monmouth or Abergavenny, it is the licensing trade Plan and what I need to do is get a critical mass of that draws our resources in to deal with people who people who are working in neighbourhood teams, have had far too much to drink, who often have had locally known oYcers, galvanising a sense of promotions to attract them to licensed premises. community, getting volunteers involved, getting Some places attract you in with one payment and PCSOs involved and special constabulary, and you can drink all night. I think we have got to look really build a sense of we can make a diVerence in at the principle sometime of the polluter should pay. this community and engage people in the I think we have got to look at the licensing industry’s community. If I were to say to you at the moment we responsibilities for the conduct of their premises. I only have fifty Community Support OYcers to have to say that a lot of good work has been done, spread across the whole of Gwent you will know that particularly in Newport, in engaging the local authority. There is a fantastic CCTV system there, where they have been received they have been V warmly received, but by God there are some Community Wardens, our own sta , a good pub opportunities to make much more of an impact watch and a good licensing scheme. Newport had a there. I have put a bid in for another eighty-four, so reputation about five years ago for being one of the at least we then get one PCSO on every ward, but I most violent towns in the country. Violent crime am being honest with you in saying that myself and nationally last year went up 12%. In Gwent it went all my senior managers agree that is not enough. We down 14%. This year we are down 8% as well. That are going to move from April next year to a is through a very concerted joined-up approach to neighbourhood policing style where we get more tackling anti-social behaviour and the drink related people working in communities and harnessing back problems that we have. If we are to look at the major a sense of community. As I said at the outset, one of issues in any Police Force area I would think the things that struck me coming into Gwent is that substances like alcohol and controlled drugs do there is within the public a strong sense of account for the vast majority of society’s problems community, be it in Monmouth, Bargoed or in today. On the drugs side there is a lot of legislation V Caerphilly. Wherever you are there is a really strong and e ort going into that, but I think we could do V sense of local identity. We should be able to with putting a bit more e ort in in a joined-up way capitalize on that in Gwent in a way that perhaps I to deal with licensing. could not do in Merseyside or Lancashire. Q234 Mr Edwards: Finally, you mentioned CCTV. Q233 Mr Edwards: Thank you. On Monday we We now have CCTV in the other small market spent the day in CardiV and one of the aspects that towns. We did have introduced a system called we examined was the night time economy, the OCTV in Monmouth, open circuit television, which problems of heavy drinking in the large city centres was a cheaper alternative. It was on the advice of one Ev 52 Welsh Affairs Committee: Evidence
3 November 2004 Gwent Police of your predecessors and it was not deemed would be better for everybody. One of our problems acceptable to give good enough evidence by Gwent at the moment is, if we are dealing with the problem Police. What is your assessment of that? (again from Mr Edwards’s constituency) about boy Chief Constable Tonge: I think technology has come racers on the road, which again is something cultural a long way. Technology sometimes is quite and which is new to me, coming to Gwent, they expensive to keep up with, but if I were to give an probably very often do not see fixed penalties being instance from last week, we had an instance of issued and they do not see the motorist appearing in disorder in a pub called The Beech Tree in Ystrad the magistrates’ court. Where occasions allow, if you Mynach which resulted in the death of one of the can confiscate the vehicle and invite the local oVenders there. Caerphilly had invested in a CCTV community to watch that vehicle being crushed it is system which is state of the art. The quality of the quite a cathartic moment for the public to see the camera work on that night that the local authority thing that has been blighting their lives being visibly camera operators were able to monitor will present destroyed in front of their eyes. I think you have got evidence which will convict about fifteen people in to look at reassuring the community that the law graphic horror about what went on that evening. does work because a lot of people get their ideas Everybody on that film will plead guilty. I just hope about justice and law from what they read in the the courts look at the evidence in there and sentence newspapers, but what we get in the newspapers is appropriately. So again, properly used CCTV can be very often the extreme, the sensationalised bit. a good thing for evidence and maybe a reduction of Actually, there is a lot of good justice going on out crime, but I think CCTV is so extensive in the there but the public do not see it, do not get involved country now that the deterrent eVect from it has in it and consequently do not understand it. probably been watered down over time. We have got to deal with the actual behaviour. CCTV can help Q236 Chairman: On ASBOs, we have had evidence detect it after it has happened but I think we have got from some people and there are people who think to do more about looking at the symptoms of the that you are actually creating criminals where there problem. is no criminality as such with ASBOs because you Mr Edwards: Thank you. have a diVerent level of proof; you are actually using the civil basis of proof to convict somebody of Q235 Chairman: Before we leave anti-social something which is actually not in the criminal area. behaviour, there are some problems we have come It is a nuisance and it is causing people distress but across about the lack of definition about what anti- it is not actually a crime as such. Do you have any social behaviour is. Would you ascribe to that being concerns over that? a problem? Chief Constable Tonge: Yes, I do, but I go back to Chief Constable Tonge: Yes. Having studied the point I made earlier, Chairman, that we have got criminology at Cambridge and looked at the to have a proportionate response. An ASBO might Y academic’s approach to defining these things, I am not be su cient in certain circumstances for certain not sure how good defining anti-social behaviour anti-social behaviour if it is at the higher end of the would be. The spectrum is huge. Again, going back criminal league, but people need to be sentenced to the Government’s strategy, Together, in there are appropriately for it before it even gets to an ASBO. issues about the size of hedges. Society today is We have a number of ASBOs now in Gwent which getting much more fractionalised and polarised. If are applied post-conviction. So a person may well you look at the Hunting Debate, my staV will no get sent to prison and then an ASBO is a protection doubt later this year end up speaking to people who to prevent the public having that anti-social might be quite lawfully protesting either for hunting behaviour or conduct continue. or against hunting. Now, one side might call the behaviour of the other side anti-social and we need Q237 Chairman: We call them CRASBOs. a proportionate response to that instance. On the Chief Constable Tonge: Yes, CRASBOs is a name other extreme of anti-social behaviour, murder at for them, but I think that ASBOs for me are at the the top end of the spectrum is anti-social but so are tip of a pyramid really. If you are able to deal with lots of other activities. I think trying to define it things that do not take young people down the would be a mission impossible. We all know the criminal justice route then any criminologist or public will turn to us for assistance and help but expert researching the field will say your long-term expect us to make a professional judgment about the opportunities to right that person’s behaviour or do level of that behaviour and ultimately when it something with them is much improved by going becomes criminal the courts will make that down the non-criminal, intervention route. I did a judgment. I am looking forward with interest to an lot of work as part of the ACPO youth justice side in experiment that I left behind in Merseyside, in which looking at young people and there is some excellent the Government has invested now, looking at a research like Wasted Lives that was written by community justice court to involve the community NACRO which shows that actually if young in sentencing. It was brought over from New York, oVenders end up in custodial institutions then the the Red Hook Court. That will be set up in north prospects for them long-term are not good because Liverpool and if we can involve the community more at the moment the pressure on the Prison Service is in a say about what the standards are in that such that they are nothing more in the main than community and the community understands what secure detainments. If, however, they were they are and sees justice being done, I think that corrective or did some rehabilitation, if we are able Welsh Affairs Committee: Evidence Ev 53
3 November 2004 Gwent Police to do more of that then it might be in the appropriate legislation about getting hold of criminal assets, circumstances a proper sanction. But yes, ASBOs which hopefully will help us long-term in terms of and the rush to ASBOs and the rush to curfews is not maybe helping us fill some of the funding gap issues the best approach in all circumstances. that we have got, and we have also got the National Criminal Intelligence Service based as well at our unit in Bridgend. That allows us to build up a cadre Q238 Mr Caton: Chief Constable, if we can move to of oYcers which can deal with the full panoply of something you touched on in your introductory organised crime that the forces of Wales have got to remarks, and that is combating serious and deal with. I am still a little concerned about the way organised crime, what are the main serious that the Serious and Organised Crime Agency might organised crime issues that you face in Gwent? pan out in future. It is still very early days yet. The Chief Constable Tonge: I do not think they are any Agency has not started working. When they go to V di erent from serious and organised crime issues direct recruitment I will not see the benefits of the V that a ect, say, Merseyside, it is just that the scale of interchange of staV in terms of building those skills V them is somewhat di erent. In Merseyside we spent because people will go into serious and organised £25 million just tackling undercover type operations crime investigation and stay there for their careers. I on serious and organised crime for the drug cartels think the other thing I have got to watch is the and networks. I have to say we do not have that capabilities. If I start to look at quality of life issues capacity in Gwent. Out of my £98 million budget I and try and deal more with the local issues and the spend (direct cost) about £3.5 million per annum on public, I have still got to retain my confidence in V sta who are dedicated to tackling serious and investigating the major jobs because we have all seen organised crime. However, at any one moment in excellent examples where getting the big jobs wrong time I might use a number of other resources in really is undermining the confidence of the public in dealing with major and organised crime. Gwent has its Police Service—the Stephen Lawrence murder, to always punched above its weight (to use that term) name one. That was a murder which was not in terms of supporting the National Crime Squad, investigated in the way it should have been. We have supporting Operation Tarian in some Southern got to have the capacity to have the skills to deal with Welsh forces and in supporting the National these things correctly. I think collaboration between Criminal Intelligence Agency, and that has served us the Welsh forces is the way forward for some things well. There has always been an interchange of that we cannot do at force level or BCU level, but I detectives building up experience and skills that have to say at the moment in terms of tackling allows us to use those skills in-force. If I look at some organised crime, coming from a force like Y of my valley communities particularly, tra cking Merseyside which was very skilled at doing this, I controlled drugs is an issue which blights most of have been impressed by the capacity and capability those towns and villages. If I were to say to you that of the staV in my Force to deal with this. If I were to examination of the numbers of people who go say to you that ten days ago I was sat in one of our through the cells of Newport Police Station shows covert monitoring posts listening to a conversation that somewhere in the region of 80% of the people between an unemployed couple arguing over who go through the cells have had (recently or at whether they should have club class or business class that current time) a drug dependency that shows the tickets to Thailand on their next holiday, I think it volume of people we have to deal with. We have shows you and underlines the fact that we really are strong links with West Midlands but mainly with targeting the right people in our area. Avon and Somerset and Bristol in their operation Atrium in dealing with drugs traYcking. We also have links back to my previous force in Merseyside Q239 Mr Caton: You have made a very strong case in terms of acquiring drugs from markets there. So for the collaborative approach that you have we have got that issue. We also have the problems of undertaken in Operation Tarian, and taking your internet crime where a nineteen-year-old was point about assessing performance can you give us sentenced two weeks ago for using e-bay to gain an idea of what impact so far Operation Tarian has large sums of money for items he was selling on the actually had? internet when in fact he did not have those items. He Chief Constable Tonge: Yes, I can. I do not have any earned a lot of money from that. So we still have the figures with me here in front of me today, but if you internet type of crime. We have got fraud. We have look at the impact, one of the big problems the the whole spectrum, it is just a question of scale, but Government has at the moment (and I have as Chief I have to say that in terms of the capacity of a force Constable) is how do you measure the success or of Gwent’s size we have the expertise, we have the otherwise of your major operations. You can spend skills and with the support of Operation Tarian in a lot of money targeting your Mr Big in your area terms of tasking on a Wales basis I am really buoyed and after a five year undercover operation you may up by the collaborative approach of the Chief convict him and send that person down. That invests Constables of Wales in terms of how we deal with, a lot of time, eVort and energy. Do you look at the not just now but I think in the future, tackling number of seizures that you have got in terms of serious and organised crime and terrorism. We have drugs? Is that a good indicator of whether you are on got to do a lot more collaboratively. We now have top of the problem or not? A lot of problems around Operation Tarian (which was set up like a sometimes in investigating drug crime are that until regional task force really) a regional intelligence cell, you actually overturn the stone you do not realise a regional asset recovery team to use the new the scale of the problem and you do not have a Ev 54 Welsh Affairs Committee: Evidence
3 November 2004 Gwent Police problem until you are prepared to do that. But if you persistent and prolific oVenders. It is an look at the arrests, the seizures, the amount of cash opportunity, if we all work together, to look at recovered, the number of operations that have been things pan-Gwent in the same way as we do it on a carried out by Operation Tarian, those have Welsh basis to look across Wales. improved tremendously. The National Intelligence Model allows us to understand the nature of crime Q241 Mr Caton: Going back to Tarian and now in a force, in a region and nationally. We have got Tarian Plus, which of course includes this wider a lot of work yet to do, I believe, to make sure the approach to tackling drugs, and moving on just from National Intelligence Model really is plugged in enforcement to family support, education and properly because at the moment if you look at the treatment, in Gwent are you involved in all those number of covert sources we have got, if you look at strands? the way we analyse intelligence, we have got to do Chief Constable Tonge: Yes. I lead on the education better in getting things like community intelligence strand. The schools package, which now has been and winning back some of our communities to tell us rolled out across Wales, was trialled and piloted in exactly what is going on. The more of that we do, the Gwent. It was myself and my staV who put together better the picture becomes and the more accurately the bid for funding to extend this to excluded pupils you are able to task and to look at operations and and hard to reach young people, because it seems to deal with them. But if you look at Tarian’s track me from the good work that we do within our record since it started, each year the targets that are schools (which is welcomed not just by the pupils able to be dismantled, the structures that are able to and their families but by the education bodies be dismantled, the amount of seizures we are getting particularly) that schools are very much, in my view, and the number of convictions we are getting, then at the heart of communities. The people in that it is doing very well and we are seeing the knock-on V school are from that community, from that area, and e ect of that now. Street prices for drugs in certain if you look at involving young people in a positive areas of Wales now are going up and in relation to way and also building bridges because very often (if the availability of things like firearms and drugs I could go back to the point we were talking about (which are very often linked) in certain areas they are earlier about police oYcers responding to phone a lot harder to come by than they once were. calls for service) the phone calls from public are to move young people on and very often they might not Q240 Mr Caton: As well as being a multi-force have done anything particularly wrong. So the type approach it is a multi-faceted approach. You have of interaction traditionally some of our oYcers have indicated that you think there is scope for with young people is that they drive in a police car, improvement with the criminal intelligence side of ask them to move (very often with no good reason), things. Are there any other facets that you think are move them on, get back in the police car and go not working as well as they should be? away. So the type of bridges we are able to build with Chief Constable Tonge: Yes. I am pleased to say that young people and the rapport and to get across to in the short time I have been here we have had about them the implications of their activities is so three meetings now of the Chief OYcers in Wales important. So the education strand I lead on has (we call it our WACPO meeting) and we have gone across all Wales now. We have got teachers broadened that out now. We do a lot of work not seconded to each force area in terms of looking at the just within the Police Service but with partners. We education side. We have got academic research have a Chief OYcers’ meeting on an all-Wales basis being done in terms of whether the interventions and where we collaborate now with the Ambulance the package itself are having the right sort of desired Service, the Military, the Fire Service ourselves and eVect on young people and I think it is a major step we are looking at broadening that out to look at forward to include hard to reach and excluded pupils things. We all share diVerent estates across the whole in tackling their issues because they are very often of Wales. Are there opportunities to use that in a the most problematic that we need to deal with. diVerent way? We are all looking to have footprints in our communities. If the Fire Service is looking at Q242 Mr Caton: Is there any sort of tension between decommissioning the building, is there something we that role and your enforcement role? can do collectively there? Are there things we can do Chief Constable Tonge: You could say it is a tension. together on training? For instance, we all deal with You could say it is another tool to deal with the the Health and Safety legislation. Are there not wider issues because there is a continuum here, is things we can do together there? So we are looking there not, and we have got to do all three. It is no use at collaboration on an all-Wales basis and a much just having an enforcement activity without the broader basis, and also within Gwent we have a education; you have got to have the two. I think one Chief OYcers’ meeting and that meeting has all five of the worries is (and this is why I think the move Chief Executives from the local authority, the local towards neighbourhood policing is so important) if health boards are represented, the Fire Service is pupils recognise, “Hang on, we’ve got somebody represented, the Prison Service is represented and who’s working with us closely in schools who’s okay the Criminal Justice Board is represented. That is an but actually they’re not typical of your everyday opportunity to tie together the joined-upness on a police oYcer,” I think you do have a distinction Gwent basis that perhaps has not been there in the being made. What I would like to see is that the past and in the presentation at our next meeting to people who work in schools are part of that look at how we all work together in dealing with neighbourhood team. They work with pupils in Welsh Affairs Committee: Evidence Ev 55
3 November 2004 Gwent Police schools. Those same people out of school hours are important, to visibly do that, but it needs to be in the community and I think building that rapport couched—going back to the tensions we talked is so important. I think also working with the about before when somebody wants you to deal with education authorities is critical because, again from litter and dogs fouling the footpath, which are America, if you involve the head teacher in the important issues locally, you have also go to look at school and look at the school’s use outside school the operational demands. If I have got a murder or hours and actually look at community involvement a serious robbery, a robbery in Usk or wherever it in the schools and at actually dealing with issues might be, I have got to professionally attend to that. in that way—Caerphilly have got some cracking We also survey around twenty-five thousand people examples at the moment where head teachers have within Gwent every year in terms of the service we opened up schools’ out of hours activities—yes, have given them; in other words the twenty-five there has been the odd case of vandalism and graYti, thousand people have had a service oV Gwent Police but if you are then able to deal with the people who and we go back to them and do a postal survey to have been involved in that and get them to re-paint find out whether we have met their expectations, the school and get them involved in repairing the whether they have been satisfied or dissatisfied and damage they take ownership and pride in the fact in what areas have we let them down. I mentioned that they have now painted that wall and woe betide that before. any other young person who touches the wall that they have re-painted. You are building a sense of ownership and I think this is something we need to Q245 Julie Morgan: These are people who have do a lot more of, and I can only do that if I have got actually come to you for help? oYcers who are involved, who build up relationships Chief Constable Tonge: Yes. We also do about with people like head teachers and local people, and twenty-five thousand surveys a year as a general start to demonstrably show a diVerence in that area. residence survey; in other words in that sense you are able to get to, I suppose, the silent majority of our area who have a perception of policing but might not Q243 Mr Caton: Do you think serious and organised necessarily have had any service from us. I think it is crime impact on lower level acquisitive crime in the important to do both. If I look carefully at the Gwent area? people who have received a service from us, not too Chief Constable Tonge: Yes, very much so. Without long ago I was saying to my staV when I first got to the traYckers bringing in the quantities of Class A Gwent that if you look at policing in England and and Class B controlled drugs you would not have the Wales we police by consent; that is why we are low market there with the addicts and I do firmly believe on numbers and high in accountability. If you that with some of the messages that went out about compare the British Police Service with any western cannabis in the minds of some people the word or civilised country, then per head of population we “decriminalisation” came in and it was used by some have got the lowest numbers. That is the way we are of the media, and there still are strong linkages with policed in Great Britain, whereas in France policing people who get involved in what might be terms is not done for the people, it is done to the people. “soft drugs” and who then, because they are mixing There is a fundamental diVerence here. We police by in terms of obtaining soft drugs, progress to the next consent. In order to get that consent we have got to level. There is a clear linkage there in terms of a step ensure we are delivering what the public want. If we change through from softer drugs through to harder look at victims of burglary, violent crime, road substances and a life of crime to feed the habit of traYc accidents and vehicle crime (they are four heroin or cocaine addiction that you are never going categories but you still have other categories as well) to be able to fund from occupation or drawing and look at the satisfaction and confidence, we find money from benefits. our general satisfaction levels are around 80%. Mr Caton: Thank you very much. When I first went to the force I was saying to people that we have this high level of confidence in the Q244 Julie Morgan: Good afternoon. I want to ask public but when people turn to us for help very often you about what the public in Gwent think about you their satisfaction and confidence does not stay the as their Police Force and the services you provide. same; it does not improve, it goes down, because Have you got any information about that that you very often our attitude and the way we relate to collect? people lets us down because people now compare us. Chief Constable Tonge: Yes, first-hand and second- When they ring us the previous phone call might hand. I think it is important that we do both actually have been to “Quote me happy,” or whatever on the because this is visible accountability. That is very phone and if the response they get from the Gwent often not the most statistically reliable bit of police oYcer or support staV member answering accountability, but in the last three weeks I have that phone is not professional then the expectation done about six community forums along with the of the public shifts substantially. So we do a survey Police Authority where you go along, you meet the which looks at that and I am pleased to say that our community and talk about the issues that aVect that confidence and satisfaction levels so far this year community. If you look at attendances at those have been going back up again. I have got some meetings, very often they have gone for a purpose figures here from our surveys. Our overall and very often it is not because they have had a satisfaction level is around 80%. We did a before and positive experience, it is because they have got an after survey and it shows that after service when it issue to raise. I think that public accountability is so came to burglary, when it came to road traYc Ev 56 Welsh Affairs Committee: Evidence
3 November 2004 Gwent Police accidents and when it came to vehicle crime their Q247 Mrs Williams: An automatic referral system, satisfaction and confidence went up to the order of yes? 20% on certain issues. On violent crime we have got Chief Constable Tonge: Yes. some more work to do and that is around the type of service we give a victim after an assault, because very Q248 Julie Morgan: In your document you talk often they are taken oV to a casualty department and about the imbalance between the fear of crime and are dealt with there. We have got to look at how we actual crime and of your having a communication deal with that. That is where I found out before, that strategy to address this. Could you tell us a bit more it is not the fact that we get to a burglary quickly that about that? satisfies a member of the public, it is the way we Chief Constable Tonge: Yes. It struck me very early respond to them when we get there. on. I think it was my second week in Gwent. We had Chairman: Can I just bring Mrs Williams in on this an incident in Cwmbran where a member of the point. public rang to say they had seen a man with a gun enter their particular estate. Within three minutes we had gone down there, arrested the man and Q246 Mrs Williams: Good afternoon, Chief recovered the weapon. What we had not done was let Constable. Could I ask, do you have a victim the community know that had taken place. So, as I support scheme in your area and do you have a close said before, it is so important that when we do a lot working relationship with them? Can I also ask you, of work—very often with every call that comes in we do you have an automatic referral system? do a tremendous amount of work but we do not Chief Constable Tonge: I am pleased to say yes to all inform the public and we cannot use pressure of those questions. We do, and I think it is so work as an excuse on that. We have got to do a lot important. Again, if you look at victims and more with it. The other thing is getting the public to witnesses being at the centre of what a criminal understand what we are doing. That is why I took justice system deals with, it is important that we do the ITV film crew out with me when I went on patrol look after the interests of victims and witnesses. If in Newport to show what licensing does to police you look at the volunteers who work on those oYcers, where their police oYcers are. We have got schemes, the work that they do is so well received to do a lot more in communicating with the public. and so necessary. I hark back to the days when police Do you want me to continue talking, Chairman, oYcers had more time to spend with victims and deal through the bell? with witnesses, pick the witnesses up and take them to court. It is sad to say with the pressure of work we Q249 Chairman: I think we will have to finish there, are not always able to do that, so when anybody is Chief Constable. Thank you very much for coming willing to do that it is quite right and proper that we down. I am sorry that we have had to cut it short but engage with them and our referral systems to them we will see you again in Gwent and continue then. need to be pretty robust so that we can actually Chief Constable Tonge: Thank you. I look forward spread their benefits to more people than we do at to seeing you again. the moment. Chairman: Thank you very much. Welsh Affairs Committee: Evidence Ev 57
Wednesday 24 November 2004
Members present:
Mr Martyn Jones, in the Chair
Mr Martin Caton Mrs Betty Williams
Written evidence from the Home OYce is printed on Page Ev 308
Witnesses: Mr Stephen Rimmer, Director, Policing Policy, Ms Louise Casey, Director, Anti-Social Behaviour and Ms Margaret O’Mara, Director, Crime Reduction, Home OYce, examined.
Q250 Chairman: Welcome to the Committee. As Q252 Chairman: In light of the fact that we have not you know, today we are looking at policing in been able to look at this, can you give us some idea Wales. Would you introduce yourselves? Perhaps of how you are going to retrieve this flexibility and we could start with Margaret O’Mara and work the balance between national and local priorities? along. Say who you are and what you do for the Mr Rimmer: First of all, on the priorities themselves record please. it is worth stressing that the government does not Ms O’Mara: I am Margaret O’Mara and I am the just pluck them out of thin air. There is a detailed Director of Crime Reduction in the Home OYce. consultation process with forces and authorities and Ms Casey: My name is Louise Casey and I am the other stakeholders and also increasingly links into National Director of the Government’s Anti-Social ACPO’s national strategic assessment. I think you Behaviour Unit which is in the Home OYce. have heard a bit about their work in terms of Mr Rimmer: Good Afternoon, I am Stephen identifying through that assessment priorities and Rimmer and I am Director of Policing Policy in the needs that derive from local intelligence systems. So Home OYce, responsible essentially for all police the priorities themselves, and ministers are always issues within the department. very keen to stress this, are not out of the clear blue sky, dumped on local forces and authorities, they are Q251 Chairman: The questions are probably going priorities precisely because, in the government’s to be addressed to you in the first instance, Mr view, they connect to the needs and the concerns of Rimmer. We have just had that published today. local people. I will not dwell in any great detail on You will not be surprised to know that we have not them, but just to give you a flavour, they are focused read it yet, but we do have policy issues. Could you on reducing overall crime, on providing a citizen tell us what the key drivers are of the present focused police service, on improving detection rates, policing policy? which has been a particular performance issue for Mr Rimmer: The national policing plan which has some time, on reducing concerns about crime and come out today and the White Paper which you will anti-social behaviour and on combating serious and have seen on police reform which came out two organised crime. Alongside that, there are some weeks ago form very much the drivers for the national requirements around counter terrorism as development of police service in England and Wales. well, but those are the five priorities. Now, what this The plan is an attempt at identifying the relationship plan says, I think, and certainly ministers intend to between stated national priorities and local delivery say more clearly than in the previous two plans is, through 43 forces and authorities and it has been okay those are the five key priorities and we have an refined in its third year now from being, what many accountability framework to deliver against those observers felt in its first year was a rather top-heavy priorities and to assess your own performance as an and over-prescriptive set of requirements on the individual force and authority against them, but we police service, into one which makes much more much more explicitly build into the planning and explicit the relationship between national standards performance management framework that this plan and local flexibility and local priorities. That is very sets out some capability for forces to develop their much as well the driver behind the White Paper. own local priorities on top of those national As you will be aware, the focus there is on priorities. Indeed, even within the performance neighbourhood policing in particular and I am sure framework, which is set out in the plan, much more you will want to come back on that. The emphasis is explicit scope is given for local priorities. The on the need to focus on the citizen at point of government is very clear that in some parts of the delivery and for the support structures above the country, those priorities will be very diVerent from front-line police service to be geared towards others. Indeed they may vary within forces from one enabling that delivery to be as accessible and BCU to another. Of course there is a question which responsive as possible, to connect up the locally- the plan cannot answer, because it is not that sort of geared policing that this government is keen to see document, which is: what is the capacity that forces develop further, but recognising the complexities have to deliver local priorities over and above the around serious and organised crime and indeed, the national priorities? We recognise that there will counter-terrorism eVort which require resources and continue to be a debate around that with forces and structures at a force level, at a regional level and authorities and that some will feel that they have national level. relatively little room for manoeuvre potentially to Ev 58 Welsh Affairs Committee: Evidence
24 November 2004 Home Office do more than the priorities themselves. There is no crime reduction, the whole reassurance and citizen doubt that if you link those expectations in the plan focus agenda in measurable ways, so that you to the requirements in the White Paper about cannot now in eVect, be in a fully eYcient and neighbourhood policing being above all focused eVective police force, if you are not responding to the on the needs of the public, to be successful needs of your communities as assessed through that at neighbourhood policing clearly requires framework alongside reducing crime. Obviously being locally responsive and this government government wants both elements, but I think there acknowledges that. In a particular context, it relates was a legitimate criticism of earlier regimes that they to Margaret’s responsibilities around crime. A very tended just to focus on the easier to measure crime powerful signal about that is that the crime target is reduction elements and ignored the fact that policing now a much broader one, it is around overall crime, is about relationships with the community. not specified in terms of the previous regime which focused purely on vehicle crime, robbery and Q254 Chairman: And reassurance. burglary. There is an explicit acknowledgement Mr Rimmer: Yes. within the plan that it is for police authorities, particularly, in concert with forces, with government oYces, Crime and Disorder Reduction Partnerships Q255 Chairman: One of the problems that we heard (CDRPs) and others, to work through the best way expressed, not so much by the police, who may be of hitting that target in a way that meets local buttoning their lip about it, was that a lot of priorities as well as national ones. initiatives are coming forward which sometimes can be seen to be contradictory, maybe not in their eVect but in their operation. I wondered whether you had Q253 Chairman: I think you may have partly anything to say about that. answered the question I am going to ask now or Mr Rimmer: I would see that in two ways and there expanding on a criticism which is often made about be other dimensions. Margaret will have views on national policing policy being set basically by the this as well because it impacts on their agenda of cities and urban areas and perhaps not responsibilities. As far as the Home OYce itself taking into account the rural problems, particularly is concerned, there is an increasingly strong those we have in Wales, for example. I wonder if you recognition to be more joined up about its could perhaps suggest what is diVerent in this plan requirements on the police service. I think there was that would allow our kind of police forces to tackle a risk, this is my view, I do not think ministers have rural crime rather than the urban priorities. said this but it is certainly my view, that under the Mr Rimmer: I shall not repeat what I have just said old PSA regime, where some very specific targets but there is an explicit recognition about the need were required by diVerent parts of the Home OYce, properly to reflect local priorities. There is certainly, those diVerent parts of the Home OYce in engaging alongside that, a recognition from Home OYce with the police service tended to say “We’re not ministers that rural areas can be as concerned about interested in what else you’re doing, what other some of the issues around national priorities, not pressures you’ve got, just get on and deliver” least anti-social behaviour as any other part of the whether it was street crime or oVences brought to country, but there are clearly issues which will relate justice or whatever. I think there is a much stronger to particular communities which ministers are quite recognition within the Home OYce now that these clear that local plans need to reflect beyond things have to join up in a coherent way for forces the national requirements. It was obviously a and authorities to be able to deliver them and that we purposeful move to incorporate within this plan for must not send mixed messages. I am sure we still do instance, an acknowledgement that there would be send mixed messages from time to time, but we are work for forces in taking forward the Hunting Act. much more conscious of the need to avoid that, not That clearly is going to aVect some rural forces, no least through the new mechanism we have, so-called doubt in Wales as well as in England, to a significant delivery managers, which are based out there in the degree. What I like to think force authorities find real world, currently only in four cities but the aim helpful about the plan is that although it does not is to expand that over time, precisely to bring back throw everything into the kitchen sink, as it were, in to the Home OYce the realities of diVerent funding terms of saying you have to do a combination of all streams, diVerent initiatives, diVerent requirements these things to be an eYcient and eVective force, by and ensure that they are brought together much flagging up some of the particular issues outside the more coherently. So that is at one level. At the key priorities, what it is really saying to forces and broader government level, there is still a major authorities is that we know that some of these issues, challenge about how government across the peace and indeed some that may not be mentioned in here engages with the police and other key partners. Very at all, are actually in local terms very important deliberately, we have emphasised the importance in because of particular communities, rural and other, this context of the plans for local area agreements and we want to ensure that you respond eVectively which were inspired by ODPM, but the Home OYce to those. Those are not just fine words, because in a is a very enthusiastic partner in that because we sense the performance framework and the reform totally accept that for the police and other crime White Paper puts much, much more centre stage, reduction agencies it can be a very bewildering and I think this is quite significant in way policing landscape. This year’s plan at least starts a process has developed in England and Wales, much more of requiring forces and authorities to link up their centre stage alongside quantifiable data around targets, particularly through government oYces for Welsh Affairs Committee: Evidence Ev 59
24 November 2004 Home Office the regions, with other partnership bodies. In causing all the problems. We have been operating in previous years we did not even start to attempt to a context for the last 12 months which is quite radical make that link and therefore I know some chiefs felt and quite new and getting people to look at how, at they were genuinely pushed in diVerent directions. I a cultural level, you come at this from a scenario do not think ministers would claim that we have got where all of those diVerent people actually think all of that properly synthesised yet in terms of how it about how they tackle this problem, how they tackle all comes together, but we are much more conscious behaviour and then within that I actually think the about it and we are engaging with police forces and growth in the number of ASBOs is incredibly others to make sense of it as far as possible in a much heartening. You guys put these things through more structured and transparent way than we have Parliament so you must hope somebody out there ever done before. actually uses them. Forgive me, I was told not to be Ms Casey: I used to work in the OYce of the Deputy controversial or say anything funny at any point and Prime Minister and then moved 18 months ago to I have already stepped out of order and you are the Home OYce. One of the most significant taking notes. Essentially what we have seen over the developments is actually the stronger and safer the last 12 months is a massive upsurge in the use of communities fund which is, as Stephen outlined, powers, but I think what that reflects really for me is a sort of joint pot between two government a kind of sense that actually out there things can be departments and that is a fairly significant thing. done. There is an example in the Rhondda actually The organisation of that across two Whitehall where nine times out of ten, they have solved the departments of their size is significant. There is a anti-social behaviour problems which come before tremendous amount of commitment, certainly at them as a community safety partnership by actually ministerial and oYcial level, to make sure that the visiting, warning and confronting the families and experience of crime and disorder reduction individuals behaving in a way, so they end up with partnerships (CDRPs) or community safety ASBOs, if necessary, at the end of a line and that partnerships (CSPs) is actually a much more positive is really what I am interested in. What the one which actually all links together. So what you TOGETHER campaign is about is how much action have is a kind of the police reform White Paper and you can take to do this. Of course I am pleased that the police service moving towards citizen-focused the number of anti-social behaviour orders has policing, what you have is the local government side, increased because I genuinely thought that there through things like the comprehensive performance were not enough out there and I have been to too assessment, looking much more at how people many community meetings where they had had respond to safety, respond to those sorts of issues enough, I have met too many members of the public like anti-social behaviour, but also crime reduction whose lives are a total misery and I thought action and then what we now have is a mechanism around needed to be taken to make sure that this behaviour funding which did not exist before, which is the safer was brought under control. However, it is one of communities pot, as I call it, the safer and stronger many tools really and I think it is one of an overall communities fund. There are certainly elements strategy locally which is around the fact that which are moving in the right direction. The job is culturally we should not let the public have to put up for people always to be pushed to be better, but that with this as much as they have done. This has been is quite a significant move. driven very much by the public, MPs and local authority councillors; really that has been what has been pushing this entire campaign. I see that the Q256 Mrs Williams: The anti-social behaviour number of these powers, and I have brought by action plan and the TOGETHER campaign are just favourite report with me which I hope you have seen, over 12 months’ old now, so you will not be actually does reflect the massive upsurge in activity, surprised to hear me asking questions about the anti- which can only be a good thing, because frankly social behaviour action plan and how it has there just was not enough before. developed. Do you think high numbers of anti-social behaviour orders (ASBOs) reflect success or failure of strategy in tackling anti-social behaviour? Q257 Mrs Williams: The Home OYce is of course Ms Casey: We are essentially one year into the working towards an integrated approach to anti- launch of the TOGETHER campaign and anti- social behaviour and that is firmly linked with the social behaviour orders, as the one-year-on civil renewal and regeneration agenda, as we know. document says, and the whole TOGETHER Can you give us more detailed examples of success in campaign are around trying to get people to tackle this area, both in terms of internal co-operation anti-social behaviour and not tolerate it. There is the within the Home OYce, amongst the diVerent units, desire of a housing oYcer to walk away from a rent and inter-departmental strategies across Whitehall arrears case and call it rent arrears, when it is really? actually about somebody behaving anti-socially and Ms Casey: I will deal with regeneration first. I think being a neighbour from hell, to use the jargon, or an this is quite an interesting one and it is very environmental health oYcer just dealing with interesting to me that very recently I was in cleaning up constantly and not actually tackling the Redcar—I know it is not in Wales but it is the one behaviour that is causing the rubbish to be put there which is at the top of my mind—and this particular constantly, or a community safety partnership estate must have had every single regeneration worrying about gating and target hardening rather initiative available to it over however many years, than the behaviour of the people who are actually city challenge, single SRB, now we are in Ev 60 Welsh Affairs Committee: Evidence
24 November 2004 Home Office neighbourhood renewal. I got there on a very wet that magistrates’ courts in particular are more miserable day and the woman who runs the corner eVective in linking in with communities, dare I say shop takes me out into the middle of this particular being accountable to communities in some way, estate where the new build which has just been probably a controversial thing to say, and certainly created is already abandoned and covered in graYti. making sure that when people come before them, There is a row of houses where the landlords are not they follow sentencing guidelines. That is a kind taking any responsibility at all for the property, nor of bottom line really and essentially therefore we indeed the tenants that are in it; they are private have been working with the Department for sector landlords who are just walking away from Constitutional AVairs to establish specialist help their responsibilities. The neighbourhood renewal and specialist ways of making sure that the courts oYce has actually had to board up one of its work more eVectively. windows because somebody smashes it constantly and the people who decide to do graYti do not need Q258 Mrs Williams: Is it too soon for you to be able to use a tag, they do not need to put a symbol up, to give us concrete examples of where for instance they can just write their name because they really do this magistrates’ sentencing issue has improved? not feel anybody is going to tackle them at all, they Ms Casey: It is too soon in terms of that. We are are that confident about it. In the midst of all that I certainly getting feedback from magistrates that feel that a tremendous amount is being done on they are more confident. We have now got the regeneration, but unless we tackle the behaviour of Crown Prosecution Service specialist prosecutors the people there, it will constantly undermine where who are doing the links and an early thing I did was we are at; constantly undermine it. When a school meet the Attorney General. has been improved, improved, improved, all you need is for the front face of the school to have graYti Q259 Mrs Williams: Should it be the magistrates over it and the parents, when they drop their kids oV, themselves who tell you that they are getting more are thinking “Well, what’s all that about? Why isn’t confident? Surely somebody else should be judging that sorted?” Part of the government’s approach is their performance. to try to tackle and come at some of the regeneration Ms Casey: Well they are; the Department for here, and the reason my unit works so closely with V Y Constitutional A airs. That is where our unit works colleagues in the O ce of the Deputy Prime with other government department. It is down to the Minister, is because there is a recognition that some V Y Department for Constitutional A airs to have the of the most deprived areas, some of the most di cult relationship with the magistracy. areas actually need to tackle anti-social behaviour first and foremost. If you look at the neighbourhood renewal areas, and going back to your earlier Q260 Mrs Williams: I am trying to find out whether question to do with the use of powers, you will see you can give us good examples of success in this area. that neighbourhood renewal areas over the last 12 Ms Casey: Last year, or this year, we worked with months are using more powers than other areas, they the Department for Constitutional AVairs to have actually now got teams in place which are being produce, with the Magistrates’ Association, their funded by colleagues in other government sentencing guidelines, because magistrates were not departments. There is a recognition that there are sure what to do on breach of ASBOs. We stimulated lots of good things, that you can build new houses, it, we raised it as an issue, we asked the DCA for help you can have millennium bridges, you can do all of and they then worked with the Magistrates’ these things, but if you do not tackle the behaviour Association and us to some degree. They have now of the minority of people who ruin all of that, then issued those guidelines to magistrates across the you will never make any progress. We are very, very country and we are now seeing, according to DCA, clear that it is not just about protecting investment, more consistency, certainly when people come it is about anti-social behaviour hindering before the courts for breach of ASBOs. regeneration, which is partly why the TOGETHER campaign and the unit were established as a sort of Q261 Mrs Williams: Is there any data available on inter-departmental . . . It is a bit like running a rough that success story from the Department for sleepers unit: part of my job is to worry about what Constitutional AVairs? We should be interested in other government departments are doing and to that, because we have been concerned about the have a view on, say, the Housing Bill and the patchiness, if I can use a word like that to describe it. Housing Act and private sector landlords and to Within Wales is what we are looking at now. It is a take through with the oYcials in ODPM and bit patchy and we should be interested to get some working for ODPM ministers why it is so important data on that. to make sure that local authorities are given powers Ms Casey: Absolutely; we will go away and see what to license them, partly around anti-social behaviour. we have. Government collects endless information So there is that bit. I guess the other part, in terms of and I will see what we have and how relevant it is to joined-up working across government, is kind of re- what you need and will send it on to you. living life only on a macro scale. It is not rough sleeping, it is anti social behaviour which is so huge. Q262 Mrs Williams: That leads me on to my next We do work very closely, for example, the question. You talk about the Department for Department for Constitutional AVairs (DCA) have Constitutional AVairs and the OYce of the Deputy now actually responded to our need to make sure Prime Minister and I should like to ask how you Welsh Affairs Committee: Evidence Ev 61
24 November 2004 Home Office work with the National Assembly for Wales to Q265 Mr Caton: You have stressed how closely you provide an integrated response to anti-social work with the OYce of the Deputy Prime Minister. behaviour in Wales. In Wales most of the services that we are talking Ms Casey: Essentially, the anti-social behaviour unit about are the responsibility of the National and the TOGETHER campaign work across Assembly, so one would have assumed that there England and Wales and actually have a very would be the same sort of liaison with a minister, pragmatic approach. We work through community whose name you do not even know. safety partnerships and crime disorder reduction Ms Casey: I had forgotten; I did not have it at the partnerships everywhere. Everywhere receives the top of my head, but as soon as Margaret said it, I same amount of money, everywhere receives the knew exactly who it was. We work with diVerent same availability of inspirational support, training, government departments. I have concentrated on campaigning and all the rest of it and learning tools the OYce of the Deputy Prime Minister because the to tackle problems. In addition to that three of the question that came in was about regeneration. If you TOGETHER action areas are in Wales, we ran a had asked me about parenting or schools or young specialist academy in March jointly with the then people, I would be talking to you about DfES. I am sorry, I do not want to give the impression that we David Ahern, who was the link between the Y National Assembly and ourselves. Yes, we do. I specifically work only with the O ce of the Deputy would not want to say that we do a huge amount Prime Minister because we do not, we work with diVerent government departments for diVerent more than we would do for anyone else; I do not reasons to try to further the work needed on anti- want to misrepresent it. Of course we work closely social behaviour. with them, of course we have done some things especially for Wales, of course we have three TOGETHER action areas in Wales, but we Q266 Mr Caton: My point is exactly that again, if we essentially work nationally for England and Wales, are talking about education, that that is the trying to work across all community safety responsibility in Wales of the National Assembly. If partnerships and allowing them very much really to you are looking to get this joined-up approach to learn what it is they can do to tackle the problem these important anti-social behaviour issues, surely everywhere. you need the same sort of liaison with the relevant departments down there. Ms Casey: And we have. We have worked very closely with David Ahern and colleagues at oYcial Q263 Mrs Williams: Is it up to you to take the lead Y in that, or would you expect the National Assembly level—I am an o cial. We work incredibly closely for Wales or what was then the government to make and it is about getting the job done and it is up to them in many ways; they represent the community a protest to your department? safety partnerships, they do some of their own thing, Ms Casey: It is two-way really. We do not want to but some of it we would encourage from the publish a report which says nothing happens in TOGETHER campaign such as use of anti-social Wales, or else you would have me, and you quite behaviour orders or injunctions, those sorts of rightly should. Therefore we cannot just sit and things, as well as making sure that they are listening think “Oh well, we’ll let them crack on on their own” to what their communities want and then and hope that they work through the National responding to it. We would be pushing really. Assembly of Wales, just as I would not be happy if the Government OYce in the North East told me to stay out of Newcastle and Gateshead and Q267 Mrs Williams: In paragraph 30, you mention Sunderland and that I could not in any way be the development of a national standard for incident responsible for action in those sorts of areas. It is a recording in relation to anti-social behaviour. kind of two-way street, but, Margaret will contest, However, given the problems of both the definition and measurement of low level crime, is it possible to we do work through government oYces and we do get a meaningful set of national figures on something work through the National Assembly for Wales. In as vague and multi-faceted as anti-social behaviour? a way they need to decide how much they want to do. Ms Casey: Where we have come since the Some of the things they are putting through, some establishment of the anti-social behaviour unit and of the commencement around the anti-social V then the TOGETHER campaign last October is that behaviour Act is di erent in Wales and we have to essentially there is a good working definition of what work with that. They are making some of their own anti-social behaviour is. It is when people feel choices in their own way. alarmed, distress or harassment to another person. In the anti social behaviour unit we have deliberately kept a very wide approach to this. We have said, yes Q264 Mrs Williams: Could you remind the it is about graYti, it is about abandoned cars, it is Committee which minister you would be liaising about litter, it is about fly-posting, fly-tipping, but it with at the Welsh Assembly in order to make sure is also about harassment, intimidation in groups and that nothing falls between two stools? gangs. In many ways we have felt, certainly from Ms Casey: I could not, actually. MPs, but also local authority members, particularly Ms O’Mara: Edwina Hart. community organisations, community leaders and Ms Casey: Yes, we invited Edwina Hart to the thing members of the public, that what they want is action in March. to tackle those problems, rather than getting too Ev 62 Welsh Affairs Committee: Evidence
24 November 2004 Home Office hung up around definition. That would be the sort Ms Casey: The Home OYce PSA target 2 is around of approach that we have taken and even though we public perception of the problem and we are have put a framework together in terms of how we beginning to see that that perception, and colleagues might want to define that and we did the one-year in research in the Home OYce are beginning to help count and there are seven strands in the British crime us with this, is based on experience, though we are survey about perception of anti social behaviour, I not quite able to say that yet. We know, for example, suppose our starting point from the unit is that that last year public perception of anti-social people out there know what it is and actually what behaviour being a significant problem in their area we need to do is make sure that the people who are ran at 21% and that has now dropped to 16%, which there to serve them are able to do that as eVectively means that their perception of the problem is that it as possible. A lot of emphasis in the campaign and is going down. Essentially for me it comes into a kind in the work and the action has been around getting of greater link and why the police reform White those frontline people to see what it is and know how Paper was very much something that I feel we can be to tackle it and, in many ways, tackle it at the earliest quite proud of. Some of that is around better possible opportunity. So when, say, the kids throw community engagement, around people having a stones at a door for the very first time, the ideal greater understanding of what is going on, actually getting information from partnerships, from the scenario would be that that is not a record police and from the local authorities to know what somewhere, that is not a crime report, it does not is happening. Some of that is around things like escalate to that, but actually people feel able to leaflets of anti-social behaviour orders, some of it is knock on the front door and say “Do you know things like leaflet dropping in an area to tell them what your kids are doing? Listen . . .” and to try you are doing a cleanup, some of it is around people and deal with things. That is partly what the in the local papers standing up and saying that they TOGETHER campaign is all about: it is trying to have done something and that it has worked. For get people to deal with things, to confront things. example, Bayside Tenants’ Association in CardiV, Some of our Taking a Stand award winners are the woman there, June, who is one of our Taking a members of the public who have taken a stand and Stand award winners, fought quite hard to get a in many ways they then go on to do things in their dispersal order in her area and then got quite a lot of communities that actually mean you are nowhere coverage in the papers. There is a lot around trying near the criminal justice system; you are actually to connect up with communities, so that they can see managing anti-social behaviour before it gets there. and feel and touch what is going on, particularly on That is very much what we have pushed. an issue like anti-social behaviour, which is Mr Rimmer: On the national standards, you are something they are obsessed with. right to ask to what extent that is going to bring together a consistent understanding amongst police forces and others about “low level incidents” Q269 Mrs Williams: Thank you for that. Is there any including anti-social behaviour. All we can say at the scope for an academic, theory-driven definition of moment, and I think we cover this in the evidence, is anti-social behaviour rather than simply a long list of behaviours? that the initial piloting has actually gone surprisingly Ms Casey: Research colleagues from the Home well from our perspective. We thought that there OYce have produced a sort of framework which would be major variations in understanding and describes four, what they call, sub-sets of anti-social interpretation from the pilot police forces and behaviour. You have misuse of public space, which actually there has been a surprising, so far, degree of would be abandoning cars, things like that. You consistency around application. The government have disregard for community/personal wellbeing, has not given any commitment yet to implement the which is around noise and rowdy behaviour, acts standard definitively. This is a genuine pilot in the directed at individuals or people, which is verbal sense of assessing how it works out on the ground threats, groups making threats and environmental and there are some issues about ensuring that by damage, which is graYti, vandalism and fly-tipping. doing that, we do not simply generate a whole We have done all of that, but, I suppose, I do not bureaucracy around incident recording, which has know, maybe, 18 months into the job, we have done been one of the issues around crime recording, as more on definition. When I started, I found it very you will be aware. To answer your question, at this interesting that what the sort of industry out there stage it has not been a major problem for the forces wanted was for us to go into quite a bureaucratic and certainly Dyfed Powys is one of them. My exercise about actually . . . I felt under pressure to understanding is that there have not been major produce long documents which talked about problems about interpretation as to what falls within definitions and measurements and what they could the standard to date. tick, when they had found it and how they would do it. In a way that did not of cut for me in that a lot of that already exists, definitions are out there and what Q268 Mrs Williams: You mentioned public we needed was to concentrate our energy, perceptions in your previous answer. What exactly particularly in the unit, on getting people to bring are you trying to measure and subsequently the powers onto the statute book that were needed improve? Is it actual numbers of incidents of anti- and wanted. So the anti-social behaviour Act was social behaviour or maybe the public’s perceptions done jointly in many ways with frontline staV and of it? practitioners so they could craft down exactly what Welsh Affairs Committee: Evidence Ev 63
24 November 2004 Home Office was needed and wanted. Secondly we had to make forces are able to communicate that eVectively to sure that work was put in place. That does not mean their communities. We support it absolutely for to say that we had hit a point where . . . I am very those reasons, but we also support it because we clear that working across with colleagues in the think that collaborative way of dealing with serious Home OYce, and I was at the thing this morning and organised crime is absolutely the way forward where we were talking about what a good strategy for forces around the country. would look like, how they would do that, what type of definitions...Again,Idonotwanttomislead Q271 Mr Caton: How do you think operations like you; I genuinely think the right point for us to start Tarian should be funded? with last year was to get the Act right and, more Mr Rimmer: First of all, there is clearly nothing from importantly, to change people’s approach to dealing our perspective to stop individual authorities which with this problem. To have come at it from some hold the budgets for forces from engaging with their long academic research exercise would have taken chiefs and with each other about pooling resources. months and actually I think the public were sick of There are clearly potentially issues around, and this it, MPs were sick of it, local authority members were is still early days, how the Serious Organised Crime sick of it and what they wanted was to see action Agency (SOCA) is going to develop, but we want taken, not lots and lots and lots more bits of paper. there to be some connectivity between what forces A strategy does not mean a great deal to the woman V are doing in tackling serious and organised crime who got the dispersal order in Cardi : the group not and what the national agency does and the being there every night and making her life a misery resourcing issues around that need to be properly means a lot and I suppose that is what our campaign addressed. The White Paper talks, for instance, is all about. about lead forces in tackling some aspects of criminality and potentially some of that lead could Q270 Mr Caton: Can we move on to serious and include taking a particular lead on resourcing. What organised crime. Since we have started this inquiry we are increasingly not keen to do within the Home and talking to the police force in Wales, we have OYce is provide ring-fenced funding for specific heard a lot of very positive comments about types of collaborative working. The drive is much Operation Tarian and Tarian Plus. What does the more and hopefully we shall see further signs of this Home OYce know about that operation? in the funding settlement which will be coming out Mr Rimmer: The Home OYce has been a supporter shortly. We are keen to get as much of the money of the operation since its inception, both in terms of into general grant as possible and to expect that what it is trying to achieve, particularly around authorities, in reacting to their responsibilities with serious drug dealing, but also the principle of cross- budget allocation, develop proper collaborative force collaboration which is a big thing in the White partnerships in taking that resource base forward. Paper and one that we are very keen to see developed There is of course a huge driver in that now with the right across the piece. This seems to us to be a very Gershon agenda as well and we are conscious of a good example of that degree of collaboration, number of areas of activity which are both around which, in that case, is primarily clearly around the outcomes as Tarian is, but also around inputs, Welsh forces; in other contexts it does link up with around procurement, around pulling together some Welsh forces, Avon and Somerset for instance. corporate services between forces for instance, We strongly support the principle of tackling serious where we think frankly we are just at the tip of the and organised crime through a concerted and multi- iceberg, that there are some individual areas where pronged strategy which is enforcement-oriented, but that has happened, but there could be much more also takes into account education, prevention and systematic collaboration on resources. other issues in the way that Tarian does. It is not the job of the Home OYce to assess Tarian Q272 Mr Caton: You mentioned in that answer the operationally in its own context. Our responsibilities word “connectivity” between the new Serious and our interests are primarily around overall Organised Crime Agency and operations like outcomes and clearly operation Tarian should Tarian. Has much thought has been given in the contribute significantly to some, but it is not our job Home OYce to how the relationships will work? to say this operation is good or eVective or not good Mr Rimmer: Yes. I should make clear that my or not eVective because of the following results. That responsibilities are in respect of 43 forces and there is primarily a matter for the forces and authorities is another part of the Home OYce sponsoring the concerned. Our awareness at the moment and the Serious Organised Crime Agency, and in particular, biggest headline impact of Tarian as we understand as you know, there is now already a chairman and it is that so far, as a consequence of the operation, chief executive in post and it is very much the 122 people have been arrested for drug-related responsibility of Sir Stephen Lander and Bill oVences by the operational task force. That has Hughes, and they are already doing this, to consult included the recovery of something like five kilos of and engage with stakeholders around how that Class A drugs, 18,000 ecstasy tablets and the seizure process is going to work. There is within the police of 1.9 million assets. The oVenders who have been service—and I am sure this includes the police forces through the criminal justice process so far have in Wales, it is certainly ACPO’s general position— received a total of 82 years in terms of conviction and a strong desire to ensure that the Serious Organised sentence. It is clearly an operation which has a Crime Agency gets oV on the right footing and really degree of momentum and impact and, hopefully, adds value at the national endeavour level. Equally, Ev 64 Welsh Affairs Committee: Evidence
24 November 2004 Home Office in applying itself to those national responsibilities review has already begun. It has Welsh there is an understandable concern that we do not representation on it, the Welsh local government repeat what some would see as the mistakes with the association are on it and it will be looking at a regional crime squads, when the sense was that some number of issues like the accountability of the activities were targeted by the regional crime squads partnerships, their role, the inspection arrangements and they actually left a bit of a gap between other for them, the sort of point that was coming out in the types of serious and organised crime and what White Paper about the scrutiny of what they do, individual forces had the capability and capacity to holding them accountable and so on. That work has tackle. So there is a strong desire, both within SOCA only just begun. The aim is to bring it to completion and ACPO and other stakeholders to ensure that, in terms of the review by the end of January, so it is although we do not want duplication and we a pretty ambitious timetable and the people working certainly want a clear understanding about relative for me are working very hard on this. We responsibilities, equally what we do not want in particularly want to take account of Welsh views. serious and organised crime is a gap starting to We have a number of workshops across the country; emerge again between how individual forces and we are running one in early December which will be forces collaboratively operate and the sort of top end taking place in CardiV, so we will get Welsh views of the serious and organised crime challenge that particularly in that. I am very conscious that it is SOCA will be inevitably prioritising, The best way of always very easy to be centred here and not taking dealing with that is clearly for continual account of what is going on elsewhere. engagement, both at the strategic level but also at the tactical level, between the new agency and the Q275 Mrs Williams: You mentioned that you police service. propose to have that meeting in CardiV. Would it be a good idea to have one in the South and one in Q273 Mr Caton: I recognise what you have just said the North? about it not being part of your directorate. Does the Ms O’Mara: Frankly it is just a question of how Home OYce think that the Serious Organised Crime much we can manage. There will be four over the Agency should include a preventative as well as an whole of England and Wales, so that is one of the enforcement element in its work? diYculties. Ideally, if we had more time, I am sure we Mr Rimmer: It is predominantly about connecting would like to have done rather more. It is just a up information, intelligence and operational question of getting in views suYciently quickly to be capability. I would not want to stray too much into able to assess them and then to produce a report, a debate around prevention in that context because I which will then obviously need to be considered. am not sure I can give you a particularly meaningful answer. We will give you any further information on Q276 Mrs Williams: We discussed earlier, when Ms prevention activity. The main focus is around Casey was answering questions, the relationship intelligence, information, operational capability, between the Home OYce and the National tackling serious and organised crime and in Assembly for Wales with its 60 members. More particular, and this is something the Home Secretary specifically could I ask how you envisage this will has stressed on a number of occasions and which is work in Wales, bearing in mind that the majority of a big challenge in any new organisation, bringing the membership of the partnerships is devolved to together the existing agencies including police and the Assembly really and not directly to the customs capability and creating an agency where the Westminster government and given that all the whole is more than the sum of the parts; that is a big partners, apart from the police, are accountable to challenge. This is not about simply brigading the National Assembly and not to central existing agencies: it is about an enhanced capability government? at the national level in terms of operational impact Ms O’Mara: Very much, in terms of our links with on the threat to this country from serious and crime and disorder reduction partnerships in organised crime and that is a major challenge in itself England, just as much as community safety and although SOCA will not be fully operational partnerships in Wales, we operate in England until April 2006, gearing up for that challenge and through the government oYces and through the the impact it will make on existing organisations is a Welsh Assembly government in Wales. It is what is big agenda in its own right. happening on the ground that matters. In some ways it works quite well in Wales simply because people Q274 Mrs Williams: I am very conscious of the way are pulled together at a local level in that way. One that the community safety partnerships have of the issues is that at the moment the Home OYce developed in Wales. My questions are perhaps for regional director in Wales heads up the whole of the Ms O’Mara at this stage. In order to increase their community safety unit. We have made various responsiveness to the public, the recent White Paper references to David Ahern and as you may know outlines new accountability measures for David Ahern resigned at the beginning of August community safety partnerships. Can you outline and we are about to advertise for a replacement. The how this will work in fact in practice? intention then is that the Home OYce regional Ms O’Mara: What we are intending to do is to director will be responsible for the regional issues, review the working of crime and disorder reduction the issues that respond to the Home Secretary and partnerships and community safety partnerships in his responsibilities and there will then be a Wales under the Crime and Disorder Act. That community safety director in the Welsh Assembly Welsh Affairs Committee: Evidence Ev 65
24 November 2004 Home Office government who will deal with community safety specifying individual crime types. What we have issues which are the responsibility of the Welsh done is to look across both England and Wales to Assembly government. In a sense the two will be the English regions and to Wales and we have separated, but there will be a very close link between calculated what we call a regional performance them. They will both be seated in the Welsh indicator. It is not a target, but a broad figure. For Assembly government oYce working very closely Wales the figure would be about 17.5%. It will enable together. That is where you will get the real read- us to meet the overall target for the nation as a across between the two. They will each be dealing whole. Then we have asked our directors in the with community safety partnerships in Wales, with government oYces and in the Welsh Assembly responsibilities that they are responsible for, but government to go out and negotiate with each of there will have to be very, very close liaison as in the individual crime and disorder reduction practice happens now. At the moment it is under one partnerships or with the community safety person; in future it will be under two, but working partnerships in Wales what their own figure will be. closely together. We have given some sort of broad indication of the kind of ranges in which we think they ought to be Q277 Mrs Williams: You mentioned that the negotiating. They will go out and they will talk to the gentlemen concerned resigned in August. Can you community safety partnerships in Wales. The tell us the reasons why a successor has not been overall target will be set and within that, there will found? Three months have gone by and one would then be sub-targets, very much local ones, which will expect that you would want to make sure that the be decided on the basis of the audits which each of system was smooth running. If a person disappears the CDRPs and the CSPs are conducting. They are and you do not have a post-holder there, does that finding out what is going to be the real issue in a give problems? locality and then sub-targets will be set for that. Now Ms O’Mara: It runs smoothly in as much as there is this is a rather more formalised process than we have an acting director and that is being taken forward by had before, but it is a much more locally determined somebody who worked as his deputy. In the sense one because it is reflecting what the local priorities that we were trying to change the relationship, are. Once they have got those and we have got those although we have a service level agreement with the targets, those are the targets against which we will be Welsh Assembly government now, we wanted to measuring each of the CSPs and CDRPs. I and a change slightly the way in which we had formalised colleague have quarterly meetings with each of the the two strands, so that work which was being done regional directors and discuss with them how for the Home Secretary was coming up one strand as performance is developing in their particular area it were and work which was being done for Edwina and if there is a problem, what they are doing about Hart in this case on community safety was going in it, what interventions are necessary, what the local another direction. That just means a change and partnership is saying is the problem and so on. these things always sound very easy to do but it just takes time and diVerent job descriptions have to be Q279 Mrs Williams: But in Wales the partners have drawn up and agreed. In my experience, and I was to comply with the policy strategies of the National a personnel director in another government Assembly for Wales, do they not, which often adopts department, you think these things can be done very a more holistic approach maybe to community quickly and I fear they cannot; they do take a while safety and crime reduction than the Home OYce to get sorted out. We are conscious that we do want strategies? What role do you think the Assembly will to get on with it and do it. If I think of other have in setting targets for the CSPs in Wales? government oYces, where we also have Home OYce Ms O’Mara: They will not have a role in setting regional directors, you would be saddened I think at crime reduction targets, because obviously that is the time it sometimes takes to get people replaced, not a devolved matter. even though you would imagine that could be done pretty quickly. Q280 Mrs Williams: Do you think it should be? Ms O’Mara: You are drawing me into diYcult Q278 Mrs Williams: May I turn to performance? territory. I do not think the Home Secretary would The White Paper also outlines a new intensive say it should be. In terms of taking an holistic view, performance regime for the community safety you are absolutely right. We would say that the partnerships. At what level should national and holistic view can be taken actually at partnership local targets for CSPs in Wales be set? UK level. It is quite interesting in certain areas, one area government level, National Assembly level or local in particular, if I might turn to what we are doing. level? We have a Home OYce initiative to deal with prolific Ms O’Mara: May I explain how we have gone about and other priority oVenders; this is picking out the this? Stephen referred earlier on to our overall crime individuals whom the localities think are a real reduction target for England and Wales combined, problem in those areas. If you can target those which is a reduction, of 15% and more in the high individuals, you can reduce crime very quickly and crime areas. That would be the top 40 high crime those are the people who are a real nuisance and real areas, of which there is only one in Wales, which concern to the localities. Now, very interestingly, we would be CardiV. As Stephen also explained, in put out guidance on that; when we put out guidance future the target is very broad and it is just literally to community safety partnerships in Wales our referring to a reduction in crime overall, rather than Welsh colleague said that we had to be very careful Ev 66 Welsh Affairs Committee: Evidence
24 November 2004 Home Office about this because there are certain responsibilities Q284 Mrs Williams: That is why I am asking the in Wales, there are various strands to this, not just question. catching and convicting people, but prevention. Ms O’Mara: I am sure you have heard it from the What are we doing to prevent and deter? A lot of police too. I do not think it is a problem. We have those responsibilities are not responsibilities of been very careful to try to take everybody with us Whitehall, they are responsibilities of the National because we understood that the police were Assembly. We have to work very closely in that sort concerned about this. One of the points to which of way to make sure that we are not cutting across Stephen was referring earlier was the involvement of what is being done. In practice in many of these areas the police authorities in this process. We have we are all working in the same direction; it is not that encouraged every regional director, and that will be we are going in the wrong direction. Just as with true of the director in Wales too, when they are Louise’s issues on anti-social behaviour; a lot of that having their negotiating meetings with the local is National Assembly responsibility, but actually partnerships, to invite to that meeting the local what we are trying to achieve is the same thing as I borough commander—in practice I think the police believe the National Assembly want to achieve. would always have been there in the past anyway, but we are making that quite explicit—and also, as Q281 Mrs Williams: Magistrates however are local, you will be aware, a member of the police authority what if magistrates do not comply with your wishes? sits on the partnerships and we have said that the Ms O’Mara: I am not responsible fortunately for the police authority also ought to be represented at magistrates, because that is the DCA. those meeting because they are in a position to align what is happening with the police target and with the target for the partnership. We are also conscious Q282 Mrs Williams: Yes, but in terms of the that you can be setting plenty of targets at borough, partnership approach, is it not? What I asked earlier, BCU level, but those have to add up sensibly in about inter-departmental and your links? terms of the force level targets. So the regional Ms Casey: We ought to be clear that magistrates at directors also ensure that they hold meetings and the end of the day are independent; they are part of invite to those meeting the Chief Constable, the the judiciary. How they act in court and reach their chair of the Police Authority and the chair of the decisions is entirely a matter for them. Having said CDRPs, or in Wales the community safety that, I think the sort of joining up of the Department partnerships, for each force area and they can have a V for Constitutional A airs and the Crown discussion as to whether there is any conflict between Prosecution Service around certain issues where, for them. In practice, we do not think there is going to example—I am going slightly beyond anti-social be a great deal of conflict, because they are all behaviour—the community safety partnership working in the same direction. The issue, as I decides to run a three-month campaign to tackle . . . understand it, certainly in terms of our police I was talking to Manchester yesterday and they are performance assessment framework and so on, is going to run a three-month campaign from that the targets which are being set there are targets February next year and they are already involving about improving police performance in relation to the senior court clerk locally as well as the Crown what is happening to the average and we are looking Prosecution Service prosecutor, as well as the at a slightly diVerent thing in terms of the community safety partnership, normal people and community partnerships’ targets. We just have to the community. So everybody knows when the time make sure that people understand that we are comes what is going to happen. A court will open V which will process those particular cases during the talking about slightly di erent things. Certainly, having had that discussion, and we have had it also course of that three-month campaign. We cannot Y eVect what they do in court. The DCA can set in the Home O ce’s crime reduction delivery board, guidelines, they can set training schemes, they can with the police, with ACPO there, with work with the court service to empower a magistrate representatives of a large number of others, we have Y to know what they are doing and all that sort of stuV, had representative from government o ces there but at the end of the day the court decisions they too, we think we have come to an agreement now make, as you are aware, are their own really. and people are much more relaxed about what we Mr Rimmer: Plus of course the four local criminal are doing and not seeing that we are cutting across, justice boards and I think you are getting evidence because it is in nobody’s interest to do that. from some of them later on. Certainly from the Y Home O ce perspective, those boards have Q285 Mrs Williams: Please correct me if I am wrong, developed significantly in developing much stronger but our understanding is that currently the police links between the key agencies and the sentencing standards unit, the HMIC and other central policing community. units have relatively little contact with those responsible for partnership performance in the Q283 Mrs Williams: Do you agree that the Home OYce. performance targets will be diVerent from the police Ms O’Mara: No; I am delighted to say you are performance targets? If you agree, will this help or absolutely wrong. We have been working extremely hinder the eVective role of the police in partnerships? closely. I have to admit that I do not think this has Ms O’Mara: This is a subject on which we have had always been the case, so you are right in that sense, a lot of representations. but we are working very closely together now. Welsh Affairs Committee: Evidence Ev 67
24 November 2004 Home Office
Q286 Mrs Williams: I was going on to ask you, if kind of approach that we have there is joined up and that was the right assumption, how closely not in silos. You are absolutely right, I was joking in integrated the monitoring of partnership and police a sense, that it was like that before and I really, really performance will be. do believe that we are improving. Mr Rimmer: It goes back to what we were saying earlier, that it would be a legitimate criticism of the Q287 Mr Caton: Going back to the Home OYce way in which the Home OYce dealt in silos, as I director for Wales, I think from what you described called them earlier, between crime and police that the recognition of the existence of the National performance in the past that we did tend not to get Assembly and its relationship with the partners has this alignment around police performance and led you in the appointment of the new director to partnership performance. I would say that for have a diVerent structure and a recognition of the between nine months and a year, but certainly need for a diVerent sort of relationship. Having said particularly in the last six months or so, we have that, is the practical role of the Home OYce director integrated both in terms of the people with shared for Wales diVerent from that of the directors in responsibilities for this, the data sets that we are England? looking at, the overall strategy by which we are Ms O’Mara: There will be diVerences in future seeking to get alignment and what matters about all because the Home OYce director in future—and I that is that it gets played out to forces and am talking about the future because it has not partnerships in a coherent fashion. Frankly, having happened yet—will, for instance, have no been in the role that I have been in for some time responsibility for drugs whereas at the moment the now, if we were not getting this demonstrably more Home OYce director in Wales does have a joined up, we would seriously have heard a lot more responsibility for drugs but working up a diVerent about it from both the policing and the partnership chain. So in future there will be a diVerence. At the end. It does not take much to get either of them moment, they cover much the same sort of area, wound up about what they see as Home OYce mixed though even in England Home OYce directors cover messages and incoherence on this and, because of diVerent things: some cover community cohesion, the processes that Margaret has described, we are on some do not, that is probably the biggest one that is a much sounder footing than we have ever been diVerent within England, let alone what happens in before. Wales. Ms O’Mara: May I just add that one of the ways in which we have had a lot of help from our colleagues Q288 Mr Caton: I guess we think of the Home OYce on the policing side is in terms of what you actually director as the Home OYce’s person in Wales. do when something is going wrong because it is not Ms O’Mara: He is not just that. very straightforward. We can monitor this and we can see figures going in the wrong direction and then Q289 Mr Caton: Is there any sense that he or she is wonder what on earth it is that we should be doing. Wales’s person in the Home OYce? Do they have We can talk to the staV in government oYces, in any input into policing policy or crime policy? Welsh Assembly government and ask what they are Ms O’Mara: They all have input. It is quite doing about it, people can draw up plans, but where interesting in terms of how we are trying to work do you go from there? We have had a lot of help increasingly closely with the government oYces, from our colleagues in the police standards unit who again across England and Wales, that each of them have been thinking about the sort of intervention now has a kind of lead responsibility. We have one that they are working with individual police forces Home OYce regional director who is the lead and seeing how they can build on that in terms of responsibly on violent crime for instance, somebody dealing with partnerships, of whom of course the else on prolific oVenders. In terms of Welsh issues, it police are a key partner and how they can adopt the is the Home OYce director in Wales who is right kind of approach and the right kind of help to responsible for that. It is feeding back to us, saying people when there are real problems out there. We “Look, actually we’re doing this better in Wales” have had real help in that way. Equally, we have which is often the case “Why don’t you think about been working very closely with our colleagues in the doing it this way” or, equally, “You must modify police standards unit in terms of all our eVorts to your policy because it is not actually hitting the right deal with alcohol-related violence. You will have spot in Wales”. I hope that we are open to that and seen lots of talk about the alcohol misuse increasingly so, but in a sense we are reliant on that enforcement campaign no doubt and that again has message coming back to us, as well as messages we been taken forward with them. We are working very are trying to put out. closely with them in terms of what is happening on violent crime where CardiV will be one of the areas Q290 Chairman: Taking it a bit further. From the where we are really trying to target action starting Home OYce point of view, have you seen any this month. We have a number of areas, BCU, changes in the context and the way that policing is CDRP and community safety partnership areas delivered in Wales since the Assembly came into where they have particular problems with violent being? crime. It is not their fault, often they are tackling it Mr Rimmer: We are very conscious that the four very well, but what more can we do from the Home chiefs have a developing set of relationships, both OYce to help there, working very closely with individually with their forces and their authorities colleagues on the policing side to make sure that the and collectively as a group; this splendid acronym Ev 68 Welsh Affairs Committee: Evidence
24 November 2004 Home Office
“WACPO”, which I like. We are actually, partly for government departments that we have. I think we reasons already covered by Margaret in terms of can do more and we can do it in a more systematic getting that degree of engagement with a significant way. part of the national landscape, very supportive of that approach. We do not see any diYculties around Q292 Chairman: Ms Casey or Ms O’Mara, do you that, as long as the parameters from the Home have anything to add to that in your dealings with Secretary’s perspective, in terms of his the Assembly or your department’s dealings? responsibilities for policing in the context of the full Ms O’Mara: We would deal with the community Welsh force, is understood. I was trying to think in safety unit, of whom only the director is actually the context of the earlier question around the impact employed by the Home OYce; the rest of the staV are of directors. This is true of chief constables in a employed by the Welsh Assembly, though we do number of contexts, but when you have chiefs of the refund the Welsh Assembly for the people who are calibre of the four in Wales, who are dealing at a very dealing with crime reduction, which is only part of sophisticated level, if I may say so, with a wide range the community safety unit. We do deal with of stakeholder networks, then you take very individuals in that unit, right the way down, but on seriously what they say; it actually gives them an the other hand it would not be true for me to say that added authority about the relationship between we had contact beyond that unit very directly, policy development and the broader social and because if we are dealing with people there, then that political landscape. Now that can play out in quite is our conduit and our route in. significant terms, both because of their particular Ms Casey: Very similar. It is the David Ahern post responsibilities as Welsh chiefs, but also, as you will essentially that we have worked through; David and be aware, they will each have significant national now Jo Jordan his deputy acting up would be the responsibilities as well. Rota policing led by the chief point of contact and in that way my unit’s relationship with that post is fairly similar to the constable of North Wales, a major project in terms Y of violent and sex oVenders information base led by government o ce regions really, so they have the the chief constable of Dyfed Powys, those diYcult same ups and downs. national responsibilities that ACPO leads have in my view are enhanced by having people who are very Q293 Chairman: In the concordat between the accustomed to having to deal with a wide multiple Home OYce and the National Assembly, it says that range of stakeholders. It is a diVerent context, but it in practice in the delivery of police services and in is a bit like the fact that we obviously have strong tackling crime and anti-social behaviour, the Y relationships with chief oYcers in the Met. They responsibilities of the Assembly and Home O ce again have to manage across a very wide range of impinge on each other, which is a fairly obvious but stakeholders in a political as well as a professional not meaningless sentence. How is it managed in setting and that gives a level of maturity in a broad practice? This is one of the things that we are specifically looking at, that the Home AVairs sense of that term to the advice that we get. I think Committee would not necessarily look at if they the Assembly relationship with the chiefs adds to wanted to look at policing in Wales. This is a crucial that as well and it goes to the heart of the whole diVerence between Wales and England in this thrust of the reform approach, which is how to regard. How does that work in practice? ensure that all these elements, local regional and Ms O’Mara: I think it is very much channelled national, work together coherently rather than are through that particular post. The obvious kind of seen as somehow competing or in conflict with issue to think of is drugs, which is a Welsh Assembly each other. responsibility. We all know what huge impact drugs policy and action on drugs can have on crime, which is why indeed it was brought out from the Cabinet Q291 Chairman: May I move on to your relations, as OYce and put into the Home OYce, because of that Home OYce oYcials, with the Welsh Assembly synergy between them. That is the kind of area where oYcials? Do you have any, first of all, and how have we would be looking across and although we are not they developed and what are they? Can you define responsible for drugs policy, nonetheless, what is the relationship? happening on drugs will have a big impact on crime Mr Rimmer: From my perspective, we have some. and that is the kind of issue that we would be talking I would not claim they were particularly well about. That is just one example, but it is probably developed and they could become more structured. the most obvious one to choose. At the moment they tend to be a bit responsive to particular issues, the most spectacular of which in Q294 Mrs Williams: Your written evidence implied recent times was quite a diYcult set of issues around that the Home OYce sees no scope for the future the funding settlement two years ago, which actually devolution of policing functions from the Home ended up being resolved very eVectively at OYce to the National Assembly for Wales. Do you ministerial level between John Denham, the minister think that the recent transfer of responsibility for the as he then was, and Edwina Hart. Part of that fire service in Wales to the National Assembly makes process was a much more developed set of working the transfer of function in that area of policing relationships between colleagues in my directorate inevitable? Do you indeed see any benefit in the and oYcials from the Assembly. I would not claim devolution of specific functions, for instance in the that they are as well developed as some other central area of partnership? Welsh Affairs Committee: Evidence Ev 69
24 November 2004 Home Office
Mr Rimmer: I think the answer to the fire service which are not being delivered eVectively through the question from our minister’s perspective is no. It current structure. That is not a rhetorical question, does not add or detract from the basic position that they have not reached a view on the answer to that the written evidence sets out. Of course there are and what will happen once the inspectorate reports arguments for collaboration across the emergency is that their initial work, subject to ministerial services that that might suggest, but in terms of core agreement, will then go out for consultation. In the partnerships, from the Home OYce perspective, context of Wales, the Assembly, Welsh chiefs and particularly around the criminal justice system, others will have just as much opportunity to input on without repeating what is in the evidence, that is the that debate as any other part of the policing Home Secretary’s position: the coherence of the landscape. To be honest, beyond that I should stress criminal justice system in particular lends itself to that ministers, and it links into what I said earlier, retaining the current approach. Of course I would are actually pragmatically much more interested at say this, would I not? I do not think our ministers see the moment in collaboration than a huge this in any proprietorial or theoretical sense at all. restructuring exercise. In the context of things They are pragmatic, they want the communities in like Tarian, where there is clearly a regional Wales to get the same consistently good quality collaborative eVort, they are very supportive. They police service as in any other part of the country and are at this stage yet to be persuaded that the gains in they have shown frankly, relatively, as great a lack delivering those sorts of outcomes are better of priority in looking at the structure of policing for delivered through major structural change. instance per se, as in this particular issue. By that I mean that they do not have a preference for getting into issues where they do not necessarily see Q296 Mrs Williams: I want to ask about funding. the outcome improvements being the main Does the increased focus on community issues and consequence but potentially more debate, more services imply additional financial responsibility for the National Assembly for Wales? If so, does the bureaucratisation. It is a bit like Louise’s earlier Y response in terms of definitions. I think they just do Home O ce capital spend in Wales or the funding not want to get sucked into a debate which will formula require review? When we took evidence militate against those deliverables. from the South Wales police they expressed Ms O’Mara: I think that actually we have found that concerns about the inadequacy of short-term it works in practice. In many ways, the community funding in addressing policing needs, for example, safety partnerships in Wales are more fortunate in a short term funding cycles for PCSOs or ring-fenced sense than the CDRPs in England because the drugs budgets. How can this problem be addressed? work has already been taken within the Mr Rimmer: As I said earlier, in principle we are very partnerships. Instead of having separate drug action keen to get as many reductions in ring-fenced grants teams, you may know that in England what we are and short-term grants as possible and to get not only trying to do is to get CDRPs and DATs to join up. into a bigger general grant pot for each authority That has not been a problem with community safety and force, but also we are very interested in the partnerships, because they have all been in the same proposals from ODPM—and again it will be very thing in the first place; one of the things you might interesting to get the views as the consultation moves say we have learned from the Welsh. The fact that forward on this with the Assembly—about three- these are being done diVerently has not been a year settlements. This is clearly predicated in problem at local level. response to lots of authorities and forces and others saying that this year-on-year short-termism is unhelpful. There is a particular issue around Q295 Mrs Williams: May I ask you a question about community support oYcers because that is a major the structure? What are your views on force new innovation in policing and the commitments amalgamation and changes to the structure and that ministers have made on that are substantial and governance for the police in Wales? What for real and are already clearly making an impact instance are the benefits—there may be no benefits— including in the Welsh forces. Indeed today again— of reducing the number of police forces in England lots going on today—ministers are announcing a and Wales? further round of allocations for CSOs including in Mr Rimmer: The White Paper sets out a sort of all four Welsh forces. Now it would be fair to say, timescale for considering questions around the implied in your question, that actually the sort of structure of policing and that is absolutely an issue infrastructure underpinning this sort of onrush of where, in ministers’ minds, the analysis is in terms of funding for CSOs has not been fully developed and Wales is the same as in England. The critical path we are genuinely concerned that forces and indeed there is that in January, Her Majesty’s Inspectorate CSOs themselves as well as the communities that of Constabulary will have made an initial analysis of they serve are still operating with a degree of the issues that they believe need to be fully analysed uncertainty about their longer-term future and addressed in determining, as they put it, what investment. Having said that, following the level of policing you need above BCU level to meet spending review the government has been very clear requirements above BCU level. The reason I put it in in its commitment not only to increase the numbers those terms is that this is not about redrawing a map of CSOs over the next three years by 20,000, but to of England and Wales in policing terms for the sake have as a total pot, the existing 4,000 to 5,000 CSOs of it; ministers are not interested in that. What they on top of that. So there is a degree of continuity now are interested in is whether there are capability issues developing. What we have got to do, having moved Ev 70 Welsh Affairs Committee: Evidence
24 November 2004 Home Office beyond the one-year, next-year regime around CSO Chairman: Well, thank you very much indeed. We funding, is then to build up a training and career are going to have to finish now I am afraid. I hope development structure for people who clearly, as far you will not mind if we send you a few questions in as this government is concerned, potentially have a written form just to tidy up one or two things that we long-term future as individuals, as well as in terms of have not got round to, but what we have done has that role, for the communities which they serve. been very useful. Thank you very much indeed. Welsh Affairs Committee: Evidence Ev 71
Tuesday 30 November 2004 [Ruthin Castle Hotel, Ruthin]
Members present:
Mr Martyn Jones, in the Chair
Mr Martin Caton Mrs Betty Williams Mr Huw Edwards
Written evidence from the Police Authorities of Wales is printed on Page Ev 378
Witness: Mr Malcolm King, Chairman of the North Wales Police Authority, examined.
Q297 Chairman: Welcome to our inquiry into performance are consistent across the country and policing in Wales, North Wales specifically, that the method of recording crime is more although I believe you are speaking on behalf of the consistent as well. You will be aware that there is a Police Authorities of Wales. If you could introduce new crime recording standard: the Police Standards yourself to the Committee for the record, please. Unit has been brought into operation—that was Mr King: First of all, I am very pleased to be here. three years ago or so, I think—and all of that, Thank you very much for your invitation. My name together with a more focused role for Her Majesty’s is Malcolm King and I am the chairman of the North Inspectorate, has meant a greater ability of police Wales Police Authority. I am also, I understand, forces to be able to measure their performance answering questions on behalf of the Police against themselves and against each other and Authorities of Wales, although I would like to say at against, of course, standards which are set down by this point that clearly my knowledge of North Parliament in a much more focused way with the Wales, as you would expect, is rather greater than it National Policing Plan and so on. That whole area is of other police forces and police authorities in of police authority business and police force Wales so I will obviously give more illustrations to business has been immensely sharpened over the last my answers with regard to North Wales rather than few years. The other key role of police authorities is other places. to act as a bridge between the public and the police force. One of our key roles has been to consult with Q298 Chairman: As an ex-member of the police communities, to find out what sort of policing they authority I know a little bit of what you do. It has want and try to reflect that as much as is possible probably changed since I was a member. Perhaps within the local policing plans, so the North Wales you could outline the present role of North Wales Police Authority has a policing plan which responds Police Authority specifically and also the Police to local needs as well as to priorities set down by the Authorities of Wales. National Policing Plan. Those are the key functions Mr King: I think you are right in saying that the of the North Wales Police Authority and all police police authorities’ roles have changed considerably authorities. since you were a member. They have changed hugely since I first became a member about eight years ago Q299 Chairman: If we could come on to the Police or so. It hardly seems as though a few months go by Authorities of Wales, in paragraph 2.3 of your without more duties or expectations being placed submission you say that one of its functions is to upon police authorities. It is entirely at the wish of “maintain a broad Welsh prospectus on policing police authorities to have their role widened and matters.” Does that mean that you have a coherent expanded, but it certainly means that the changes in Welsh agenda diVering from that in England as a duties are considerable over a period of time. The collection of police authorities in Wales? main duties really are to have an oversight of the Mr King: Yes, I think we have. That diVerence operation of the police force. It is done in a number largely stems from the existence of the Welsh of ways. We appoint and review the performance of Assembly Government. As you know, policing is chief constables—and of course, in extreme cases, not and cannot be simply divorced from the context that would lead in eVect to dismissing chief in which policing goes on. Therefore our constables, so we hire and fire the senior oYcers and relationships with other deliverers of public service that still extends to the whole ACPO team. We also as well as other factors, how the economy is doing set the budget, which is a major function, and we and so on, are critical factors in the wider picture of also have oversight of the budget during the year— community safety. A lot of those public functions so it is not just a one-oV process. We also keep an eye obviously now are carried out by the Welsh on the performance of police authorities. That is Assembly, and therefore we have a need to make another hugely expanded role of police authorities sure that the police authority and police force over the last few years, particularly with a greater policies are dovetailed successfully with theirs. capability for doing that, largely through the eVort Particularly noteworthy is the fact that we have the Government have put into making sure that the regular meetings with the minister responsible for mechanisms for reviewing and monitoring community safety in Wales, Mrs Edwina Hart, and Ev 72 Welsh Affairs Committee: Evidence
30 November 2004 The Police Authority of Wales also, to a lesser extent, with Sue Essex, now that the Q303 Mr Edwards: Do you think the public are finance responsibilities are with her. It is particularly aware of what the police authority does and is? important for us to develop that relationship. I must Mr King: We did a survey which seemed to indicate say that from a position which was not well- that something like 25% of people in North Wales developed, it has become one which is extremely knew of the police authority and thought we did a fruitful, both in terms of creating a good reasonably good job. I was quite amazed by that understanding of what police authorities are trying result: I imagined that probably our own families to achieve and also in terms of attracting particular had heard of us and one or two others. But I am streams of funding into community safety and into sceptical, I have to say, that when you ask most the police forces themselves, with some noteworthy people about the police authority they think you are examples which I have mentioned in our evidence. talking about the police force. I think police authorities in general have an extremely low profile and very few people would understand what our role Q300 Mr Edwards: Good morning. In your evidence is. We have had a number of debates about whether you state that “a tension exists between responding or not we should be very specifically trying to raise to nationally prescribed priorities and responding to our profile. Generally speaking, that takes local needs.” The new National Policing Plan resources, and the use of any resources as a police 2005–08 claims to redress this balance and provide a authority is in direct competition with applying more flexible framework incorporating local targets. those resources to local policing. There is a conflict Do you feel the new National Policing Plan in how much we should raise our profile so that adequately addresses your concerns? people are aware of us. Mr King: I think it goes quite a bit further than the previous plan, in that the language used more Q304 Mr Edwards: Do you hold the police forces recognises the balance that needs to be struck accountable in the way that we hold chief constables between setting national targets and being able to accountable through a select committee system? Do make sure there is enough room for local flexibility. you have rigorous scrutiny? I think the change is largely in the tone, and it is a Mr King: Absolutely. Yes. We are increasingly matter of opinion whether that balance is ever becoming expert in knowing the areas that we need struck. In my own personal view, it strikes it quite to examine closely—particularly in terms of well. I do not know if I am in a majority of chairs in performance. If I measure, for instance, North either England or Wales to feel that, but I think it Wales Police Authority’s eVectiveness in terms of strikes it fairly well. holding the police force to account compared to my experience in local government and observing it in Q301 Mr Edwards: Is there anything that you would other public bodies, I would place us pretty high up like to see in it that is not there at the moment? thescaleofeVectiveness of holding public bodies Mr King: No, I do not think there is. It addresses the to account. sorts of concerns that we as police authorities identify from our consultations with the public. The Q305 Mrs Williams: On the point you made that issue is—and it is one we are looking at in our people were consulted, when we talk to the public Policing Plan Committee with the North Wales they tell us, “Yes, the Government are saying they Police Authority—how much we would dovetail our are providing more money to provide more police local priorities into the national ones. For instance, oYcers but we don’t seem to see them.” I am a local priority is addressing antisocial behaviour— thinking of policing in urban areas and rural areas it is quite easily the biggest local priority—and that and these are the complaints we have. They are also is of course one of the national priorities. telling us that it seems that HQ is sucking in the additional funding that is being made available. Maybe they are doing excellent work within HQ, in Q302 Mr Edwards: Could I ask you now about specialised units, shall we say, but the public do not accountability. Is the current structure of see oYcers out there on the beat. What would you accountability and oversight of police services in say to that? V Wales e ective? Mr King: I think that reflects the story not just across Mr King: Yes, I think it is eVective. Within that, North Wales and Wales but across England and there obviously has to be scope for becoming more Wales. In terms of how frontline policing is eVective still, and that is obviously the purpose of the measured, North Wales police have a higher new White Paper and so on. If I judge the percentage of people on frontline policing duties eVectiveness within our own police authority of the than almost any other police force in England and accountability and oversight arrangements of the Wales. That is a measurement that is verified police force, compared to when I first joined they through Her Majesty’s Inspectorate. However, you bear no recognition whatsoever. I often say to could say that as much as you like to the general people that every year that I am a member, the public and it is fairly meaningless. They see what increase in the degree of eVectiveness we achieve they see and they feel what they feel and there is no from one year to the next is considerable. If the same doubt that there is a huge appetite and expectation course extends over the next few years, I would to be able to see police oYcers in their own street. expect us to be that much more eVective in the Unfortunately, the expectations to get to scenes of following years. crime quickly, to provide a rapid response to public Welsh Affairs Committee: Evidence Ev 73
30 November 2004 The Police Authority of Wales concerns and so on, means that that is nowhere near of Wales and police authorities have in fact as possible as we would want. I have to say that since supported the forces in Wales in tackling antisocial the introduction of community beat managers in behaviour and in reassuring the public. North Wales I much more frequently meet people Mr King: First of all, all police authorities in Wales who are eager to tell me that they have seen their will be picking up from their regular consultation local police oYcer walking around and that they meetings with the public that tackling antisocial have been to places where they are. I was at a behaviour is the number one objective of meeting some weeks ago when someone said, “If communities across Wales. To that end, they have they walk down the street when you are at work, you encouraged police forces to come up with responses are not going to see whether they are walking down to that public concern, and, as a result, the sort of the street or not.” One of the issues is to make sure resources that are now going into tackling antisocial that police oYcers are visible when there are people behaviour from all police forces in Wales is about, so that that reassurance factor is multiplied considerably more than it was. I think policing in rather than lessened by the fact that people are not Britain has very much been led in the past by a there to see them. feeling that, whatever the public say, we probably know better what they actually need. That position has changed quite considerably over the last few Q306 Mrs Williams: You would not agree with the years. That is mostly exemplified by the change in public’s perception that it does appear to them that emphasis towards antisocial behaviour—which is HQ is sucking in the bulk of the additional resources still going on, I have to say, that switch of that the Government is making available to police resourcing, that switch of focus—which will also be forces. helped by reaching an agreement about the Mr King: No, I would not. Those figures do not definition of antisocial behaviour, so that it can then show in what we measure. But that is not the same be measured. At the moment that does not exist. In as disagreeing with people’s perceptions, I suppose. terms of examples of how police authorities in Wales People’s perceptions are more subjective than that have increased the emphasis on antisocial and I would not expect people to look at the figures behaviour: first of all, through its local policing as to where people are actually based. plans it has put it as a high priority; through its funding of local police initiatives it has also made Q307 Mr Edwards: Could I ask you a couple more sure it that is tackled (for instance, here in North questions on accountability. First, do you think Wales we have raised additional funding through there should be more scrutiny by the Assembly of council tax and also through additional funding that policing in Wales? Secondly, what do you think we have had through the Crime-Fighting Fund about having locally elected police authorities? through the Government); and also through giving Mr King: I would welcome the Welsh Assembly extra payments to the community beat managers to Government being more involved in the scrutiny of recognise their particular role. We have also policing in Wales. They provide an enormously encouraged the police force to make sure there is a important partnership function. They are also stability policy, for instance, so that all CBMs in registered as a crime and disorder partner, so they North Wales sign up for three years—because one of are a statutory partner to Crime and Disorder the very common things we hear at all public Partnerships. What was your second question? meetings is, “As soon as we get to know our police oYcer, they have been moved somewhere else.” That, again, has been an enormously important Q308 Mr Edwards: Do you think we should have recognition that police authorities have made, to locally elected police authorities? which police forces have responded. Through our Mr King: No, I do not—and I am, I think, in a discussions with the minister in the Welsh Assembly majority. The vast majority of police authorities feel Government, we have also attracted funding to that would not be helpful. I think the public Communities First areas across Wales, which is probably have suYcient means of electing people at additional funding from the Welsh Assembly, and the moment and I do not think the evidence is there also for Schools’ OYcers (police oYcers in schools), to say that that would provide as good a direct link again funded by the Welsh Assembly. So we have with the public. If you think of the sort of size of been looking for additional finance to fund local electorate that you would need to keep the same size schemes to address antisocial behaviour. We have of police authority—and I think 17 at the moment is also in North Wales, as you know, done a big fairly manageable—you would have a huge initiative, which has been enormously successful, in electorate, and whether you would establish a direct the pilot areas we have been working on across accountability through that I doubt very much. North Wales, with some very large reductions in crime and antisocial behaviour. Q309 Mrs Williams: I would like to talk about tackling antisocial behaviour. Paragraph 3.6 states Q310 Mrs Williams: Would you say the fight against that the Police Authorities of Wales has been antisocial behaviour has been won in Wales? “very alive to the need both to tackle antisocial Mr King: I think the tide has turned, yes. I think we behaviour . . . and to provide reassurance to the are beginning to win it. I think there is an awfully public.” Could you provide some examples to us this long way to go and I will be in a better position to morning of how, in practice, the Police Authorities answer that in a couple of years time. Ev 74 Welsh Affairs Committee: Evidence
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Q311 Mr Caton: You said that we need a definition Q314 Mrs Williams: What else do you hope to gain of antisocial behaviour to help us measure from the current Government review on community performance. Are you thinking of a list of behaviour safety partnerships? You have mentioned one. that would count as antisocial, or are you thinking Mr King: Clarity of purpose is probably the biggest of something more academic and all-embracing? issue I have mentioned the things that I think we Mr King: It is fraught with diYculties because there probably can bring to the table. Certainly, is a degree of severity around antisocial behaviour. connecting up the local policing plans –which in When is shouting antisocial behaviour? At two eVect are the community safety partnerships plans, o’clock in the morning, screaming at somebody’s with the whole police authority plan—has been on house is antisocial behaviour. How would you the cards for some time, but I think I would expect measure the level of shouting and at diVerent times there to be a clear expectation laid down that that of the day and at diVerent distances away and so on. should happen. So there are going to be significant diVerences of view as to what is antisocial behaviour. Kids playing in the street, kicking a ball around, can be extremely Q315 Mr Caton: Moving on to performance of the annoying if you are an old person and particularly if Welsh police forces. In paragraph 4.5 of your it is getting late. Youths hanging around, for submission you state: “The Association of Police instance, can seem very threatening to people, but Authorities believes that there is evidence to suggest often young people do not recognise that a dozen of that a performance culture is beginning to be them larking around, spilling across the pavement, is embedded in the police service, and PAW would any more than them just having fun. There are huge support this view.” Could you give us examples of diYculties in reaching a definition of what antisocial how this is happening? behaviour is, which is why they have not reached it Mr King: As I mentioned earlier, the tools to do that yet. I think it is going to be essential to do that job are now very much in place. There is a National because it is clear that there is a huge variation in Crime Recording Standard. There is a Police definition, both with the public and within the police Standards’ Unit, which produces comparable forces, and that makes a diVerence as to how we performance data across a number of domains (as deploy resources. The Home OYce have said that they call them). That gives us all a chance of these sorts of unspecified incidents can absorb up to weighing up performance compared to other forces, 70% of police time, and that is in an unmeasured compared to other Basic Command Units (BCUs), way. So it is an enormously important issue but is so that you have a more local measurement of how fraught with diYculties. you are doing within forces rather than just a pan- force view. Most police forces have developed a much better capability of measuring that Q312 Mrs Williams: How do the PAW and NWPA performance in real time. We think we are leading work with community safety partnerships? the way in North Wales in terms of our investment in Mr King: How does the North Wales Police new technology—particularly Record Management Authority work with community safety System (RMS), which is coming into place in North partnerships? Wales as we speak, which I think will put us ahead of all police forces in England and Wales. Whereas Q313 Mrs Williams: Yes. two or three years ago we would have reports of Mr King: We have members of all the community what happened in the last quarter, we now have safety partnerships. We have done for some years— monthly reports, and we can have those on a weekly more eVective in some than others—but it has only basis so that we know within days exactly what is been for less than a year that we have actually been happening anywhere in the force. Clearly, it is even a statutory partner of those partnerships. I think it more important that local police commanders know is true to say that we are still finding our role within exactly what is happening in their own patches the partnerships. One of the things I look forward to immediately after it has happened, so that they can in the review is the creation, I suppose, of more deploy resources more eVectively to where they are clarity of purpose in our membership. I think it is most needed. Together with targets set down both true to say that police authority membership was nationally and locally, that has driven performance very much a last-minute addition to the legislation and improved performance hugely, so that here in and I do not think there has really been a clear role North Wales performance figures have risen, in delineated for police authorities. I think the main some cases quite spectacularly. East Division, for things we bring to bear are our experience of instance, with which I am particularly familiar, is connecting with the public. Here in North Wales, for compared with about 12 other Basic Command instance, we have up to 30 public consultation Units of similar type and, against the perception meetings a year, which is rather more than other which was shown in the national press a couple of public bodies in North Wales have—more years ago, we now have the highest burglary frequently than once a fortnight, spread across the detection rate; the biggest reduction in burglaries; year—and that gives us a deep experience of how to and, in every other type of measuring crime, try to find out what people want across North Wales. including the “all crime” figures, the best figures in I think that is something that we need to bring to that family of BCU—apart from vehicle crime, bear on partnerships because they have tended to be which is the fourth highest. So we win the league in more removed, I think, from connecting with the the East Division in every major way that it is public and what they want. measured, except for one. That is mirrored across Welsh Affairs Committee: Evidence Ev 75
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North Wales in terms of increases in performance, diVerent types across forces, how diYcult that then and that is being driven by performance culture, becomes to measure the extent to which they are which is intense and widespread. attaining those against each other.
Q316 Mr Caton: That really makes the point that Q319 Mr Caton: Are there any steps that could quite North Wales is driving ahead, leaving others behind. easily in the near future be brought in—and it would This performance culture has not uniformly come to be wrong to say “to redress the balance” but to all the Welsh police forces, is that right? ensure that that local emphasis is in there? Mr King: That is right. That is bound to be the case. Mr King: With the Police Performance Assessment It has not uniformly come to every Basic Command Framework? Unit in North Wales; it has not uniformly come to every inspectorate area; it has not uniformly come to Q320 Mr Caton: Yes. every police oYcer. I think you would expect that Mr King: I think I would wait for the outcome of the there would always be some variation. I imagine that work that is going on. There is a clear recognition there are a number of police forces or parts of police throughout the police service that that does need to forces in Wales that are as good or better than in be factored in, that it is pointless placing any places in North Wales. I would not claim that North importance on local policing priorities without being Wales beats everywhere else in Wales uniformly. able to measure them, but, like the measurement of antisocial behaviour, it is taking a while to thrash Q317 Mr Caton: Does the Police Authorities of out exactly how that is going to be done in a Wales, as a joint body, have a role in spreading best sensible way. practice? Your example of modern technology in North Wales perhaps has a lesson for other Q321 Mr Caton: Going back to your submission, authorities. Would the authorities be pressing in that you do seem to have a concern. You talk about the direction? importance of a national performance framework Mr King: Yes, we are. Interestingly, I spoke to the but then you say that it is important that it “should chairman of the South Wales Police Authority a not inhibit the capacity of authorities and forces to couple of months ago about how spectacularly provide policing services that are tailored to the successful our new computer system was proving, diverse needs of their local communities.” It seems a and a few weeks later—and I do not know if this was very important point. I wonder if you can see how connected—the Chief Constable of South Wales this balance can best be achieved in practice. came up to view our system and was hugely Mr King: I suppose it would be possible to argue that impressed. I do not know if the two of them spoke, we achieve a relatively good balance at the moment. it could simply have been a coincidence, but, yes, we I think the fear is, as has been shown throughout at Police Authorities of Wales do that, both formally history, that larger bodies and more central bodies through our agenda and through presentations on will tend to feel they ought to have more control. police operations around Wales. Operation Tarian is There is always a struggle between devolved a very good example of the way in which a South management, devolved powers and those at the Wales’ initiative has spread throughout Wales, centre, and I suppose those who are at the outer which the police authorities of Wales have reaches are always going to be anxious that those at encouraged. There are other examples like that, the centre are not going to do what they normally do, where issues of performance and operation and which is take power unto themselves. policy have been spread around Wales. A good Mr Caton: Thank you very much. example is that Dyfed-Powys is ahead of all of us in terms of setting up a control centre, a call centre, Q322 Mr Edwards: Could I bring you back to which will include the ambulance service, and I think devolution now. You say that you believe the it is now certain that the fire service will be in with Assembly should have more powers in respect of them. I think that is very much the way that anyone policing in Wales. Could you tell us what you think thinking ahead would expect us to go and Dyfed- the advantages of this would be? Powys will get there before anyone else. Mr King: Mostly in terms of making sure the key public agendas in Wales are linked in eVectively. For Q318 Mr Caton: In paragraph 4.7 of your instance, the role of health in drug dependency is submission you state very strongly that the Policing absolutely vital: if the health part of it falls down, Performance Assessment Framework should then we are struggling with a revolving-door “reflect performance against local policing priorities syndrome with drug addicts. Given how much crime as well as national performance measures.” To what is generated through the abuse of drugs, that is extent does the Policing Performance Assessment enormously important. Getting a good picture of Framework currently reflect performance against what is happening through alcohol misuse, for those local policing priorities? instance, again is a hugely important issue, which Mr King: That is still work in progress. That domain police forces cannot do alone: there needs to be other has not been finalised as to how those local priorities agencies in there who are going to be equally will be measured vis-a`-vis other forces. The Police eVective at dealing with the eVects of that. Performance Assessment Framework is essentially a comparison with other forces, and of course you can Q323 Mr Edwards: Do you see any diYculties in recognise, if there are local performance measures of devolving some of those areas to the Assembly? Ev 76 Welsh Affairs Committee: Evidence
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Mr King: Devolving . . . headquarters and the forensic capabilities which we now have at St Asaph, but PFI 2, as we call it, the Q324 Mr Edwards: The areas you talk about and second phase of the capital programme for police any others. buildings in North Wales, although it has been Mr King: The areas I talked about are already agreed in the Home OYce has not been agreed here largely devolved to the Assembly. It is a question in the Welsh Assembly. really of how we make sure the priorities we have within the police service are fully linked in with those Q328 Mr Edwards: There are proposals to establish of the other public services. public-private partnership for the forensic services. Where does most of your forensic work go in North Q325 Mr Edwards: Do you think the Assembly Wales policing? should fund the police in Wales? Mr King: I am not sure. I think most of the forensic Mr King: They do, of course, already. About one- work now, given that we have considerable forensic third of it comes through the grant which comes capability in North Wales, is actually done here. from the Assembly. Because the larger grant comes from the Home OYce, both within England and in Wales, it always surprises me how little both the Q329 Mr Edwards: Is that done privately or through OYce of the Deputy Prime Minister and the Welsh the forensic science service? V Assembly Government want for their money, the Mr King: We have a suitable number of forensic sta sort of oversight that they seem to me to neglect. If here. I know we use laboratories in England. I were to give a couple of hundred million pounds to something, I would want to have a good old look at Q330 Mrs Williams: There is one in Lancashire, is how it was being spent. I do not think in England or there not? Wales there is enough attention given to that; I think Mr King: That is right, in the north-west. there is an assumption, because the Home OYce is the primary department, that that is suYcient. I think there is evidence that the community safety Q331 Mrs Williams: Is it Chorley? agenda has not been joined up suYciently, both in Mr King: Yes. But I would have to research that a England or Wales. For instance, the provision of bit further. neighbourhood wardens and the development of Y community support o cers was not an example of Q332 Chairman: Could I expand on a question Mr joined-up government; it was an example of not very Edwards asked about the considerable confusion. joined up government, I would have said. I would In your written statement you talked about welcome both departments being more involved in “considerable confusion in practice in both CardiV policing. and Westminster” and I wonder if you could give us any concrete examples of that. We have not really Q326 Mr Edwards: Is this an example of what you come across that yet. have called “considerable confusion in practice”— Mr King: The key one for us in North Wales has in the delivery of police services—between been the issue of PFI credits. That has held us up for Westminster and CardiV? some time and we have been lobbying both the Mr King: Considerable confusion? I think there has Welsh Assembly Government and the Home OYce not been an encouragement for either the ODPM or hard to try to make sure that is ironed out. We had the Welsh Assembly to be involved in the more a similar struggle with our first PFI scheme. That detailed policies of policing. took a long time to clear—which would not have been the case in England. There are a number of Q327 Mr Edwards: In paragraph 5.4 of your occasions when police forces feel that they are evidence you note several examples of Welsh issues disadvantaged against England in terms of the way being overlooked by Westminster departments in in which grants are approved and so on. It is very considering policing policy and other examples of diYcult to bottom those out because I have no doubt poor communication (for example, the Code of there will be police forces in the north-east of Conduct for Authority members, and notice of England and other places which feel exactly the same meetings). What is the practical impact of this on the thing, that they are disadvantaged. The same thing work of police authorities and forces and the is true in the education sphere. I regularly hear eVective delivery of police services in Wales? teachers and teachers’ unions complaining that there Mr King: Two or three of the examples I have given are many more initiatives in England than there are have not exactly been earth-shattering, and I do not in Wales, and the Welsh Assembly Government will think we feel they get in the way of our business on say that they put more money into basic funding for a daily basis. However, another example I gave was education rather than top-slicing much oV for on the PFI credits, which in North Wales are diVerent competitive grant schemes. The same is substantial, for which we have not yet received true of the police service. I am not sure we are approval from the Welsh Assembly Government. capable of proving whether or not those outcomes They have not put money aside in the way that they really are empirically measurable. However, I think have in England for the development PFI schemes. there is no doubt that those feelings exist. There is a So we have had our first PFI scheme, which has been feeling at various levels amongst oYcials that the very successful in delivering the division police service in Wales is already to some extent Welsh Affairs Committee: Evidence Ev 77
30 November 2004 The Police Authority of Wales devolved and a confusion over whether or not some CardiV to ensure the needs of Wales are addressed of the responsibilities are already with the Welsh and suYcient funding is made available. What Assembly Government. exactly needs to be clarified at this point? Mr King: I have mentioned the issue about the PFI: Q333 Mrs Williams: I would like to turn to funding, that is a major issue in Wales and it is not at all clear. V Mr King. You express concern in paragraph 5.11 Adi erent emphasis is put in Wales on PFI than it that as a result of complexities to the funding system, is in England. We have been building the things that bids invited from Westminster Departments for we want to be in North Wales— specific grants may not always be available to Welsh forces and authorities. Could you explain to us this Q338 Mrs Williams: How could this be achieved? morning in a little more detail why this is the case. Mr King: By a closer dialogue between the Treasury Mr King: I think I have probably just answered that in England—would it be the Treasury or the OYce in my answer to the previous question. I have just of the Deputy Prime Minister?—and the Welsh referred to the PFI scheme, for instance, and there Assembly Government. are a number of instances where for police forces in Wales—but I have also heard the same thing said amongst chairs of police authorities in England— Q339 Mrs Williams: Does the increased focus on the competition for various grants has not worked community issues and services imply additional out in their favour. Without doing a pretty broad financial responsibility for the National Assembly study of the whole subject, I suppose those feelings for Wales? If that is the case, does the Home OYce have to be left as perceptions rather than something capital spend in Wales or the funding formula which can be empirically measured. require review, in your view? Mr King: I do not think I am suYciently Q334 Mr Caton: In your evidence to the Richard knowledgeable to be able to say whether or not the Commission you did not talk about feelings of whole funding position needs to be reviewed. things “not being bottomed out” but said that there Certainly this is one example of it being was evidence that some bids, invited from unsatisfactory at the moment and a clear Westminster departments for tackling crime and disadvantage to Wales. disorder, are not always available to the Welsh forces and the police authorities. Are you saying Q340 Mr Caton: Looking at the structure of the now that that evidence does not exist? police service, what are your views on force Mr King: We raised that matter with the Assembly amalgamation and changes to the structure and Government minister Mrs Hart and I do recall some governance for the police in Wales? research going into that—and this is two or three Mr King: I am aware of an argument that there years ago now—and, from memory, that was could be some advantages for Gwent and South inconclusive. I think there was some evidence that Wales amalgamating. I think it is clear from the some grants did not seem to find their way to Wales debate that has gone on over the last few months, as easily as they did with other parts of England, but following the publication of the Government’s I think, when examined, it was hard to be absolutely Green Paper that mooted the possibly of force conclusive about that. I think it is true to say that amalgamations, that the evidence to suggest that some evidence exists. I have not personally policing is better in big forces is simply not there. Y questioned the o cials concerned and looked in There is no clear evidence to suggest that policing is depth at each area that those answers have been more eVectively done in small police forces or more given and say whether I would be personally eVectively done in larger police forces. There are convinced by the answers. examples of larger police forces not being very eVective and there are examples of larger ones being Q335 Mr Caton: This is the sort of thing that this very eVective. And the same thing is true of smaller inquiry has been set up to try to investigate. Can you police forces. There is simply no clear evidence to point us in the direction where we might be able to suggest one way or the other. I think there is clear get hold of evidence ourselves? evidence that the larger the unit of public Mr King: Not immediately, but I can certainly go administration, the harder it is for people locally to back to those discussions that we held a couple of feel connected with it. That is the level that we need years or so ago and some very specific examples to be concerned about: if police forces and police given of specific funding schemes where it was felt authorities represent too large an area, the public Welsh forces did not get a fair look. will not feel as though they can engage eVectively with it or hold it to account. I have to say I am not Q336 Mr Caton: We would be very grateful. an expert on policing and police governance in the Mr King: I can certainly supply that information South of Wales but I would be concerned that there to you. would be a lessening of connectivity, if you like, to what is essentially a vital public service. Q337 Mrs Williams: In paragraph 5.12—and you have touched upon this as well, but perhaps I might Q341 Mr Caton: It seems—and forgive me if I am ask a question on it—you note the need for clarity in misunderstanding you—that the case is not made for the division of power between Westminster and reducing the number of police forces in England and Ev 78 Welsh Affairs Committee: Evidence
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Wales, let alone just Wales, and, until that evidence actively encourage natural Welsh speakers to join is there, the local arguments mean we should stick the police force. We have recruitment campaigns broadly with the structures we have got. around that. They are unfortunately not yet as Mr King: Absolutely. Certainly so far as the Police successful as we would like and we are aiming to Authorities of Wales are concerned, we do not develop that further. We have a huge amount of believe there is an argument for amalgamation of encouragement given to learning the Welsh police forces, certainly not an amalgamation into language, in particular from the Chief Constable one police force in Wales. I think there would be and more lately the Deputy Chief Constable in bitter opposition to that. Certainly, so far as North learning the Welsh language: the Chief Constable Wales Police Authority is concerned, we would be passed his GCSE and then A-level and I think that adamantly opposed to any amalgamation of police has been an enormously important example for forces that involved North Wales’ police force. I other police oYcers. I know that has been think there would be no more than a handful of enormously well received that within the Welsh- people in North Wales who would see it as desirable speaking communities. There is a culture which is to have a police force for all of Wales. Goodness quite palpable throughout the force of a desire to knows where that handful of people would be, but I produce a fully bilingual service. do not recall meeting anyone that seemed likely to me to advocate that as an idea. I think it would be Q343 Mrs Williams: There was some disquiet a an exceptionally bad idea to suggest that, and there couple of weeks ago, I heard members of the is absolutely no evidence of which I am aware that authority being interviewed in a radio news bulletin, that would produce a better police service. about the fact that bilingual applicants seem to have been rejected and there was gong to be an inquiry. Is that ongoing? Q342 Chairman: I think there has been some Mr King: I am not sure about that particular discussion about bilingual policy in North Wales incident. If there were any evidence that people were Police Authority. Can you tell me what you in the rejected wrongly, because of an issue to do with the authority are doing in terms of making North Wales Welsh language, that would be looked at in a very a wholly bilingual police service? poor light within the service. There is no doubt that Mr King: Both the police authority and the police there is very clear and firm leadership from the top force put a very high priority on making sure that the of the police force and from the police authority to public can receive a fully bilingual service and that value Welsh-speaking recruits. We are very, very there is respect given to the Welsh language and anxious to increase our recruitment of Welsh- Welsh culture. We do that through a variety of speaking police oYcers. diVerent means. We have a Welsh language policy in Chairman: That is all the questions we have. Thank both the police authority and police force. We you very much.
Written evidence from North Wales Criminal Justice Board is printed on Page Ev 350
Witness: Ms Carol Moore, Chair, North Wales Criminal Justice Board, Chief OYcer, North Wales Probation Area, examined.
Q344 Chairman: Welcome before the Committee. If brought to justice. We were specifically targeting I could start oV by asking you to introduce yourself drug oVences and oVences of assault. We were also for the sake of the record. focusing on persistent oVenders, and we defined Mrs Moore: Carol Moore, chief oYcer for North persistent oVenders by a national definition: Wales Probation Area and currently chair of the “individuals who had committed and been convicted North Wales Criminal Justice Board. of six or more oVences in the previous 12 months.” Later in the year, the Government asked boards to Q345 Chairman: As I understand it, the CJB is (a) to focus on improving confidence. The North Wales improve the delivery of justice and (b) to secure Board has performed well across all the targets public confidence in the criminal justice system. for narrowing the justice gap. There are some Could you provide some examples of how the North variations. We also set ourselves a very high target Wales Criminal Justice Board is attempting to do on improving public confidence. When we started as that and say whether you are achieving it. a board, the national average for public confidence Ms Moore: When Criminal Justice Boards were set was 41% and we set ourselves a target of 50%. We up in April 2003, the Home OYce and Government did not achieve that during the year, but we know established target areas for boards around what we from the information that is available to us that we call “narrowing the justice gap”. This includes have had an improving target over the last three targets and expectations that local boards will work quarters and I am confident that is going to together to bring an increased number of oVences to continue. justice (that is, oVences that result in either a caution being taken into consideration or prosecution) and to target specific types of oVending. In our first year, Q346 Chairman: You just mentioned targets. Are all we were working to increase the number of oVences the nationally set targets appropriate for Wales? Welsh Affairs Committee: Evidence Ev 79
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Ms Moore: The target areas are nationally set but relationship with the group. For example, we there is some discretion for the local board as to provide copies of minutes of board meetings to what the specific targets are. It is appropriate to members of the group and we have timescales as to focus on oVences brought to justice because this has when we will make those available and also a direct bearing on public perception about the commitments when we want to consult on areas of eVectiveness of the criminal justice system. One of development. The consultative group itself meets the ironies for us in North Wales is that we perform two to three times a year. The numbers of those who very well on increasing the number of oVences we attend does vary but it is a cross-section of bring to justice but that is not always reflected in stakeholders—if you will excuse the jargon— public perception in terms of the confidence figures including local authority members, including elected we get. On targets around improving the members, local authority chief executives and V e ectiveness of courts: nationally the average on community safety lead practitioners. We also V e ectiveness for magistrates’ courts is set by a target usually have attendance by representatives of the V of 25% of ine ective trials, and the target for North Magistrates’ Association, defence solicitors and the Wales—which we set ourselves—is for 15% of trials V Bar, Victim Support and North Wales Race being ine ective (that is, trials that do not take place Equality Network. So there is quite a broad spread on the day either because the defendant does not of individuals who are either connected with turn up or the witness does not turn up and that case criminal justice system or community safety has to be adjourned). In year 1 we knew that we were partnerships or who represent groups which have a performing considerably better than the national direct interest in the workings of the system. We baseline average, we set ourselves a very ambitious target, and it has been a diYcult target for us to complement the approach we take through the achieve; hence, you will see in our annual report that consultative group by the links that we have tried to it looks as if we are failing to meet that target, despite establish with community safety partners. In a Y the fact that we are one of the better performing separate role, I chair a chief o cer forum in North areas in the country and despite the fact that we are Wales for community safety and we always make out-performing the majority of those areas. sure there is a standing item on the Criminal Justice Chairman: Thank you. I would like to commend you Board on the quarterly meetings of that forum, so on your choice of photographs in your report! that we can make sure we are bringing issues that are Mrs Williams: Of our photogenic Chairman! of common concern and providing regular feedback Chairman: And our photogenic Mrs Williams! about the work of the board through that particular forum. Q347 Mrs Williams: On partners and consultation, the North Wales Criminal Justice Board has established a consultative group, has it not? Q350 Mrs Williams: Clearly, from your answer you Ms Moore: That is right. are enthusiastic about all this, and for a successful partnership or group to work it does require enthusiasm. Can you tell us a little bit more about Q348 Mrs Williams: And it has a wide membership. the dynamics of the relationships; for instance, Ms Moore: Yes. which partners have good relationships and which are the most proactive and enthusiastic in their Q349 Mrs Williams: How does the group work with support of the CJB? the board? Have you established formal procedures Ms Moore: I think the groups and individuals that or is it an informal relationship? we find give priority to engaging with us are through Ms Moore: Consultation goes beyond the actual the community safety leads—and I think it is consultative group as well. The arrangements for relevant that we have a community safety consultative groups were described in the practitioner here today with interest in the criminal documentation from the centre when Criminal justice system and proceedings. Victim Support has Justice Boards were set up. The intention was to been a consistent support and partner with the provide a continuing vehicle, which would include organisations that were previously involved in the board. The board does have a number of sub-groups Area Criminal Justice Strategy Committees which and working groups. One of those is a group that pre-dated Criminal Justice Boards, primarily focuses on race and diversity issues, so in addition to organisations and individuals who were directly attendance at the consultative meetings for the involved in the criminal justice system itself. The board, we invite North Wales Race Equality structure and framework for our consultative Network to attend an internal sub-working group committee is based on a national model that looking at race and diversity issues on behalf of the was proposed to boards with quite a strong board. That is a forum that pre-dated the board recommendation that that was the model we formally coming into being, and in fact that group adopted; hence, the chairing arrangements for our were responsible for the arrangements for a very local consultative committee/group was the previous successful conference we had on hate crime in chairman of the Area Criminal Justice Strategy February last year. We also involve members of the Committee, the local senior resident judge. We have consultative group—again, very active members, formal protocol and terms of reference and who act as a planning group in advising the board on agreement with the consultative committee that sets focus and issues that they would wish us to put on out the basis by which the board will manage its our annual conference agenda, so they very much Ev 80 Welsh Affairs Committee: Evidence
30 November 2004 North Wales Criminal Justice Board drive the agenda for our annual conference Wales. That includes issues around domestic abuse, and contribute actively to the planning and antisocial behaviour—both of which have not been arrangements for that event. specific focus areas in our current plan, but which we are looking at next year. Again, I feel fairly confident Q351 Mrs Williams: Could you perhaps give us that we have that flexibility to customise the some specific examples of successful co-operation templates we are working with to focusing on local between the group and the board itself. Have you priority areas and issues. come across any tension or diYculties that have arisen? Q353 Mrs Williams: I would like to turn now to Ms Moore: Thediscussionwehadatourlast infrastructure and funding and ask you how the consultative group meeting in early October was Criminal Justice Board is funded. What is the time how we can further develop the consultation scale or cycle of current funding? arrangements. It is a polite forum, supportive, Ms Moore: There has been a bit of a journey around and perhaps it could be more challenging. One of funding and I do not quite know where we are going theissuesthatwehaveisthatthereisabroad to be next year, but I am pretty confident. When we spectrum of business with which the board is started, the only additional funding that boards had involved and I personally wonder whether the was for the appointment of performance oYcers that consultative group structure we have, where you were funded from London but appointed by and bring a number of diVerent organisations and working within the local board. They were diVerent agenda and interests together, is always supported by regional performance advisers. In the best way of actually having a really focused addition to that, there was a very small pot of money dialogue. We have said and agreed with the to support expenditure around supporting the consultative group that we need to review how we consultative group, for example. In our first year, we work with consultative group members and other approached London and secured additional funding stakeholders in the future, and that has included to increase our communications capacity, because looking at whether there are other groups that we felt this was a major priority for the board. For should come into the consultative process. In most of the agencies within the board, particularly terms of areas of potential tension, I think it is the courts, the Crown Prosecution Service and, to a right to say that for the board it has been quite certain extent, the probation service, their public a steep learning curve in terms of working to profile, in terms of the media and general public, was joined up objectives. When we started in 2003, we very low. We felt we really need to give priority to had a very good baseline because the chief oYcers this, so we secured funding for that post in year 1. of all the criminal justice agencies would regularly We started the current financial year with quite a meet together to look at interests of common tight budget that was just supporting that post, with policy and concern, so we had a bedrock of good some additional capacity to deal with issues around working relationships within the criminal justice the consultative group, with some of the minor sector. The focus of our business agenda over the expenditure, but the Government did increase the last year and for the coming year I think is going amount of money available to boards in the year and tocauseustohaveperhapssomemore we have had confirmation that our funding for the challenging dialogues with some partners, current year would be £115,000 for this year. That particularly around taking forward services for was confirmed in June. That represented a five-fold victims and witnesses, which is a very important increase in terms of the money that the centre was area of our confidence agenda. I think there is putting into boards between year 1 and year 2. more we could do to involve Victim Support and Although we have not had confirmation for next the witness service in terms of looking at what we year, because we are in the process of investing that are doing and giving us feedback as to how money in posts to support the work of the board and eVective the new working arrangements that we really support the joining-up agenda I have been have been introducing are. seeking clarification from the centre about funding for next year, and we are quite confident that we will Q352 Mrs Williams: How much scope do you think retain that baseline amount and we will also be there is for the group to re-focus the boards bringing in the equivalent of the salary costs of the nationally-based priorities to more locally-based performance oYcer posts that the centre originally priorities? set up. I am expecting that will give the board what Ms Moore: There is quite a bit of flexibility. We are is a very small budget but it is one which will support not dictated to in terms of every objective that we set. about three posts next year, plus some additional Within the broad umbrella of bringing more work and some conference and other promotional oVences to justice and improving confidence, we activities, and I am expecting us to have a budget of have quite a considerable degree of scope for approximately £140,000. If I could just add that we focusing on what are the key issues for North Wales. do not work on the basis of the funding that just In the last few weeks, I have been meeting with comes from the centre. Clearly the work of the senior managers from across the criminal justice Criminal Justice Board is complementary to our agencies, reviewing our current year’s plan, looking core business. When we started the financial year, at the Government’s agenda for criminal justice the police were putting in resources in kind, strategies for the future, and looking at what are facilitating the production of the Justice magazine— actually the key and significant issues for us in North which I hope there are copies of for you to look at— Welsh Affairs Committee: Evidence Ev 81
30 November 2004 North Wales Criminal Justice Board and the probation service underwrote the funding of police practitioners working together, co-located, a booklet called Living in Harmony—which we have ensuring that police decisions about which is the circulated to every member of staV throughout all appropriate charge will ensure that the matter the criminal justice organisations—looking into proceeds to court and secures an outcome, and in diversity issues. So the practical and financial that they have the benefit of the CPS advice. The support to achieve the business outcomes that we next critical element in the chain is bringing matters want as a board comes mostly from the centre, but to court in a timely manner and getting them lots of the issues, about time of managers and through the court without undue delays and funding when we have specific initiatives, have to be adjournments. Those are the factors that actually looked at as a collective as well. drive the whole narrowing the justice gap and bringing more oVences to justice outcomes. Q354 Mrs Williams: How have the several changes—and you have mentioned some of them— Q356 Mr Caton: In response to a question from the in membership of the board since its formation in Chairman on targets, you mentioned that your very April 2003 impacted upon the eVectiveness and ambitious targets have not been met in North Wales cohesiveness of the board in delivering its Priorities? in reducing ineVective trials in magistrates’ court, Ms Moore: I do not believe it has. I know we have although you made the point that North Wales is had several changes of Crown prosecutor: for a better than the national average. What are the variety of reasons I think we have had four chief specific problems and diYculties that arise in prosecutors for the area in the last 18 months. The addressing this particular issue? courts are reforming and therefore we have had Ms Moore: There are a number of angles on this. For changes with the crown court/magistrates’ court the courts, they have targets that are about the chief oYcers moving out and the new head of the eYcient use of court buildings. Therefore, in an unified courts coming in. Those have been critical environment where there is a presumption that you changes, but I think the important thing is that the will have a number of cases that for diVerent reasons board has established quite a strong culture of will not proceed on the day, it can mean that you will corporate responsibility and the business plan that put more cases into the diary for that day than the we have is what drives the business of the board, court could deal with if everybody was there. That is regardless of the individuals and any changes in a potential indicator of where you are working on membership. The other point which is absolutely the one hand to get as many cases to court at the critical is that underneath the board we commit earliest possible time and make eYcient use of time, senior management time from across all the but at same time problems can occur. A case does organisations to lead and be responsible for delivery not proceed on the day either because the defendant of the goals and objectives we set ourselves as a does not turn up or the witness does not turn up, and board. So we have a complementary structure in the figures we have been getting show that we have terms of the leadership function that the board been achieving real progress in terms of defendants’ holds, the strategic leadership, and the operational attendance at court. You can tackle that, and create delivery, working together, which is embedded now, a climate that makes this quite clear as an and I think that is one of the big plusses of the whole expectation, by the courts being willing to continue Criminal Justice Board agenda. There will be a with a case in the defendant’s absence and not massive increase in working together across what agreeing to unnecessary adjournments unless there historically were quite separate silos of individual is a really defensible explanation. The issue about agencies. witnesses—and this relates to our pilot around No witness: no justice national agenda—is about Q355 Mr Caton: Could we move on to performance providing witnesses with a single point of reference. issues. In section 2.1 of your evidence, you outline The police and the Crown Prosecution Service work the board’s success in meeting performance targets; together to ensure that when it is known that a case for example, in narrowing the justice gap and is going forward on a not-guilty basis, the witnesses increasing the number of oVences brought to justice involved in those cases are kept informed and also by 7%. Could you explain in a little bit more detail encouraged and reminded about the importance of how the board achieved this. their attendance, because, if witnesses do not turn Ms Moore: It comes down to how eVective the up, that raises the risk that the case might collapse. individual agencies are in their respective roles, This feeds another element that can impact on how which are complementary, and how that is a court operates on the day, because often harnessed collectively by the board and its senior defendants will hold back on declaring their plea managers. For example, bringing more oVences to until the date at court to see whether the witnesses justice comes down to a bottom line about police turn up. If they put in a not-guilty plea, it is a bit like detection levels—and we heard earlier about the a calculation that, if the witness is not there, perhaps performance of North Wales Police in terms of it will not proceed, and, in eVect, there is therefore improving detection levels. The next critical element an avoidance of justice. The pilot schemes in which is getting the right charges on the oVences: in the our practitioners have been involved have been information that is provided you also have looking at practical solutions to tackling those sorts information about the charging and narrowing the of key elements which amount to how eVective the justice gap pilots that we have been running. In court is on the day, in terms of being able to conclude North Wales we have crown prosecutors and lead a not-guilty case in particular. Ev 82 Welsh Affairs Committee: Evidence
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Q357 Mr Caton: You have just mentioned the three community safety partners over the coming year. national pilots as part of the Criminal Case Just to reflect back on your earlier witness’s Management Programme (the charging pilot, the evidence, there is a very wide range of behaviours eVective trial management project and the No that are classified as antisocial within the witness: no justice project). Could you tell us a little Government’s own guidelines. There are about 50 bit more about each of these projects—basically, individual instances of antisocial behaviour. We find what they are there for and what the Board’s role in that most people are referring to one particular it is. element, whether it be a drink-related disorder or a Ms Moore: North Wales is one of only two Criminal nuisance neighbour. The issue of the criminal justice Justice Board areas in the country that are actually system is how we identify what the antisocial piloting all three of these particular elements of behaviour is and what the targeted response is. In the improving case management and case progression North Wales criminal justice system in recent weeks within the courts. The rationale for us proposing we have seen an example of a criminal case in North Wales as a pilot Welsh Assembly was the Holyhead Magistrates’ Court where there were 17 board and member agencies’ confidence that we had defendants, all involved in town centre disorder, good working relationships between practitioners, which resulted in 13 or it might have been 15 particularly between the Crown Prosecution Service criminal antisocial behaviour orders that the court and the police and the courts. Those are the imposed on the back of the prosecution of the triumvirate, key partners in relation to these pilots. criminal behaviours—and the others I think are The pilots have given us the opportunity to get working through the system, so it was not only a ahead and get the experience of working with these percentage. We have had another case in the last few government programmes that are now being rolled weeks—an example of an individual who was a out across the country. The actual focus of the persistent nuisance neighbour, making his local individual pilots is really as I have described. In community and his own neighbours’ lives absolute terms of the charging pilot, that is where we have the hell—where the court imposed an antisocial co-location or the availability of CPS advice to behaviour order of ten years in relation to the police at that critical point of charge. With the application before them. So, depending on what the eVective trial management, that is ensuring that we issue is in relation to the particular bit of behaviour actually get the case through, get the listing right in you are dealing with, that is where I would be the crown/magistrates’ court so that we are reducing coming from in response to your question. The the delay and that has now resulted in a national Home OYce information about public perception of manual which is identifying a best-practice model antisocial behaviour, which has been taken from the which all areas in the country in England and Wales British Crime Survey, actually puts speeding as the would be working to. The No witness: no justice highest issue on respondents’ list of priorities when project is absolutely key to this and links across to they have been asked about antisocial behaviour. It public confidence. If people are not confident about depends on who you are having the dialogue with as the system, they will be reluctant to support the to which antisocial behaviour you are wanting to system by being witnesses. Most people’s perception focus on. If there is a specific one, I can perhaps about how witnesses are treated will be either from assist you. their own experience or from what they hear from friends and people who have actually been through that experience themselves. That is why we felt it was Q359 Mr Edwards: I think we are running a bit short important that we were giving priority to be involved of time, so could I move you on to ask about in that pilot. I just wish we could get a bit more sentencing guidelines. Are they helping to get the publicity about some of the good work that is going magistrates to sentence in a consistent way with on behind the scenes on this. respect to antisocial behaviour? Ms Moore: I think that would have to be a personal perspective. I am not aware of specific sentencing Q358 Mr Edwards: Could I ask about antisocial guidelines on antisocial behaviour that have gone behaviour. Are you getting on top of it? out to magistrates. I have to say that. They have not Ms Moore: The Criminal Justice Board does not come to me as chairman of the Criminal Justice have specific objectives this year about antisocial Board or as chief oYcer for the probation Service. I behaviour. We will be putting it into our business do talk to senior magistrates and to our district judge plan next year. If you are asking about whether the about a number of issues, including antisocial criminal justice system is engaged with antisocial behaviour, and I welcome that the police are looking behaviour, again, there are a lot of issues here. My to re-establish a forum we have had in North Wales own view is that, yes, we are making some progress. for antisocial behaviour which enables the police, The specific initiative that is going to bring the board court representatives and community safety and all the agencies into a direct impact on antisocial partners actually to come together to look at where behaviour is the new government initiative Prolific there are issues about interpretation, around how Priority OVenders. That has just been tasked to appropriate conditions are applied to antisocial boards this summer and the boards and other behaviour applications, and what is the process then partners are working on three strands: prevent and in relation to the court process. One of the issues deter; catch and convict; and then how we work with which has certainly been flagged up to me is that one individuals once they are in the system. That is going of the problems for the court, where an application to be a big business agenda for all agencies and has been brought for the individual, is that the Welsh Affairs Committee: Evidence Ev 83
30 November 2004 North Wales Criminal Justice Board individual has the right to defend themselves, so or North Wales based practitioners who contribute therefore the courts have to hear the matter. On to community safety partnerships and have contact issues around the actual imposition of antisocial with the criminal justice agencies either through behaviour orders, I am aware that the Government community safety partnerships or potentially the are looking at how they are going to extend the board’s consultative committee. In fact, one of their availability and the way in which orders can be most recent appointments is a former probation applied, and I think that will need to be supported oYcer. by clear guidance. I am always aware that one of the concerns that many sentences have is that antisocial Q361 Chairman: Ms Moore, are there any issues behaviour orders in themselves are eVectively arising for Criminal Justice Boards in Wales, as negative; they are not positive interventions. I think compared to Criminal Justice Boards in England, as there is scope to look at either involving sentences a result of the existence of the Welsh Assembly more in the earlier part of the process, which is Government? around acceptable behaviour contracts (eVectively a Ms Moore: Clearly there is a boundary and a border contract between the police and other agencies at the with the Minster for Justice portfolio and the moment and the individual) or in reviewing the community safety partnerships. The agenda for the progress of individuals on such orders. There is no future, around Prolific Priority OVenders,ineVect, continuity for them at the moment. will put Criminal Justice Boards into a triangular relationship with London and the Welsh Assembly Government. I think that is going to be quite a Q360 Chairman: Could I turn to the relationship testing agenda, because it has been quite a discreet between the various levels of government. Do you boundary with the Welsh Assembly in terms of the have any formal relationships with the Welsh Criminal Justice Board to date, although I am Assembly? If so, what are they? pleased to say that through the youth oVending Ms Moore: We invite the Welsh Assembly through teams, where there is a much clearer link with the the regional crime reduction director to contribute Welsh Assembly—because the Welsh Assembly to a consultative group of the Criminal Justice have arrangements with the National Youth Justice Board. As board chair I have also met with Board—our next conference is going to focus on the current post-holder (actually an acting young oVenders. In fact the Minister for the appointment) and that is someone within the Welsh Welsh Assembly, Edwina Hart, will actually be Assembly. The regional crime reduction director is contributing to the board’s conference next year. So essentially a Home OYce post but based in the there is certainly a good relationship there, albeit at Welsh Assembly Government. The Welsh Assembly some distance at the moment. Government have appointed a number of regional Chairman: Thank you very much, Ms Moore.
Witness: Chief Constable Richard Brunstrom, North Wales Police, examined.
Q362 Chairman: Welcome again before the if a police force is to survive—and you will be aware Committee, Chief Constable. We have had a very that there is a debate about structures in policing— interesting series of informative meetings with your that force must be able to provide a full range of staV throughout Wales, which it was very nice of you policing services, from dealing with anti-terrorism to to organise, which have been very useful to us in our dealing with kids cycling on the pavement. The inquiries. If we could continue now from where we debate now is how one goes about doing that. If you left oV in London, when we were talking about are a big force like Greater Manchester, for instance, combating serious and organised crime. Could you it is possible to provide all those services from within say what the main issues around serious and your own resources; if you are a very small force like, organised crime are that you face in North Wales. let’s say, Warwickshire, it might be necessary to have Chief Constable Brunstrom: Thank you. I think one something like a call-oV contract with your thing that is important to recognise at the beginning neighbours to ensure that you can provide a full is that all crime appears to us on our intelligence range of services in some way or other. But that has work that we do to be a continuum: big criminals led us here in North Wales to open discussions with break little laws and vice-versa, as it were, and it is our neighbouring forces as to what we can usefully dangerous to assume that you can separate serious do to collaborate to tackle serious criminality. We and organised crime from ordinary law-breaking. It have very few home-grown serious criminals in is a continuum and the same individuals move North Wales—not none but very few. Most of our up and down that continuum. We can show serious criminality emanates from the Liverpool categorically, for instance, that people with criminal and Manchester conurbations. We are now records are more likely to break the speed limit than collaborating actively with Cheshire police, in those without criminal records—that sort of thing. It particular, to ensure that in fighting serious crime we is also relevant that North Wales is a remarkably low are big enough to punch our weight and above it. We crime area: we do not have the serious crime load do our covert investigations, for instance, now in a that you see in our big cities in the north-west of merged unit with Cheshire police. We work very England. That said, one of the debates around the closely with them on automatic number plate structure of policing in the UK at the moment is that recognition procedures to make sure we have our Ev 84 Welsh Affairs Committee: Evidence
30 November 2004 North Wales Police major roads covered by good technology. With our Q365 Chairman: Like you, I think we need some new drugs network, which is almost entirely emanating ideas when it comes to drugs, but that is a subject for from Liverpool—in the same way that it emanates another inquiry probably. If I may move on to the from Bristol in the south of Wales—we ensure that latest proposals in the Queen’s speech, the Serious we have the A55 road and rail corridor covered by and Organised Crime Agencies, do you think that is very overt policing to ensure that we can actually a good idea? grip the drugs’ couriers as they go backwards and Chief Constable Brunstrom: I think it is essential. It forwards between here and England. has been in debate for many years. The nature of criminality has changed. Criminals recognise the existence of what is called “the global village” in the Q363 Chairman: Is it not quite as formalised as the vernacular. We are dealing with international crime, South Wales partnerships. They have Operation which does not just not recognise borders but Tarian, an ongoing organisation. Do you have any deliberately crosses borders to avoid jurisdiction. I connections with Liverpool and Manchester where do not think really the United Kingdom can meet its these criminals are emanating from? international obligations without something like a Chief Constable Brunstrom: We are part of Serious and Organised Crime Agency. The details of Operation Tarian—Tarian is an all Wales operation. it are really up for grabs There are many diVerent Only one part of it is enforcement. We are not part ways of skinning this particular cat, but I think the of the enforcement arrangements of Tarian, because country desperately needs some organisation there is no evidence at all, to speak of, of any focused on tackling international criminality. It is criminal connection between North and South not just drugs, of course: there is a huge trade Wales, in the way that our society generally works nowadays in trading people around the world; in east/west in both the north and the south. We are moving money; in all sorts of things, and, quite fully part of Tarian in every respect, most frankly, our traditional Victorian structure of particularly with the educational and developmental policing just cannot cope with that sort of side of it rather than the enforcement side. We have criminality—people based oVshore who never nothing formalised like that in the north-west of actually get their hands dirty themselves—but there England and North Wales yet, but we do have is an absolute need for some agency of that nature. extremely close operating arrangements. For I think it is also relevant—and my own organisation instance, we have a joint intelligence cell with our and those designing the Serious and Organised colleagues in the north-west. We have a regional Crime Agency are extremely alert to this—that that asset recovery team which is based in the north-west continuum of criminality still exists and there has to of England and we have two North Wales oYcers be some means of finding a relationship between the posted into it to ensure that it is possible to use new Serious and Organised Crime Agency and the rest of legislation to recover assets from criminals. We are the policing services in the UK. It must be part of the right in there as main players. We have a joint same family. tasking group with Cheshire police to make sure we are using our resources very cleverly across borders. So it is not quite as formalised—and part of that is Q366 Mr Caton: Could we move on to the because there is a political boundary between us and community safety partnerships, Chief Constable. England—but it is very nearly as close in What level of influence do the local community operational terms. safety partnerships have on priorities at Basic Command Unit level in North Wales and the North Wales’ police force level as well? Q364 Chairman: You did mention this continuum of Chief Constable Brunstrom: I think increasingly crime, but do you think that the serious and those partnerships are fundamental. They are organised crime, that is possibly centred around having a growing influence and I very much welcome drugs, is impinging on lower rates of crime—the less that. There has been a tendency in the UK, prior to important crimes, if you like, stealing and so on, in the Crime Disorder Act—even though that is now North Wales? six or seven years ago—for the police service to Chief Constable Brunstrom: There is no question at deliver the service that we believe professionally the all that it is. We can say categorically that at least a public needed rather than necessarily what the quarter of all acquisitive crime is caused directly by public wanted. You could perhaps envisage this as the drugs trade and the use of drugs is prevalent two separate circles that did not overlap very much. throughout the whole of the UK. North Wales is no One of the things the community safety partnerships diVerent. We are relatively lucky that we have are increasingly doing is demonstrating on evidence, relatively few senior level drugs traders based in demonstrable facts, what the public actually think North Wales but the eVects of the drugs trade is they want from a police service and dragging the pervasive throughout the whole of our society and police service towards it. I think these two circles will throughout the whole of the UK. It is no diVerent overlap more in the future than they have in the past here. There is no doubt at all that criminality and that overlap is what we perhaps call community associated with the use of drugs is a big problem here policing. I do not think community safety in North Wales, even though most of the importing partnerships have been very good at doing that is taking place through Liverpool. hitherto, but I think there is a significant and Welsh Affairs Committee: Evidence Ev 85
30 November 2004 North Wales Police growing improvement. I think they are going to be emanating from government that antisocial enormously influential in ensuring that local behaviour and quality of life is right at the top of the policing is tailored to local needs. national government agenda. That is not necessarily the case in some people’s view. In some areas more Q367 Mr Caton: At present which partners do you recognition of the priority is attached to this, but I think are not really pulling their weight? Is there a must stress that the culture is changing rapidly for diVerence between one Basic Command Unit and the better as we speak. I think the prognosis for the another? future is very healthy. The second point I would wish Chief Constable Brunstrom: In terms of which from that is more active involvement. It is very easy partners are not pulling their weight, that has been a to talk about partnership but it is necessary to act in debate across the whole of England and Wales, a collegiate way. Sometimes the words are there but about the involvement of health in community the acts are not. There is occasionally a lack of safety partnerships—and I do not mean that as a clarity within my own organisation and that of other criticism of health but as an observation. The reason partners—because we are all on the same issue here, for that is that the health service is structured, in a the developmental need is across all the partners. nut shell, to improve our health, and many of the Sometimes we talk a good fight and do not deliver it; things we would wish to do in community safety sometimes the message is lost in the telling from top partnerships, although they require the involvement to bottom or from side to side. I think that question of health professionals, do not do much to improve of acting collegiately is the key issue. Of course to do the health of society and therefore tend to get a very that one has to be prepared to spend money—and low priority within the health service because we do not more money, but to be organised to spend not have enough joined-up indicators, we do not money as a college rather than as a group of have enough cross-government policy making. I individuals. think our government tends to be too silo-based, in that we work up and down within the police service Q369 Mr Caton: What if we were to turn the or within the health service and not enough question round and ask your partners: What are you sideways. So there has been a problem, which is well not getting from the police that you want to get? recognised across the whole country, with finding What do you think their answer would be to that ways of engaging health professionals in this. It has question? been mixed. It is rather easy to do that if you are Chief Constable Brunstrom: I think is very clear, trying to prevent people arriving at accident and there is an overwhelming public desire which is emergency departments with a broken bottle in their manifested in all the other agencies, to see more of face or having been injured in a car crash; it is very what is branded now very simply as community diYcult to do that if you are dealing with the drugs policing: more local oYcers who are local people, trade which has very little direct impact on known by their first name, actively engaged in individual health. I think there has been a society, “embedded in the local community” in the reluctance, which is rapidly evaporating, from some modern vernacular. I think that need is absolutely local authority members to accept the really quite real. The call is crystal clear, it comes from all fundamental shift that the Government or directions, and there is a real need for the police to Parliament directed, I am not quite sure which, in go further than we have done so far in responding to 1998 with the Crime and Disorder Act, where for the it. We have gone a very long way in North Wales first time it made it very plain that tackling crime and and, where we have done it, it has been extremely disorder was not just a matter for police alone but successful, but the process is not yet complete. I for a broader partnership. That was very new. I think it is part of the strength of the partnership that think, in all honesty, that it takes some time for these that call from our other partner agencies is clearly things to settle down, for recognition to grow, and based on evidence. That is what local people do that process is still ongoing. I think one of the things want. we have missed in the Crime and Disorder Act partnerships is any method of directing change. Q370 Mr Caton: Are there any structural or There is a clear duty placed upon partners, but there V procedural changes that could be made to facilitate is as yet no e ective sanction for any of those who good working relationships between tiers of choose not to play. That is still, in some places, a government, the police, as part of the community problem. safety partnerships? Chief Constable Brunstrom: Yes, there are. There are Q368 Mr Caton: What practically would you like to two or three which I would identify. One model I be getting from the partnerships that you are not would draw attention to is a concept called a joint getting at the moment? action group. This emanated, if I recall correctly, Chief Constable Brunstrom: In some cases, I would from Knowsley in Liverpool and we have imported still wish to see more ownership of problems. There it into Flintshire, underneath the community safety is still a reluctance for us as a group of public partnership, to get a group of oYcers of the various agencies to grip this as a group. There is still authorities to work together to do exactly what it reluctance in some places to engage in the process, to says: to act jointly, because we discovered originally spend money on it. Most agencies would say they are in Flintshire, having gone to Knowsley, that there under-resourced and have lots and lots of priorities was a discontinuity: the partnership was coming up and will not necessarily agree with the message with ideas but they were not getting delivered Ev 86 Welsh Affairs Committee: Evidence
30 November 2004 North Wales Police because we needed to empower people in a way that therefore, be given some flexibility to use my had not hitherto happened. It has not hitherto been resources to cover all ends of this. But I think the usual in local authorities to empower middle- Government now is very rightly not attempting to ranking people to do things. That joint action group set detailed targets for local delivery but just to cause concept has been spectacularly successful and is now us to pay attention to areas. I think it is very sensible spreading in other parts of North Wales—one has and it works well. started in Wrexham and they are under discussion elsewhere. As a model, it is a very good one. The second thing is much more fundamental than that, it Q372 Mr Caton: In your written submission is building community policing from the ground up, you mentioned the value of Welsh Assembly of getting down into the fine grain of society at a Government’s Communities First initiative. The level much, much lower than the community safety South Wales force has dedicated particular policing resources in Communities First areas and we visited partnership. Community safety partnerships in V Wales are built at local authority level, there are six Cardi and saw that in practice. Do you commit in North Wales, but there are hundreds and extra policing resources to Communities First areas hundreds of communities in North Wales. Where we in North Wales? are now going with this emanates from some Chief Constable Brunstrom: Yes, we do—not in experimenting we have been doing in Flintshire and quite the way they do in South Wales. I am a huge Wrexham, which is to base our community policing supporter of Communities First and I noticed you on community council level. There are 336 asking one of the previous witnesses about funding V community councils in North Wales, and we are di erences in England and Wales and here is one of looking to design and deliver our community them: Communities First does not exist in England. policing at that level of detail at least, if not to even If I may take a roundabout route to answer your smaller neighbourhoods within the community question, sir, one of the huge benefits of council. We will be meeting the local community— Communities First is that it is long term. There is a and we are doing this already in parts of North clear public commitment from the Assembly which Wales—in their own village hall, with their own I know they believe and are delivering upon to keep local police oYcers and members of the other Communities First going for at least a decade, and agencies, because this is all partnership but writ the minister is even now, I think, talking informally small, and I think that point was not recognised. about extending that period. That gives us enormous When the Crime and Disorder Act was passed, the confidence that this is something worth doing, partnership was put in at council level. Real people because it is going to be there for a while. Of course, live their lives at a very local level. We need to it is nothing to do with policing; it is about structure it so that we are creating now a structure communities. We were on the periphery of this to design police delivery at that community council originally. We did a deal with the Assembly in the level, replicated at least 336 times across North early stages and we actually got a small amount of Wales; that is, building up the community safety money from the Assembly to assist with the policing partnership, while at the same time the public of Communities First here; so at the moment we have authorities are building down as well, and we will three sergeants and a constable, funded 50:50 by the end up with a very convincing continuum of Assembly working to here to organise and liaise with policing, from tackling international terrorism at Communities First to ensure that policing is one end to worrying about kids cycling on this integrated with it. We have not gone down the route pavement in m village at the other. of having Communities First teams in the way that some of the police forces have, but we have come to the same end. This is best developed in two diVerent Q371 Mr Caton: Do you think that for facilitating parts of North Wales in very diVerent ways: one in that joint action group or local partnership the Dudno ward in Llandudno, which is regarded as approach it would be useful if the Government set one of the best Communities First sites in Wales, common or complimentary targets across agencies? where we have a very, very exciting project, Chief Constable Brunstrom: Personally, I do not. I organised by Communities First, to improve quality think there is a tendency to get far too tactical, far of life in some very diYcult areas in Llandudno and too detailed from the centre. I think the Government the police are working hand-in-glove with the local is in danger of getting this very right at the moment, co-ordinator. Not a huge amount of resource gone setting strategy rather than detailed directions. You into it, but it has a dedicated police oYcer, one of our heard from my colleague Carole Moore, the head of community beat managers, working from the probation service locally, about the way we were Communities First oYce on a day-to-day, minute- directing the Criminal Justice Board to concentrate by-minute basis to ensure that we are completely upon areas of work but the actual targets that I set integrated with the programme. Of course one of the were, I think rightly, were left for us. There are very exciting things about Communities First is that when few targets that set from London would make sense it is done properly it is built by the community in Colwyn. The only way to convince people in themselves. That is being developed in North Colwyn that we are working on the right agenda is Flintshire. We have 11 Communities First sites in to go and eye-ball them and have some discretion to North Flintshire, 11 wards, and they are all covered negotiate what matters in their community. At the by the same police district. I think you met with one same time, of course, I have a duty as a police chief of my inspectors, Roly Schwarz, in Rhyl yesterday. to worry about international terrorism. I must, His opposite number in North Flintshire has Welsh Affairs Committee: Evidence Ev 87
30 November 2004 North Wales Police an outstanding Communities First co-ordinator. street, judged by the local inspector. Not one single Between the pair of them they have organised this hanging basket had come down; one had died lower tier of structure of community policing that I because people had gone on holiday and forgot to was talking about a moment ago in each of those water it. The police were judging that hanging basket Communities First areas, so that each of those competition and the only complaint she now had Communities First communities now has an action was that the hedges were not being clipped and the plan to improve their community, writ jointly with place looked untidy. She said, “It’s fantastic. I’ve got all the public agencies, including the local authority a life. I never wanted to leave this estate, I love living and the police and supported logistically, here, I’ve got nowhere else to go, and my husband organisationally, by Communities First, to ensure and I can sleep in the same bed at night together. that fine level of detail. How we improve our Thank you to the police and the local authority”— community in this Communities First area is, by this is a Communities First site—“for giving me my definition, a partnership between the police, the life back.” What better performance indicator does local authority, the Welsh Assembly Government one need than that? The actual change in numbers and the local people. Enormously powerful. on the estate is, first of all, not huge, and secondly Fantastic. irrelevant because that is not what makes her think she has a future. A fantastic success—I mean, really a joy—and it would not have happened without Q373 Mr Caton: As you just said, Communities First Communities First and that very close partnership is a long-term approach and it is early days. From between the police and the local authority. the police point of view, is it possible to measure any concrete benefits yet, for instance, improvements in police public relations or even an impact on crime Q374 Mr Edwards: Are there communities in your levels? force area that you would wish to be Communities Chief Constable Brunstrom: No, it is not, is the First areas? answer to that. One criticism that would rightly be Chief Constable Brunstrom: No, I think not. We levelled at Communities First is that not enough have 26 in North Wales. I think they have been thought went into it in the early stages as to how we chosen for the right purposes—which were not just are going to measure success. That is true of many policing purposes, of course, they were social projects. I do not even necessarily think that was the purposes. Not all of them are working eVectively yet. wrong thing to do because the subjective benefit, I would not wish to see this broadened; I would wish where it is working well, is just overwhelming. It is to see them all brought up to the same standard of absolutely overpowering. We can see areas where it eYciency because we can see those that are is working well and where it is not, by the way. There successful and those that are not and I do not think are areas in North Wales where Communities First is enough is yet being done to sort out those which are almost a fiction—and it appears not to be anything manifestly not yet working as well as they could. So to do with funding or the weather; it is all about I would not wish to see it broadened. I think the right personalities and organisation—but where it is areas, in broad terms, have been chosen. I want to working well, the spirit of sense of togetherness, of see more done to make them eVective everywhere, success, of hope instead of despair, is really very, because we can see what success looks like and it is very instructive. If people feel their lives are better, very galling when you can see that one area is they are. I meet almost nobody who worries about spectacularly successful and another one is not, and statistics. Real people living in real communities do the only obvious reason is the personalities involved not worry about what the burglary detection rate is at every level to want to make this work. to five decimal places; they worry about whether they feel safe going down to the shops. I can give you Q375 Chairman: I think that is a common problem. one fantastic example of this as a performance One of the important things about the partnership indicator from an estate in Holywell. I went there idea is that all partners perform. I think you touched two or three years ago and met a lady in her 80s who on it earlier in reply to Mr Caton, but how would was living there with her husband. She had been you make those partners perform? Do you have a there her entire life. She approached me and said she legislative model you would like to see us use, for realised that the end of the world had come when the example? police were called to her estate three or four years Chief Constable Brunstrom: Yes, I have. One of the ago because there had been some misbehaviour, and common concerns in public agencies is that all of us, she heard one of the oYcers, a police sergeant, say to including the police, tend to claim that we are one of the constables, “Turn the cars round, quick, overworked and under-funded. Probably both of in case we have to make a getaway.” She thought, those things are true nowadays. So what? If you “I’ve got to live here. The police are scared and I’ve don’t like the heat, get out of the kitchen. A lot of our got to live here!” When I first met her, she was jobs in all the agencies is prioritising where we spend staying up at night with her husband doing two-hour our money. If you chose to double my budget, I shifts: one asleep and one keeping watch, because would say “Thank you very much,” and I would they had had people putting dog excrement through spend it and we could do more with more. But life is their letter box, the front gate had been ripped oV its not like that. We have to live in controlled hinges, a brick had gone through the window. I went circumstances. One of the issues for me that has been back to see her again last year. The police had missing is some sort of last resort draconian organised a hanging basket competition in her enforcement measure to make partnerships work. If Ev 88 Welsh Affairs Committee: Evidence
30 November 2004 North Wales Police you have a reluctant partner, or a partner who is in those people should have self-referred because they denial or refusing, there is nothing in law at the need help. There is a genuine conundrum here, a moment to make that partnership happen. A very dilemma, but, I repeat, our view is that it is not interesting precedent has been set by Parliament correct automatically to refer every person because within the last month through the Civil it is a breach of the law. Instead, we ensure that every Contingencies Act which has just received the Royal person who is a victim is oVered victim support. Assent. The Civil Contingencies Act in Section 10 Usually a police oYcer visits them, so there is face- brings in a really quite extraordinary enforcement to-face contact—police training requires that to regime. It creates a statutory partnership. It places happen—and every single victim is sent a brochure duties upon the agencies—one of which is the about Victim Support as part of our process, so they police—but the extraordinary nature of this, which will get stuV through the post very quickly I have never seen the like of before and very much thereafter. But there is not an automatic referral welcome, is a last resort enforcement regime. It is process, and, in my view, unless the law is changed, called “a Category 1 Responder” as a piece of nor should there be. jargon. I can go to the High Court and complain about any other Category 1 Responder in my area Q378 Mrs Williams: Have you discussed this with that, in my view, is not pulling their weight in dealing your colleagues in the rest of Wales? with civil contingencies, planning for major Chief Constable Brunstrom: Yes. It is in abeyance. disasters, and, interestingly, they could do the same This legal issue has been known about for several to me. There are very few levers in British law at the years and the law has not been clarified, so it is still moment which enable you to apply directly to a chief really a moot point. It has been in discussion constable. This now does. It is the nuclear option. throughout the whole of England and Wales for None of us is going to go running oV to the High several years. Court to complain about one of our mates without very good cause, but there is something there and it Q379 Mrs Williams: There are disagreements among is hanging in the ether: if this does not work, you run chief constables about this? the risk of somebody losing patience with you and Chief Constable Brunstrom: Disagreement is too doing something about it. I can understand why strong a word. There is not consensus as to what the Parliament and the Government has chosen to do law says. I am aware that some police forces do an this for this particular topic because of course failing automatic referral and some do not. I am afraid that to plan for an al-Qa’eda attack is not acceptable and I do not know what the position is in the rest of if I was in that situation I must be held to account. Wales oVhand, but I could easily find out. But it is But I think some version of that, now there is a not just a Wales’ problem; it is a whole of England precedent set in law, would be extremely interesting and Wales’ problem. There is recognition, at the for some future iteration of crime and disorder very least, that the law is not explicit. There is an legislation, something to say: “This is not optional, ambiguity in it which is unhelpful. people: you really have to collaborate to an exceptional standard.” Having said that, it things are getting much better anyway. There is a much Q380 Mrs Williams: The HMIC report for 2003–04 broader acceptance that crime and disorder is reported that North Wales Police are “poor” in the actually at the top of the public agenda and all public areas of call handling. What steps have been taken agencies have a part to play. I think, even without to address this? that enforcement regime, things are likely to get Chief Constable Brunstrom: It was not graded as much better over the years to come. “poor”, as a point of clarification: it was graded as “fair”, which is the next grade up. As I said publicly then, I will repeat publicly now: we do not accept the Q376 Mrs Williams: Good morning. Do you have current iteration of the HMIC’s baseline assessment automatic referral to Victim Support in North process. It is a very immature process yet and it has Wales? been published at too early a stage. To come back to Chief Constable Brunstrom: No, we do not. answer your question, in actual fact our call- handling processes are just about average for the Q377 Mrs Williams: Why not? whole of the England and Wales police service. We Chief Constable Brunstrom: There has been a lot of are about in the middle, which is not where we ought controversy over the Victim Support scheme as to to be. We ought to be much higher up the chart than whether it is legal under the Data Protection Act to we are, so we are somewhat concerned that we are give an automatic referral because the rights of the not doing better than we are. As a direct result victims are paramount. It is still unclear in law, I of that—and we came to these conclusions have to say, but there is more than one view here. independently—we have now set up a separate Our view is that an automatic referral whether you department. Call handling used to be merged with like it or not—as a victim, we will tell somebody else our support system; we have now set up a separate that you are a victim—is a breach of your human department to focus upon it. We have one of our right and a breach of the Data Protection Act. very best superintendents in charge of it—she Victim Support schemes generally would like to happens to be a lady—and she has been given the have an automatic referral, because the evidence task to bring us up to the best possible international suggests that if there is no automatic referral—and standards. We have bought new equipment; we are an awful lot of victims do not self-refer—some of in discussions with the best forces across the globe as Welsh Affairs Committee: Evidence Ev 89
30 November 2004 North Wales Police to how to do this better; we have hired new people Chief Constable Brunstrom: It is going to happen but in; and, in a nutshell, we are focusing upon it. it is a year away. I am not aware of anybody leaving Something like 90% of our business comes into the yet in advance of a move that has not taken place. I police service nowadays down a telephone line, and suspect, in honesty, that it is likely that some will it is not an area that this force and others have given because people will have all sorts of professional and anything like suYcient priority to. Although I domestic arrangements which may make it for some dispute some of the detail of the HMIC’s work, the people extremely unattractive to travel from, let us thrust of it is right: call-handling in North Wales is say, the west of Caernarfon to the eat of Llandudno. not as good as it should be. Being in amongst the On the other hand, I am aware of at least one person herd is not good enough for us and we now where we who lives in Barnet and travels to St Asaph every are going with it. And it has already improved day—because they like doing so—now. I think the significantly, by the way. problem is that it is far too early to tell. It is also, I think, one of the myths in North Wales which I am Q381 Mrs Williams: What has been the doing my best to dispel that the Welsh language is impact of centralising North Wales Police locked into some sort of ghetto in North-West telecommunications in North East Wales on the Wales. The Welsh language applies across the whole recruitment of Welsh-speaking staV in North West of Wales. I think we in Wales do ourselves no service Wales? at all by getting involved in some sort Greater Chief Constable Brunstrom: We have not centralised Caernarfon Protection Society. This is about anywhere yet. We have an intention to do so. At the delivering a service for the whole of North Wales in moment we have three control rooms: one in two languages. I speak as an outsider, of course, and Wrexham, one in our police headquarters in Colwyn as an English speaker: I do not think we do the Bay and one in Caernarfon. Our intention is to Welsh language any favours at all by locking it away centralise at St Asaph—which I would not term, but in the west. I want to create an environment where it perhaps it is terminology, as being in North-East is recognised that the Welsh language goes from Wales—at the St Asaph business park, co-located north to south, east to west. Wales starts at the with the fire service. It is our intention to move there English border. The Welsh Language Act starts at sometime during the course of the next year. I do not the English border. anticipate that it is going to have any impact at all on our ability to recruit people who can speak both languages, to work bilingually. We have a policy Q384 Mrs Williams: What steps are being taken by now that all our new appointments will be into North Wales Police to recruit Welsh-speaking police Welsh-essential posts and the fire service are already oYcers and civilian staV in order to provide a fully in that area—they have had a policy of having Welsh bilingual police service? Assembly posts for some years and have had no Y Chief Constable Brunstrom: As you know, our policy di culty at all recruiting people. I do not anticipate statement has been that we wish to become a that it is going to have any marked impact bilingual organisation by 2021. That is not to say whatsoever. At the same time, we are going to be that every member of the organisation will be enhancing the importance of the Welsh language in bilingual, because that is clearly completely call-handling processes. We are going to become impossible. I think we are the only police force in much more friendly to the Welsh language, much Wales to have made such a commitment and we are more encouraging, and we are going to use it more in call handling than has traditionally been the case. progressing towards that. We have a completely clean sheet from the Welsh Language Board for our Welsh language plan and at the moment the Q382 Mrs Williams: Is it true that because of your percentage of Welsh speakers in the organisation is proposals to centralise this service you are losing slightly above the national average, so we are doing currently good, valuable members of staV who have okay but no better than okay. One of the things that given years of service? Because they think the writing has concerned me greatly is that we are not is on the wall and they must be prepared to travel attracting enough Welsh-speaking recruits to the from Caernarfon, shall we say, to St Asaph or police service. I think there are two reasons for that. Wrexham, you are losing good people who have One is that we have not tried hard enough; I think we given good years of dedicated service bilingually. have just applied processes that work okay for Chief Constable Brunstrom: I do not have the figures English speakers and expected Welsh speakers to go for that, I am afraid. I could easily find out. When through it. The second is that there is some V we asked the sta initially—because of course we did reluctance amongst native Welsh speakers to join that as part of our process—none of them indicated the police. It is still seen as “not the done thing”. I that they would leave because of a transfer of job think there is a residue of us being perceived in the location—and I am not aware that any have, by the past as an English-speaking army of occupation, way. Of course nothing has happened yet, as I said, and “Decent Welsh people would not want to join because there is going to be no movement until the that sort of outfit, would they?” I think there is quite end of next year. a complicated mix there of us not being suYciently sensitive to need and some reluctance in society. Q383 Mrs Williams: You say that, but the truth is That causes the quite unacceptable position where I that it is going to happen. end up recruiting people from England to work in Ev 90 Welsh Affairs Committee: Evidence
30 November 2004 North Wales Police
Wales, while we have Welsh speakers going to organisation is out in contact with the public in England to get jobs. This is true of the health service uniform and that places us amongst the top two or as well, of course. This is not restricted to policing. three forces in England and Wales because the average percentage is significantly less than that. At Q385 Mrs Williams: Is it true that there is an inquiry headquarters, at the moment, if I recall, we have underway about your recruitment methods, raised approximately 20 constables who are in a by members of the police authority, in fact, about headquarters post that is not operational. It is a tiny bilingual applications. number. I am not saying that is a particularly good Chief Constable Brunstrom: It is not strictly true to number and perhaps it ought to be ten, but it is tiny. say there is an inquiry, no. The police authority has The vast proportion are out on public contact. a human resources committee and one of their remits is to look at the Welsh Language Act. At their Q388 Mrs Williams: How do you prioritise one most recent meeting, they were quite properly asking requirement versus the other? one of my colleagues, our director of finance Chief Constable Brunstrom: That is a very good resources—I was not at the meeting myself—what question, to which, unfortunately, there is no percentage of our recruits were Welsh speaking, simple answer. whether that was high enough and what we were doing about it. That is part of the function of the Q389 Mrs Williams: You said earlier what local police authority, to hold the police force to account. people want. This is what you said. We have a policy to become bilingual by 2025. They Chief Constable Brunstrom: Perhaps I could were looking at our progress and they have asked us approach that from a slightly diVerent direction, some pretty searching questions as to are we on because it is extremely diYcult to balance the need to track, are we going to get there. So it is not true to have a special branch oYcer at Holyhead Port say there is an inquiry. There is certainly a lot of against the need to have a dog-handler or a work going on. For instance, we recruited on 16 helicopter oYcer or somebody in a response vehicle November—which happened to be just before that in Wrexham or somebody walking the beat in meeting, by the way, just to put this in context—our Conwy town centre—which is one of the things you first ever head of the Welsh language recruiting pay me for. It is not an easy balance to strike. If I team, an inspector who has Welsh as the first could just tell you what we are doing to change our language, to ensure that we can recruit in Welsh. priorities, though. We had a programme to deliver at There is no other police force in Wales that is doing least 150 community beat oYcers, starting from that. The entire process from beginning to end in zero, over a three-year period. We have achieved Welsh. Traditionally, it has been done in English; that. In fact, at the moment, we have over 165. Our now we can do the whole thing in Welsh, and have intention—and the police authority have published English as a second language, to try to reverse the its intention—is to have at least one community beat balance. But this is not happening overnight. We are manager per council ward in North Wales. There are into a 30-year programme here, and we are only 281 council wards. Our intention, as we speak now, three or four years into it, so there is a very long way is to ensure, without further increasing resources, to go. But I can assure you we are absolutely that we deliver that commitment: one community determined and totally serious. beat manager per council ward across the whole of North Wales, probably by Christmas next year— Q386 Mrs Williams: How many oYcers are and I say probably because I have not yet formalised employed on neighbourhood policing compared those negotiations with the police authority. To with specialist centralised support functions? transfer about another 100 oYces from the various Chief Constable Brunstrom: In percentage terms?. If tasks they are doing into community policing is to you wanted the actual numbers, I would have to demonstrate our commitment not just to talk about send those to you afterwards.1 this but to do it. That is going to cause some heart searching—because none of these people is doing Q387 Mrs Williams: We would be grateful if you nothing at the moment. It is going to cause us to did that. focus on: What are they going to come from to do Chief Constable Brunstrom: In round terms, we have that? I would be very happy, Ms Williams, to give 1,200 constables. There are about 1,600 oYcers in you further details of that as the year progresses as to North Wales Police in total and we have 1,200 what we are doing with it. You will see it in a public constables. If you gave me a minute, I could give you domain in more detail when we get into next year’s the exact numbers, because they are in this file here. policing plan. The police authority has to publish an In terms of their deployment, contrary to the often annual plan before the end of March each year and expressed belief, even inside the police force, the vast that commitment will be there in some detail as to majority of them are out on operational control how we are going to deliver it. duties in contact with the public. Approximately 69% are working in uniform in various formats in Q390 Mrs Williams: Is North Wales Police at full contact with the public. The other 30% includes all establishment? our plainclothes oYcers, our specialist squads, our Chief Constable Brunstrom: No, we are not. We are special branch, everything. Over two-thirds of the running at the moment at something like 50 oYcers under our full establishment. By, I think, the end of 1 See page Ev 432 January, we will be up to that establishment. We Welsh Affairs Committee: Evidence Ev 91
30 November 2004 North Wales Police are constantly playing catch-up. Unfortunately, Chief Constable Brunstrom: I see what you mean. If because we only have an annual budget we can never we cannot meet the minimum manning requirement, plan for the year ahead. I do not know today, for then we reduce the requirement and just cope with instance, what my budget is going to be next year. what we have got. There are two things there. First The Government has not yet announced it. We are of all, that is real life. Again, the perception within never able to plan for the future. Recruiting takes the police service and society is that there are not six to nine months’ minimum, from somebody enough police oYcers. On the other hand, police expressing an interest to starting work in the police oYcers are not free and there is no unopened box in service. Each year we end up getting a budget that is headquarters of cops who can come out to meet not set until late February. Whatever the recruiting gaps. We have to cope with what we have got and implications for that are, we cannot catch up with there is a constant need for balance. There is some for six to nine months. Therefore, as of today—and truth around the fact that there are not enough I forget the exact figure—we are approximately 50 police oYcers—although I am not quite sure what Y o cers out of 1,200 under-strength and within the “truth” is, but that is the genuine perception. To put next six to eight weeks we will have caught up. that in context, by the way, there are something like twice as many police oYcers per head of population Q391 Mrs Williams: Yesterday we visited diVerent in France as there are in Great Britain: we are a very parts of North Wales. During our visit, why was it low police society by international terms. And we that we found generally the police areas were are busy. Of course the people in the frontline, the operating at under-establishment? In one case there uniformed police oYcers who are actually meeting was an establishment shortfall of 35%. these calls for service, feel it the most because they Chief Constable Brunstrom: I am not aware of those are stretched and overworked, in their view, and figures, I am afraid. It is a common perception in the they are busy. The one thing we have not done much police service culturally that “There are not enough in the police service—and we are getting round to it cops”—and that is not much of a surprise. We have generally—is to set minimum staYng levels, to say: two or three issues. Abstraction from duty is the “This is a level below which you will not fall” and: major driver. It would be easy to bandy figures “To police this area, let’s say, at two o’clock in the around, but, without understanding the context, I morning, we need ten oYcers” and therefore ten cannot give you a specific answer. We have a oYcers will be provided. We have tended to cope significant problem of abstraction for training purposes, for sickness and recruiting. Although we and say, “Yes, we’d like to have ten, but today we are nearly up to establishment, a lot of our people only have eight, so you will just have to go and are junior staV who are being trained. Unlike the cope.” That is a very live debate in the police service armed services, of course we are always in the and one that you will have found if you have been frontline: we have no downtime for training. To going and talking to my colleagues. If you ask police Y keep our staV up to speed and to make sure they o cers what they think, they will tell you. That is it: actually know what they are talking about, we have we are constantly stretched. I do not mean that as a to abstract them from the frontline in order to train criticism or a complaint or a request for more them. We have a fitness level in the police service resources. It is simply real life. The whole of our which is higher than the norm in private industry. work is about balancing the resources we have to try Our sickness abstraction level in North Wales is to get the biggest bang for our buck that we can rather good compared to the national average—we achieve. To go back to the longer term, the real are one of the best forces in the country—but we still excitement about community policing—the sort of lose approximately 10 to 12 days per oYcer per year thing I was talking to your colleague Mr Caton through sickness. All of these things band together about—is that if we can get that infrastructure right to mean that there are fewer oYcers in the frontline at community level, we can significantly reduce than you or I or the public would like—and demand for police services. We need to try to resolve there always will be because there is an almost the problems before the phone rings, so that, rather inexhaustible demand for policing. than having police oYcers running round like chickens with their heads oV, with a blue light and a Q392 Mrs Williams: Could you comment on why car, from job to job to job to job, we can get there understaVed areas, when trying to manage from first, solve the underlying problem by working in within the Minimum Manning Framework, are very fine detail with local people, such that they do encouraged to adjust that requirement downwards not feel the need to ring us in an emergency in the when requirement cannot be met due to staV first place. If we can achieve that—and we are shortages. achieving that now already—some of the pressure Chief Constable Brunstrom: I am sorry, I do not comes oV. An enormous amount of pressure comes understand that. Could you try to rephrase it. oV. Recorded crime by the police is down in North Wales this year by in excess of 10%—it is very nearly Q393 Mrs Williams: Why are understaVed police 11%. That is thousands of individual crimes that we areas, when trying to manage from within the have not had to go to, which takes some of the Minimum Manning Framework, which you have pressure oV our backs and enables us to work in a touched upon, encouraged to adjust, if it is true, that more focused fashion on that which is left. The key requirement downwards when the requirement to this is not lots of more oYcers and much higher cannot be met due to staV shortages. income tax; it is getting to grips with community Ev 92 Welsh Affairs Committee: Evidence
30 November 2004 North Wales Police policing so that there are fewer problems in the first clock to provide a 24-7 service—although we have to place. That is the exciting thing for the next ten years do that too, of course. If you look at what Inspector or so. Schwarz and all his colleagues are doing, it is passionate commitment to a location, a patch, a Q394 Mr Edwards: Yesterday afternoon, we were in territory, a piece of turf, and improvement of the quality of life to everybody who lives within it. I Rhyl Police Station, listening to the approach to V community policing there. Are you getting on top of think it is fabulous. The hope it o ers me and the it there? people of Rhyl for the future is just wonderful. Chief Constable Brunstrom: Absolutely. For those who know Rhyl well, I think the change in the last Q396 Mr Edwards: Can you expect that sort of year or two is nothing short of dramatic. Dramatic. personality impact in all communities? I think you will have met our local inspector there, Chief Constable Brunstrom: I would hope for it, but Roly Schwarz. He is, I am very pleased to say, a realistically it is not deliverable yet. This is a new larger-than-life character in every sense. He quips style of policing; we have to grow some diVerent that when he first started in Rhyl he could have sorts of police managers. Of course, the challenge for furnished a good sized detached house from the me is that I must be required to deliver that level of sofas and fridges and things left on the streets. It hope and excitement across the whole of the area, does not look like that now. We have hauled away with our partners—and that excitement depends as literally thousands of tons of junk oV the street. much on partners and partnership as it does on just In partnership with the local authority, with the police, of course. It is going to be a challenge, but Communities First, everything has been tightened up I think the simple answer to your question is: Yes, we in every respect. The place looks better; it feels can deliver it. But we are not doing so yet. You have better; oVending has decreased. It is still a tough seen, I think, a beacon of hope for the future. I would place to work in—not physically tough, but I mean not sit here and pretend to you that you would it is a challenge. It is immeasurably better than it was expect to see that everywhere in North Wales, but three or four years ago. Yes, I think categorically we you can in a lot of places—and it is growing fast. are getting on top of it. If you look at Conwy Town, a place just down the road, in the perception of most Q397 Chairman: Having been on the beat, Chief local people it has been traditionally, for the last few Constable, with Inspector Schwarz in Rhyl during years, run by a group of young teenagers. It is not my police parliamentary scheme, I can attest to the any more. I have now had dozens and dozens of fact that he is very committed to his area. But he is letters in from people in Conwy saying thank you, not the only one. because we have got a grip on the policing; we have Chief Constable Brunstrom: He is not alone. got a grip of the yobbery; we have taken a much Chairman: That is good. That is very encouraging. tougher line through our Dyna Ddigon campaign: that’s enough; enough is enough; draw a line in the Q398 Mrs Williams: Going back to yesterday again, sand; you will not be allowed to behave like that. I the Committee went to your temporary police think there is real excitement about the future. station in Bangor. We were, quite frankly, appalled Unquestionably we are getting on top of yobbery by the conditions your oYcers are working under. I and many other aspects of antisocial behaviour. I would like to know really how they can possibly think the future looks extremely bright. provide the service you would expect to the public of Bangor and the area under those conditions? Also, Q395 Mr Edwards: Do you think you have the tools we were told that, come next July, there is a real to do the job? possibility that the current accommodation they are Chief Constable Brunstrom: Yes, I do. In fact, I think occupying will be demolished and you will have to be there is a danger of us having too many tools to do looking for another temporary police station for the job. My colleague counted something in the them in Bangor. Why could this not have been order of 280 new criminal oVences since this foreseen when planning permission was given by the Government came to power in 1997, and I think I am council? We know a new police station is under way, tempted to say to the Government, “Enough is but the old police station was demolished and they enough. How many more oVences do I need?” In are housed in temporary accommodation, which, answer to your question: yes, we have the tools to do quite frankly as we all said yesterday, is simply the job, we have the resources to do the job. This is appalling. much more about belief, organisation, commitment, Chief Constable Brunstrom: It is not a pretty sight, is ownership than it is now about new law and new it? I know exactly what you mean. It is completely money. If you have spoken to Roly Schwarz, the unacceptable. Some of the good news, by the way, is inspector in Rhyl, you will know what I mean by that we started work on the new police station in that. A guy who passionately believes in ownership Bangor yesterday. It should have opened in of his territory: he owns the territory, in the best February this year. Had that happened, we would possible way; he owns the problems; he feels the not be having that discussion. The arrangements problems personally; he regards himself as made for the temporary police station were intended responsible, in the very best possible way. You must to be extremely temporary, and, for reasons have felt his passion. That passionate commitment completely outside our control—to do with the to place is what I think holds hope for the future. redevelopment of Bangor, which I would rather not Policing is no longer tied to a slotted time round the go into here because they are outside our control— Welsh Affairs Committee: Evidence Ev 93
30 November 2004 North Wales Police we have been stuck with an unacceptable temporary We have a meeting pending early next month. We police station. As I say, the good news is that work can actually get to see ministers, who have real has now started on the new one and by August next power and influence within the Government of year we will be into it. The temporary police station, Wales Act to make a diVerence. That simply does of course, is only part of the police facilities. We have not happen in England, because society is so much a very nice administration block up in Parc Menai at bigger. London is much more remote in every sense, the top of the hill. It is a very short stop-gap measure, not just geographically, and the whole world is just the operational front end of the service, and I am diVerent. It is much more successful, I think, being ashamed of it. I know exactly, because I have been the same sized fish in a smaller pond here in Wales, there myself, I have worked in Bangor— because of the influence one can bring to bear or we can bring to bear as a group of police forces in Wales Q399 Mrs Williams: When you say Parc Menai, that on the development and delivery of public policy. is not an easy place for the public to get to. It is Overall, I think I am extremely pleased with the way out. current set up here in Wales. Chief Constable Brunstrom: It is not a public facility; it is for administrative staV some way out of the town Q401 Mr Edwards: You referred to meeting with centre. We were determined that when the town ministers for social justice and the civil servants who centre was being redeveloped—which of course is work in that area, but they may not have the not of our making in the first place—the police front expertise in crime reduction which Home OYce end, the operational front oYce side of the police ministers and oYcials have. Does that create any service, did not disappear out of the town centre. diYculties? Our new police station is in the town centre, in a Chief Constable Brunstrom: Yes, of course it does. prime location, and we were left with very few The Welsh Assembly Government and civil service options. I share your horror of the facilities currently is a young organisation and it is growing into its role. available in Bangor—as, I can assure you, do the In my view—and I can only speak personally, as a staV. I guess, if you asked them, they would have citizen now—it is going to grow and mature and told you the same thing. It is not good enough. But Wales is better oV with an Assembly than without. the problem is not directly of our making and there That is my personal view. It is my personal and is now light at the end of the tunnel. We will end up professional view, but it is only my view—and of with a very much better building for us and for the course it is growing into this role. But, because it is public. Although it is not good enough, I have to a small society and the Assembly is closer to its say—and I have been to Bangor and worked there public than Parliament in London can possibly ever and I walked the beat with the local oYcer as be, I think that is good news overall. I think if the recently as two weeks ago—it does actually work. It Assembly sticks to its guns and believes what it is is not pleasant, it is not a pretty sight, but it is not doing—and my perception is that they do—things leading to any diminution of our service to the will get better and better. So I am a big supporter. people in Bangor. Q402 Mr Edwards: What do you expect of Members Q400 Mr Edwards: Could I ask about the of Parliament in your force area, in their relationship relationship you have now with the Welsh with the police and on areas of their work which Assembly. It must be significantly diVerent for a impact on policing? chief constable in Wales and chief constable in Chief Constable Brunstrom: I think the same as I England. Could you tell us something about your expect of all the other partner agencies, in the widest relationship with the Assembly and whether you feel possible sense: more engagement. It is a question Mr the Assembly should have more powers with respect Caton was asking me earlier. I do not see Members to the police. of Parliament directly enough engaged in this, as a Chief Constable Brunstrom: In a nutshell, I think I generalisation—and I do not restrict that of North have a better job in Wales than I would have in Wales; I would say that is true across the whole of England, because of the Assembly. Although England and Wales. I think quality of life and policing is not (yet) devolved to the Assembly, the antisocial behaviour—which are possibly two sides existence of the Assembly is enormously pervasive of the same coin—are of increasing importance in throughout the whole of my work because almost the public mind. Their importance has raced right up everything else that we deal with in social matters is to the top of the agenda. I can see the Prime Minister already fully devolved to the Assembly. Therefore, saying that and I can see that lady I was talking to the Welsh Assembly Government and the ministers you about in one of the estates in Flintshire saying and the civil service throughout Wales—largely still the same thing. My life is blighted or improved by based in CardiV—are very influential, and impact antisocial behaviour, quality of life type issues. I do greatly on what we do. Almost all our partner not think parliamentarians have been anything like agencies are already fully devolved. So the Assembly enough engaged in this. I think there is a huge is a big part of my life. One of the enormous benefits amount that can and should be done. I think all of that brings is, because Wales is only a small society, you deal with it through your constituency matters, only three million people, I get to see ministers. I your postbags, but to my view—and I am simply know quite a lot of the ministers rather well, we meet answering your question—that is not enough. You each other regularly, we meet the ministers for social can and should be doing more. You should be more justice as a group of chief constables every quarter. influential, more engaged. You need to know the Ev 94 Welsh Affairs Committee: Evidence
30 November 2004 North Wales Police detail. You need to do what you were doing Q404 Mr Caton: Could we look at a couple of yesterday, going out on the streets with police funding issues. From what we have already oYcers, seeing life from that perspective, because discussed, increased focus on community issues and then I suspect you will be able to discharge your services must imply additional financial duties in London that much more eVectively, and, I responsibilities for the National Assembly of Wales. suspect, you could be more influential on the Do you think that as a result the Home OYce development of partnerships locally if you were revenue spend in Wales or the funding formula more experienced, more knowledgeable, more should be reviewed? involved in those sort of local processes. I would Chief Constable Brunstrom: There are all sorts of welcome you all in, please, because you can do diYculties that arise from the current settlement. nothing except add to it. The Government of Wales Act has all sorts of unexplored corners, many of which have an impact on funding. A very good example is the PFI scheme. Q403 Mr Edwards: In my own personal experience, The way in which PFI money flows between London I have had far more involvement in policing issues in and CardiV and North Wales has never been the last year or so than I have in the previous seven adequately resolved. I have a proposed PFI scheme or eight years. Maybe that is part of the changed here. Were I Chief Constable of Cheshire, we would environment and culture that we are all working to. have built the buildings and be in them by now, but Finally, could I ask you about something you raised because we are in Wales we are not because there yesterday. In our meeting yesterday, you expressed have been all sorts of interesting things floated to the concern about being involved in discussions with surface in trying to negotiate through two diVerent magistrates regarding problems surrounding administrations, one of which has a stronger belief in ACPOs. In her evidence this morning, the chairman PFI than the other and all sorts of unexplored of the North Wales Criminal Justice Board indicated nuances in the legislation. I have referred already to that a meeting on this subject has already been the fact that our budgetary process, which is largely arranged with the partners, including the police. the same in England and Wales in policing terms, is Could I ask for your view about this? running out of sync. We are still not able to say what Chief Constable Brunstrom: Yes. That is what able to say what our government grant is going to be should be happening. I am delighted that it is taking for next year. The Assembly works a month or two place. I think there is a much bigger issue here, in advance of that, so that local authorities have though. The bigger constitutional issue is with those already gone through their iteration with the who sit in judgment, judges and magistrates in our Assembly as to what their funding process is going society particularly: What do we expect them to do to be. There is a debate ongoing in England and to keep in tune with public mood, with government Wales at Home OYce level at the moment as to what strategy and, of course, with the overriding interests the funding formula is to distribute money between of justice—which do not necessarily coincide with police forces. The Welsh forces argued with some of the public mood? I think the best example of that is our colleagues in England a few years ago that there that it is very clear there is an overwhelming majority were significant extra costs attached to sparsity, to in the UK who would wish to see hanging as a sparsely populated rural areas. That is just as true in penalty, and it is not going to happen because it is Norfolk as it is in North Wales. That is a much more now contrary to European law. I think that dilemma important issue in Wales because more of our is a real one—and I am on the side of European law. country is sparsely populated than it is in England, So we cannot let our public opinion necessarily run and the sparsity money is not keeping pace with riot through our society. On the other hand, I am modern development. It has not been upgraded for not satisfied that those sitting in judgment are two or three years. That runs a significant risk of suYciently closely attached to trends in society. It is disadvantaging most of the Welsh police forces. I very diYcult, of course, because the last thing you could go on and on. There is significant complexity, want to see, as a democrat and a parliamentarian, is some of it very unhelpful, attached to the fact that we are not devolved and most of the rest of Welsh life the police force influencing the judges. That is a is, and some of the money, even though we are not police state. Yet there needs to be some way of devolved, goes through the Welsh Assembly creating a debate that engages not just the Government. Bearing in mind, I repeat, that I am a professionals involved in criminal justice, as our big supporter of devolution—but that is not the local Criminal Justice Board does, but judges, point; the point is it is very confusing—it seems very magistrates, local people, in the way that community strange to me that I am in a service which is not policing is now increasingly intending to do. I think devolved and the Government has made it very plain there is a very interesting debate to be had—and I it has no intention of devolving it—and that is a think it is only really starting now—as to how does matter for them, not for me—and yet our funding is society influence the judiciary in the broadest sense, not the same one side of the Welsh border than the and vice-versa. How do we achieve that? I think other. That seems odd. there are some very, very thorny issues. We need to find mechanisms which we have not used in the past to talk to each other in ways that are appropriate in Q405 Mr Caton: You mentioned the problem of a democratic society ruled by law. Some of those annual funding in your recruiting programme. Some issues are very, very hard indeed, but it needs to Welsh police have also expressed concern about the happen. impact of short-term and centralised funding which Welsh Affairs Committee: Evidence Ev 95
30 November 2004 North Wales Police is inadequate to deal with the force’s local and the moment. You cannot make that case on long–term problem solving requirements. How do operational grounds. You can make it on other you think this should be addressed? grounds, though. For instance, the police service in Chief Constable Brunstrom: I think the Government New Zealand, a country the same size as the United should do what it said it was going to do. One of the Kingdom, has one unified police service, a national things the Government has said in the past is that it service, in an environment which in legal terms is tended to put policing onto a longer term financial very, very similar to the UK. It would be perfectly footing and to give us at least three planning possible to have a Welsh police service, if you horizons. They never have. I am sitting here, it is wanted to, we could make it work, but it would be a December tomorrow, and I do not know what my political decision to do that. There are no budget is going to be next year and I have not the operational grounds for it at all. The money you foggiest idea what it is going to be the year after that. would save would be piZing. It would cause It is impossible for me as chief executive to plan enormous lack of focus on delivering operational strategically in those circumstances. It is just results, while we all sort of threw our cards up in the guesswork. It does not have to be like this. There are air and reorganised, but it could be done. There is a no fundamental rules here to prevent it; it is just strong body of opinion in UK policing that big is simply the way our society is structured and the way beautiful, big is better, but it is not underpinned by that the Government and the Treasury operate. One any worthwhile research evidence, it is just a Y of the things that makes it very di cult indeed to viewpoint. My vote is to leave it alone because it is deliver is short-term funding. We have a plethora, a working rather well. What is broken? What are we surfeit, of short-term funding options, coming out of trying to fix here? What is the evil that we are trying government, particularly in London: “Someone has to undo? You cannot make an argument for found a pot of money, you’ve got a fortnight to turn reorganisation at the moment based on operational this round”—or sometimes 24 hours, and I am not performance and improvement. You could only joking. You put a bid in, you get a pot of money that make it on political grounds, so my opinion is: lasts six months and then runs out. This is just knee- “Leave it alone.” In terms of governance, there is an jerk and we can do better than this, and I come back interesting White Paper out at the moment on police Communities to the best example I can think of, reform part 2, as it were, which makes some First, of somebody doing better than that, so that we proposals. I think most of the change in governance are in here for the long game. Of course, to do that, ones are going to be left until after the potential you have to be very determined that you have that election. Hazel Blears, the police minister, was up money and you want to keep spending it. We are in here the other day visiting us in Flint. One of the a ridiculous situation of having money parcelled out things she said when she left was, “You don’t really in small chunks on a temporary basis for conflicting priorities. It really is a bit of a mess. But the key thing need a police reform act here, do you, because you I would wish is a longer-term planning horizon are doing what we want to see now?” I said, “You financially. The Government cannot move the are dead right,” because we are. Where the position of the police significantly. It is not going to Government is intending to take this is where North double or halve our money. It must be possible. It Wales Police already is, by and large, and we do not cannot be beyond the wit of human kind to plan the need really any significant governance changes to size of the overall police budget for three or four achieve the Government’s strategy. I am not sure years into the future rather than leaving us all whether that is true everywhere. I guess it is not, guessing. It really is inadequate. otherwise the Government would not be proposing to legislate. But, again, I come back to the fact that I am not really very convinced that it is broken. I Q406 Mr Caton: Moving on to structure, what are am, broadly speaking, content with the existing your view on organisation and/or changes in processes. structure and governance for the police in Wales? Chief Constable Brunstrom: There is a lot of nonsense talked about force amalgamations. The Q407 Mr Edwards: Your colleague in Dyfed-Powys key issue is delivery of service. As I was indicating does not agree with that. In evidence to us he said previously, how does one deliver all the services a there is no case for maintaining Gwent Police. police force needs? There are lots of good examples Chief Constable Brunstrom: I am not going to make of big forces delivering well and badly and small the same comment to you. I have said my piece. I did forces delivering well and badly. The only evidence indicate that there is debate in the police service. I there is that is worth a lie indicates that small is know other chief constables who think that small better than big in terms of delivery because it enables forces should go on some matter of principle. They better leadership, it enables a close contact between are not wrong. It is healthy to have this sort of the front end of the organisation and the back end. debate, it really is. Of course I have read his But it is not an open and closed case. There is evidence, and he rightly did not say to you that there overwhelming evidence that messing around with was any evidence to support that position. It is structure is not worthwhile unless the benefit you simply a position. And it is not wrong, but it is not can perceive at the end of it is very substantial my position. He and I do not agree on that point and indeed, and no such evidence exists in policing. I we are still friends. But there is a tendency to pretend would argue very strongly that there is really no case in parts of British policing at the moment that to be made for messing around with the structure at evidence supports big forces, and it simply does not. Ev 96 Welsh Affairs Committee: Evidence
30 November 2004 North Wales Police
Q408 Chairman: Is the current situation with is an interesting case and it is one worth debating, accountability of police forces adequate, do you but my view is it is not broke so we do not need to think? fix it. Chief Constable Brunstrom: I think, yes it is. The Government clearly thinks that it is not. One of the Q411 Chairman: Do you think the National things you will see in the police reform White Paper, Assembly should have some oversight and the latest iteration of it, is a new concept called a accountability of policing? trigger mechanism, to enable a local person to Chief Constable Brunstrom: My view is already on trigger a complaint and some sort of process to record. I think policing should be devolved to the change direction. We are not quite sure how that is Welsh Assembly. I think it would be a significant going to operate and I am not personally convinced simplification and a significant improvement that it is necessary but it would not cause me any because of the issue I have talked about previously problem because what we have been talking about about being closer to governance. But that is only fundamentally with community policing makes that my view and there is no indication at the moment a given. If you are not content with the way your that the Government intends to go in that direction. area is being policed, there is some structure to There is a lot of nonsense talked about it. We have a enable you to say so and to have a touch on the tiller. completely devolved policing system in Scotland as Personally, I think the accountability mechanisms at a constituent part of the United Kingdom, we do in the moment are perfectly adequate. But, then, I am Northern Ireland, and it seems to me to work not the right person to take advice from, because I perfectly well. It could be made to work. Whether it would say that, wouldn’t I? These other issues surely should be made to work must, again, be a question must be for you as elected Members of Parliament for Parliament and not for me, but I would be and not for me. entirely content, indeed I would prefer, for policing to be devolved. But that is only an opinion. We are not intending in the police service in Wales to Q409 Chairman: But you usually have an opinion, campaign on that because we have no right to Chief Constable. campaign. All I can do is express an opinion. Chief Constable Brunstrom: And, as I have said, my opinion is it looks to me as if I am pretty accountable. Q412 Chairman: Once again, it is not broke. Chief Constable Brunstrom: Well, it is not broke, but, as I hope I have indicated, there are some rough Q410 Chairman: What is your view about locally points. There are some illogicalities about the way elected boards? we work together with other agencies who are Chief Constable Brunstrom: I think they have devolved. There are diVerent tensions emanating enormous merit. I think I can see a significant case from policing from London than from CardiV.As to be made that police authorities are generally you have heard, the First Minister here in Wales has speaking, under existing legislation, not suYciently said he wants to put clear red water between his democratically accountable, they are very remote Government and that in London. That does not organisations. It is very diYcult to see as a member cause me any significant issues, but there is a point of the public even that they exist or what they do. to be made there. But I think I would agree with you, And this is not new, this is in the research evidence. in broad terms: while I would prefer it, I cannot say I mean, it is very plain that police authorities are it is broke and therefore ought to be changed, but I diYcult to understand, to get hold of. There are pros would simply prefer that it was. and cons to having elected boards. There are pros and cons to having elected sheriVs, I think. It can Q413 Mr Caton: If policing was devolved, do you work quite well in some circumstances. But I would foresee any problems with co-operation? You have come back to this: I am not really very convinced already mentioned the Merseyside and Manchester that it is broken. There is a general tendency in our areas. Similarly in South Wales there is co-operation society at the moment to change everything every with the Midlands and the South-West. If you were five minutes. I lived in a house in Manchester once a completely separate police service in Wales, would that had been in Derbyshire for over a thousand there be any problems in maintaining that sort of co- years, since before the Norman Conquest, and since operation? 1933 we have changed the local government Chief Constable Brunstrom: I do not believe there boundaries six times. What was wrong with the would be. If you take out the Welsh context, and previous thousand years? It seems to me to be a facet take it to Scotland, where the position already exists, of modern life that everything must be changed at the moment there is eVectively no problem every five minutes. You have to be very certain that with cross-border co-operation and collaboration there is some wrong to be righted before you change between England and Wales and Scotland. I have governance structures. I think there is an interesting full police powers in Scotland and Scottish oYcers case to be made that police authorities are not have full police powers in England and Wales, and suYciently democratically accountable, but that is the UK has not come to a grinding halt and the sun really not a case for me, because I am subject to the is going to come up tomorrow. On the other hand, authority as a police authority; it really is a case for Scottish Parliament is sovereign in internal matters Parliament. If Parliament is not content, then and it could enormously change the situation of its Parliament should do something about it. I think it own volition any time it wanted to. Of course, if you Welsh Affairs Committee: Evidence Ev 97
30 November 2004 North Wales Police go down this route, potentially huge diYculties accept—that we are bumping on the bottom in terms could be caused. I remember, very shortly after the of deaths. We are the lowest in Europe in terms of Scottish Parliament set oV, that I heard the Prime deaths and serious injuries but there must be other Minister say something absolutely wonderful in ways than declaring dangerous roads and then demolishing a reporter. Something had happened in putting mobile cameras in a 30 mile-an-hour limit. the first week of the Scottish Parliament, they had Chief Constable Brunstrom: You did not let me done something, and Tony Blair was up in Scotland finish, with respect, sir. The fact is that there is a and somebody had stuck a microphone under his Government PSA target, set by the Government for nose and said, “This is the UK as we know it, how the Department for Transport—not set by the can you let the Scots do this?” and he said, “Well, police, set by the Government, given to me—and the that’s what we set this Parliament up for, so that they criteria for that are people killed or seriously injured. could do things diVerently” and that was the end of The fact is that year on year fewer people are getting that debate. I do not think necessarily that killed or seriously injured on our roads, including in devolution of policing to a Welsh Assembly or North Wales, and the fact is that this year so far— Welsh Parliament would cause any significant and the figures are big enough to use percentages— problems at all, but it could do. You could say very I can give you the actual figures if you wish because confidently, if it was retained in London that it I have them here—it is another 7% decline. Within would not because the Parliament in London would that, you are right to point out that deaths—deaths, not allow it. As soon as you let go, you run the risk as opposed to deaths and seriously injured—have of the person you have given it to doing something not declined. There are a number of reasons for that. you do not agree with. You pays your money and One of the most obvious is that drink-driving is you takes your choice. going up again. Another of the most obvious is the people getting killed in single vehicle collisions on Q414 Chairman: For the sake of completeness, we high-powered motorbikes—and there are a number have to mention Arrive Alive. As you know, I am of factors there, some of which are speed related and very concerned about the eVect on public relations some of which are not. But the overall total, as a fact, on the way speed limits are enforced. We have had is that deaths and serious injuries are going down this conversation many times privately. You have (the K-SIs) and it seems extremely likely now that been making great strides in working with the public the Government will meet its 2010 targets for a 40% in getting good relationships with the community reduction and that is something of which we should beat managers and so on, and it does worry me that be extremely proud. We already have the safest there is serious damage being done with the way they roads in the world and they are getting safer. We are being enforced. Without going into the detail, I have gone down the route in the UK of identifying think fixed cameras, provided they are in the right collision hot-spots. We now have, in very simple places, work very well—and perhaps more use terms, every identifiably collision hot-spot in the should be made of them—but the mobile cameras whole of the United Kingdom covered by a camera are not in the right place. You may want to disagree safety scheme of one sort or another—some fixed, publicly with me on that one. The figures are not some mobile. We have the best results in the United coming down either, and, again, we will be looking Kingdom here in North Wales. On the routes where at ways of tackling those. On top of that, of course, we are using cameras, both fixed and mobile, our we have had this recent fiasco with 6,500 in incorrect collisions have gone down 68%, as against 7% for the paperwork for penalties. This is a real problem. I whole of North Wales. So we are getting something really do feel that the great strides that have been very right indeed—and I do not back oV this in any made in police public relations are being damaged sense at all. In terms of where we are going to go with by this. I would like to hear your views on this recent it, there is no doubt that on the future deployment of fiasco and future targeting for mobile cameras. cameras and other means to keep people alive on the Chief Constable Brunstrom: Yes, indeed. Two or roads—because you and I will agree that the three points. Could I, for the public record, correct majority of people dying on roads do not die something you have just said, because the figures are specifically and only because of speeding, they die coming down. In fact, as of the end of October this for a number of reasons—we are going to have to year, so slap bang up to date—and it is not the end change the way that we deploy cameras. Because if of November yet, so I cannot give you November’s we go only for those small number of identifiable figures—people killed or seriously injured in North collision hot-spots and eliminate them—which is Wales are down another 7% on top of the decrease broadly speaking what has happened—we are then last year. ignoring all the rest of our roads where people continue to die in diVerent ways. We run the risk, for Q415 Chairman: I am sorry, I have to tackle this. We instance, of ignoring motorcyclists who fall oV in have had this out and you cannot do it on a month going round left-hand bends within the speed limit by month basis: the figures are too small. In 1994 or drive into opposing traYc or a wall or a telegraph there were 49 deaths on the roads on the roads in pole and kill themselves So there is a whole range of North Wales; there were 48 last year. We are other things that need to be done, but the starting bumping on the bottom between 40 and 60 deaths. point for this, sir, I must say—and I will come back You cannot say they are going down in that way. to the fiasco in a moment, and I think the word used Using a broad percentage on short spans is not good by the papers is entirely appropriate—is that, in enough. I think we have to accept—you will terms of the actual figures, the fact is that deaths and Ev 98 Welsh Affairs Committee: Evidence
30 November 2004 North Wales Police serious injuries on our roads are coming down. national publicity campaign, similar to that which Something is going very right. I think I would agree we use for drink-driving, to say “Don’t speed with you, that we cannot be certain exactly what is because it is dangerous.” We do not do that. We going very right, but something is going very right. have short-term cheap campaigns that do not change the public culture. The solution to speeding Q416 Chairman: Without having a graph here and a is not enforcement; it is persuading ordinary people chalk board, I cannot explain why the Government not to break the law in the first place. Enforcement, target is being met, but it is very easy to explain in my view, is a failure. Every fixed penalty ticket is because year on year they are going down about 4% a failure. It would be much better if we could not give totally, not to do with enforcement but to do with any out because nobody was breaking the law. You better brakes, better steering, better roads, more cars did ask me about the fiasco that appeared on the on the roads and therefore slower speeds anyway. front page of the Daily Post, I think, last week. In That Government target, we are going to hit it a nutshell, due to a clerical misunderstanding, anyway. I think there are other things we ought to be something like 6,500 people have been convicted of doing. We ought, as a government, to have a speeding where the due legal process has not been campaign like the Clunk-Click campaign to tell followed to the nth degree and should have been. I people to go slower. should point out in opening that none of the Chief Constable Brunstrom: I entirely agree. evidence in those cases is wrong and we will not be giving up on any of them or handing the money back or anything; we are seeking to reprove them to the Q417 Chairman: I think we should have more fixed necessary legal standards. I say necessary because cameras outside schools, for example. the judge who found this out was absolutely right in Chief Constable Brunstrom: Again, I agree. what he said: his criticism is entirely founded and we deserved it. But that does not mean the people we Q418 Chairman: But the mobile cameras should be were convicting were innocent. So there is no the real hot-spots. You mentioned hot-spots are challenge to the evidence; it was more than a paper coming down, but the sites with the mobile exercise, because it is a necessary thing to do, but it cameras—and they are not fixed, but there are areas is a fiasco. I very much wish that it had not where mobile cameras can actually sit now—are not happened, but it does not mean that we convicted actually by the dangerous spots. I know the reason: innocent people. A number of those 6,500—I do not it is because they are dangerous. know how many yet, I am afraid—have already Chief Constable Brunstrom: We could, I am sure, pleaded guilty to the oVences and their cases will not debate this for months—and I am sure we are going be re-opened. We are writing to them all with the to. The whole of Wales is working on the same set of support of the Crown Prosecution Service and the rules given by the Government. The figures are court here, because it is a partnership, to put this equally good everywhere and they are not as good in right. We are giving people the chance to have their other jurisdictions, where they have equally good case reheard and done properly. We are not giving brakes and equally good new cars and equally good people the chance to get oV. So we will be pursuing seat restraint systems. There is something this—as I believe we ought to, because, in our view, significantly diVerent about the three countries, each one of these people has broken the law, and we Sweden, the Netherlands and the United Kingdom, will seek to have them convicted through due that are going down the same route of Government- process. I very much wish that we had not done what led processes, with setting targets and setting up we have done, but we did. I am glad the judge caught regimes that work. So we are doing something very us at it, because it was a necessary check—and we right in the UK—and we have not finished yet, come back to an accountability mechanism. I would because even if we reduce it by 40% we are still going rather it had not happened, but it has, and we will to have 2,000 people a year killed on our roads as fix it. opposed to almost none on our railways. If you were Chairman: Thank you. At least we will end on the to ask me, the one thing that I think needs to be agreement that enforcement is not the whole answer changed, and I am in debate with the Government and we need other means to deal with that. Thank over this—you and I have put our fingers on the you very much indeed for your answers. It has been same thing—is that we ought to have a long-running very useful session. Welsh Affairs Committee: Evidence Ev 99
Wednesday 15 December 2004
Members present
Mr Martyn Jones, in the Chair
Dr Hywel Francis Mrs Betty Williams Julie Morgan Mr Roger Williams
Written evidence from Bridgend Community Safety Partnership is printed on Page Ev 344 and written evidence from RCT Community Safety Partnership is printed on page Ev 336
Witnesses: Mr Keri Lewis, Chief Executive, Bridgend County Council and Chairperson of Bridgend Community Safety Partnership “Safer Bridgend”, and Mr Brian Greaves, Chief Superintendent, Rhondda Cynon TaV Division, Co-chair of Rhondda Cynon TaV Community Safety Partnership, examined.
Q419 Chairman: First of all, could I welcome you Mr Lewis: I am happy to lead on that. I think there both to the Select Committee and thank you both is a variety of ways in which partnerships can and for the very detailed evidence you have given us in should engage with the local community and I think writing. I would also like to note that the Committee those footprints perhaps diVer depending upon recognises your many achievements, success and diVerent parts of the principality. For example, in innovations. We will talk about those. We also want Bridgend we have a local radio station, Bridge FM, to talk about the problems, not surprisingly, and we and we do use them as a sort of shop window to would like to focus on some of the obstacles that you engage on thematic issues concerning the work of face and how you think the partnership working can the Crime and Disorder Partnership and so we make be improved. Could you firstly just introduce both contact in that way. The local authority, which is yourselves for the record, perhaps starting with you, quite common in Wales, has its own county borough Chief Superintendent. newspaper which reaches every household Mr Greaves: I am Chief Superintendent Brian intendedly and that is published on a quarterly basis Greaves. I am Divisional Commander of the and we have a set slot within that where we can Rhondda Cynon TaV Division in South Wales solicit views and the feedback is pretty positive. But Police. I am also the joint chair of the Community around that I think you make a very powerful point Safety Partnership. It probably would be remiss of that there are hard to reach people and I think it is me if I did not say at this point that my former joint penetrating into those areas. Focus groups help a chair, Dr Kim Riley, has recently left the County of great deal, I think, in that sense, but they do tend to Rhondda Cynon TaV and has moved to Hull city be driven by certain key people. I think you are and I think it would be proper for me to say that he absolutely right there. So I think that is a challenge, can take a great deal of credit for some of the work as I see it, for Bridgend and I think that requires a lot which has actually been done over the last four or of preparation. five years in Rhondda Cynon TaV. Mr Greaves: A lot of the same things that Mr Lewis Mr Lewis: Good afternoon, Chairman. My name is has mentioned there apply in Rhondda Cynon TaV, Keri Lewis. I am the chief executive at Bridgend but I think, if I can speak as a police oYcer, County Borough Council and I have held that post obviously every crime that we receive, every since reorganisation in 1996, and I am chairperson reported crime, every incident that we get called to of the Bridgend Community Safety Partnership obviously gives us an opportunity to consult with the known as “Safer Bridgend” and I am also the chief public. Obviously whatever the problem might be spokesperson for Welsh chief executives on that is being reported gives us an opportunity to see community safety issues. that problem from the perspective of the public and Chairman: Thank you. We can discuss priorities I think we do carefully monitor the crime incidence now. to get a good feel of some of the problems that we face in our local communities. On top of that we regularly have open days at police headquarters, Q420 Mrs Williams: I would like to discuss national within police stations across the county of Rhondda and local priorities in fact. The recent White Paper Cynon TaV and we take the opportunity on those puts community engagement at the heart of both the occasions, obviously, to issue questionnaires to get policing and community safety agenda and you both feedback from the public. Similarly, we are involved understand the need for local engagement and in a lot of forums, for example the Town Centre consultation in order to achieve eVective Forums and the Licensed Victuallers’ Association. partnership. Could I ask you, how do you consult So there are many diVerent forums that we actually with the community, for instance through support and we do get a great deal of feedback from questionnaires, or do you focus on groups, and can those areas as well. So I think that, combined with I go on to ask how can you be sure that you are not the attendance at local community meetings, does just hearing the opinions of community leaders as give us a good opportunity to get a considerable you go about this consultation exercise? amount of feedback on local policing issues. Ev 100 Welsh Affairs Committee: Evidence
15 December 2004 Mr Keri Lewis and Mr Brian Greaves
Q421 Mrs Williams: Do you both feel that the Could I ask, are all national targets appropriate in publicity methods that you use achieve in the sense Rhondda Cynon TaV? I will be asking the same that you are able to get to the hard to reach people question of Mr Lewis. that you mentioned, Mr Lewis? Mr Greaves: As it happens, I think I have got an Mr Lewis: I would have to say not at present. I think issue about nationally set targets because I think it is there is more work that needs to be done there in important that we respond locally to local needs, but terms of identifying those latent concerns that exist as it stands at the moment the national targets that within communities. Where we have done a needs were set are relevant to Rhondda Cynon TaV.I assessment community safety has always come up as think the main targets revolve around auto crime, a very, very high concern amongst local residents burglary, violence and drugs and outside burglary, and the fear of crime is even greater than the act of perhaps, the other three areas, the classifications crime itself and one of the greatest challenges of my completely relate to Rhondda Cynon TaV. We can partnership is to convince people that the crime rates improve. But if I go back to burglary, for example, in Bridgend are falling and therefore people should on a normal day in Rhondda Cynon TaV we have not socially exclude themselves in the fear of crime. got a tolerance of about three burglaries. That is in Now, some of those hard to reach groups are a population of 250,000, 100,000 households, and if particularly the elderly and there is a challenge there we have any more than three burglaries in a day we in getting those messages across to those people know we have got a problem. That is our target level because frankly those individuals are probably the and at the moment we are on target, we are under least likely to be subjected to crime in my target in fact. So my view is that once you get to a partnership area than others, but due to the fear of level you could be committing resources crime they are socially excluding themselves. So it is unnecessarily. For example, if we are being targeted a major challenge to get there, to those hard to by central government to reduce burglaries still reach groups. further it could be a disproportionate focus of our resources on to something which would be almost Q422 Mrs Williams: We have diVerent perceptions, impossible to reduce still further. I do not know if I perhaps, about hard to reach groups in society. have fully answered the question there, but I think What would be your definition? the main thrust of the Government’s national target Mr Greaves: Well, I think we look at sort of ethnic at the moment is to some extent relevant to RCT. minority groups and perhaps other types of groups Mr Lewis: I think there is a clear concern nationally like that, maybe gay groups, perhaps, who do not and at local level with matters relating to community necessarily easily engage with the police service or safety. As I said, in every needs assessment we do it with the local authority. As I say, we, very similar to is there and therefore I think it is how one interprets Mr Lewis here, work very hard to try and market the that into the targets and the priorities that one sets. Community Safety Partnership and if I am being I think my view is that yes, in Bridgend I think the honest I would suggest a lot of the public do not template of national priorities does fit squarely in the really understand what the Community Safety main—and I say in the main—with the priorities of Partnership is all about, however hard we try. We the partnership, but I have to say that there are have just recently sought to employ a marketing perhaps some nuances where I feel that perhaps oYcer because we think it is really important. Very some flexibility in terms of target setting and much like Bridgend, our crime levels are reducing, therefore some local indicators could be brought to our incident levels are reducing. It is a very safe bear which could be used to persuade government place. If you look at Rhondda Cynon TaV and funders that funding streams should come towards Bridgend compared to other national areas the that. The classic in Bridgend is our night time crime levels are extremely low, yet that is not the economy issues. There are grave concerns around perception of the public and we have got a big job to matters of night time economy within the town do really to convince them that that is the case. As I centre of Bridgend and the Divisional Commander say, we are very conscious of the hard to reach and I continually engage on those matters and groups. We have got a community race relations clearly as a local authority through licensing powers group to try and draw in as much as we can, but we can facilitate that through the aegis of the there is only so much you can do. Sometimes these partnership. But that to us is an immense local hard to reach groups are almost too hard to reach, priority and whilst we could set local targets around but we do work hard at trying to achieve that. that, I do not think the national target setting would assist us in terms of the funding streams to support that. Q423 Mrs Williams: Thank you. Is there anything you would like to add to that? Mr Lewis: No, I think I would endorse every word Q425 Mrs Williams: Is there any conflict, would you of that. say, between local and national targets and priorities? Q424 Mrs Williams: Could I ask Chief Mr Lewis: Personally, I would not say there is a Superintendent Greaves, in paragraph 3.1 you conflict but I think there perhaps could be a greater mention that the targets and priorities for the 2005— degree of homogeneity, synergy between the two. 2008 strategy will be based on public consultation, Mr Greaves: Could I just say as well that I think the while also taking into account the national policing majority of our national targets tend to be plan and the national intelligence model principles. quantitative and not qualitative, and that is another Welsh Affairs Committee: Evidence Ev 101
15 December 2004 Mr Keri Lewis and Mr Brian Greaves issue for us really on a local basis. It is not just about are becoming sophisticated enough now to be able to bean counting, it is about the quality of service that give that a great deal of meaning and there is the people are actually given. So I think there is an potential for it to really work and happen. important point to be made there as well. In my view, target setting should be tiered to some extent Q428 Dr Francis: Could we move on specifically to and that is what we are trying to do in the next targets and performance. You may have answered V strategy within Rhondda Cynon Ta so that we can some of these questions in part, so I apologise for look at the diVerent elements of support within the that. Could I ask you both to comment at which level partnership and how they can apply to the bigger you think national and local targets for Community target. An example of that might be the removal of Safety Partnerships in Wales should be set, UK vehicles, abandoned vehicles perhaps from the Government level, National Assembly level or environment, which might help to reduce sort of local level? anti-social behaviour and criminal damage. So it is Mr Lewis: In fairness to the Chief Superintendent, I about having a tiered set of indicators, I think, think he made a powerful point a little earlier where maybe looking at that national objective. he said that in one of Cynon TaV instances concerning burglary there could be a disproportionate allocation of resources to Q426 Mrs Williams: Do you believe there is conflict something which was not a local issue between local and national priorities? predominantly. I think that is a very powerful point, Mr Greaves: As I said, I think, earlier on, I do not and I think my take is that we should have a bottom think there is. I think the majority of targets are V up approach as well as a top down, not imposition relevant in Rhondda Cynon Ta but I think there but a top down view and they should meet are certain areas, as Mr Lewis suggests, where we somewhere in the middle intendedly, and there is no need a bit more flexibility to focus on the things reason why they could not. So to answer your which are priorities in that area. To some extent the question directly, I think there should be a far higher targeting at national level does actually conflict with level of consultation with Community Safety the National Intelligence Model, which suggests that Partnerships before there are the rolling out of if we survey the problems in our area and we look at national priorities because I believe, particularly in the things that are higher priorities that is where we Wales for reasons that I will take you to later in my should be applying our resources. Now, we might be evidence, there is a propensity of having a far more being told in Rhondda Cynon TaV that our focused engagement around issues like community priorities are perhaps drugs and yet nationally we safety in view of the succinctness of the institutional are being told we must reduce burglaries when our arrangements that exist within the principality. So I burglaries are what I believe to be—I hate to use the think those should be taken into account very words tolerant level but you could argue that they predominantly in the setting of national priorities are so low that it would be almost impossible to get and targets at national level. them down still further. It is not a case of ignoring it, Mr Greaves: I think to some extent I have answered you still monitor it, watch it and do what you can to this. I think really there is an onus on Government reduce it, but it does not necessarily drive the thrust to try and reduce crime and improve the quality of of your resourcing. life and anti-social behaviour and I think we have been very successful in the partnerships and the police over the last few years because we have been Q427 Mrs Williams: You both touched upon this sort of performance driven. So I think there is an earlier, but in determining the Community Safety onus upon national government to set targets. I Partnership strategy how do you harmonize local think the secret is, as I have said, about balancing and national priorities there? that in a tiered way through regional and local Mr Greaves: Well, as I said to you, I think what our structures to actually respond and I think we just plan is and what we have tried to do—and it gets need to be given a little bit more freedom, to some more sophisticated and more professional each time extent, of being able to apply priorities based on and this is now the third strategy we are about to local needs, but always supporting and contributing draw up—and what we are hoping to do now with to the broader targets which would be set nationally. this new strategy is a tiered approach to target setting. We will be looking at the national drivers, at Q429 Dr Francis: The White Paper institutes a new the National Intelligence Model, at some sort of rigorous performance regime for CSPs and the CSP objective for the partnership for the next three years performance targets will be diVerent from the police and that is important. That will come from the audit. performance targets. How will this new performance Then what we will do, hopefully, is look at the regime impact on the partnership arrangements in targets we have been set. We know already that, for Bridgend and RCT? example, we will be looking to reduce overall crime Mr Lewis: I think expectantly we, as a partnership, by 15% over the next three years, between 2005 and are preparing ourselves for a higher level of 2008, and I think then the sophistication is in performance management in terms of the looking at all the diVerent partners within the assessment of the outputs of the partnership and, to partnership to see how they can contribute to that be blunt, perhaps that is something that we have not overall objective and a tiered level of indicators been particularly good at historically because of the supporting the overall objective. As I say, I think we development of the partnership itself. As a Ev 102 Welsh Affairs Committee: Evidence
15 December 2004 Mr Keri Lewis and Mr Brian Greaves partnership we have diVerent partners with diVerent “singing from the same hymn sheet instead of trying cultures and diVerent constitutions which they have to harmonise a disparate set of sometimes clashing to run to, but to come together under the mantle of agendas.” Do you think this is necessary and the Community Safety Partnership. So whilst desirable? community safety is a priority issue, I think the Mr Greaves: I think it makes sense. It will give us issues of performance management probably have some focus. But I do not think we can get away from not been to the fore on the first two rounds, as they the fact that we have got diVerent organisations most certainly will have to be on the third. Now, joining this partnership and not all our objectives are through the crime audit, as with Rhondda Cynon necessarily focused on community safety. I think we TaV, we are moving towards the third community must not lose sight of that. But in terms of safety strategy and crime reduction strategy and community safety, yes, if there was one set of within that there will be some self-imposed very hard performance indicators which we all subscribed to edged targets that we will be subjecting ourselves to and we all supported, it goes back to my sort of as a partnership. Hopefully, those will be at least tiered approach, that each organisation is given an commensurate with national expectations and objective in order to achieve the bigger objective, possibly, if we can factor in local indicators, even though I think at the same time we must not forget higher. That will be my objective as chair of the that the health authorities have got other objectives partnership. and other targets which are not necessarily Mr Greaves: I do not think it is anything really too community safety related. much to worry about. I think it is important very Mr Lewis: I think the question also takes the much into the sort of coterminosity and actually thinking process to issues of devolved and non- doing our work in bite-sized bits, and I can speak for devolved functions and the degree of conformity in both authorities that from a policing perspective we relation to how those services are brought together police by ward. So our policing structures and our in a communal form within the aegis if the patrolled structure is based on wards. I suspect what partnerships to which they contribute, which is a the White Paper is actually edging towards is more matter again which I have released in my evidence community focus within those wards with more because I think there is an issue there of conformity accountability down as far as the ward level. We and engagement, which I think strikes to the heart of already actually collect data by wards, so it does give your question about having commonality of us a very, very tight focus on what is happening in a approach amongst diVerent agencies which localised way. I think the only danger for me is that collectively come under the banner of the it does not become too bureaucratic—we have got Community Safety Partnership, and I believe that is fifty-three wards in Rhondda Cynon TaV—that we a capture. I believe that can be done and, taking the do not have fifty-three sort of auditing structures Divisional Commander’s point, if that is the case— which feed in then to the broader partnership and I would agree, whoever chaired the because I think that might become a little bit partnership—I would concur with those remarks. counter-productive. But I think it is important if we are going to respond to the problems of communities Q432 Dr Francis: Without actually going over the that we need to be actually, if you like, at the coal ground again, there is a question which I have here face and understanding what those problems are. of how can this be achieved. Now, you may have already given the answer, but do I need to tease out Q430 Dr Francis: So generally speaking you think it a little bit more from you? Are you actually saying, will help rather than hinder the eVective role of the perhaps, that Government ought to be listening a bit police in the partnership? more at all levels to these kinds of, not concerns but Mr Greaves: Well, I do not see that it is going to observations that you have about having more cause any problem. We already do it to some extent qualitative measures? as a partnership in terms of the data that we keep. I Mr Greaves: Yes. As I say, it is very diYcult really, think there are areas where we can improve in data I would imagine, for central government to decide sharing and data collection. We already measure what are the priorities because in diVerent areas what we do down as far as the ward level, so those there will be diVerent needs and diVerent priorities in systems (computer systems and auditing systems) the more deprived areas, possibly, than in the more are already in place. I just worry that this does not aZuent areas of the country. But I think what they become all too bureaucratic and we have sort of have tried to do is to focus on the things which monthly assessments by groups coming together and genuinely cause concern in communities. So I think trying to work out what the data is telling them the national setting of targets seems to be reasonably because I suspect that will be too sophisticated and sound to me. It is about how we interpret that locally costly in time. and how we actually contribute as a Community Safety Partnership to achieving those targets which Q431 Dr Francis: I guess this question ties in with are actually set, I think. what you have just said really. It is based upon a comment made by a CSP chair. One suggestion for Q433 Dr Francis: If we can move on particularly improved partnership working is that the now to performance measurements. This is a Government set common or complementary targets question for you, Chief Superintendent Greaves. across all agencies involved in the partnership and How do you measure and monitor your own the CSP chair says that all agencies could then be performance? Welsh Affairs Committee: Evidence Ev 103
15 December 2004 Mr Keri Lewis and Mr Brian Greaves
Mr Greaves: Well, as a partnership in this current sort of joined up approach to dealing with drugs strategic period (the three years that are now coming across these four elements and in each area we have to a conclusion) when we set out three years ago we attempted to put elements of measures in, objectives, had six themes to the strategy. In each of those six targets, and in consequence we have had a great deal themes objectives were set along with targets and in of success in dealing with it. each theme we identified a theme leader. Every three months a group meets to review the progress that Q435 Dr Francis: Could you tell me something that team leader and his team are making in respect about that Dare project in terms of measurement. I of that theme. So for the last two and a half years know that there was some scepticism expressed they have been meeting on a quarterly basis to when you were beginning that work. Has that review the performance of the overall strategy. So, as scepticism disappeared? I said to you, in the first three years we were not so Mr Greaves: Well, the scepticism really has not come sophisticated. In this current three years we have from the parents, the pupils and the teachers who become more sophisticated and we are optimistic have had the benefits of the Dare programme. I that in the next three years we will become even more think the diYculty with Dare is that it was very sort sophisticated in terms of measuring our of singly dimensional, if you like, it just hit year nine performance against objectives. children, and I think the argument was that there was no subsequent input at later stages, or even at Q434 Dr Francis: Could you tell me a little bit earlier stages for children and that Dare was very specifically about how you have tackled the drugs much an Americanised scheme which was brought problem. I visited the Rhondda, I think in across here without any evaluation of its value. But September, two years ago with a group of Members just speaking from experience and speaking to of Parliament. I am sure it was your predecessor that parents and school teachers in the Rhondda valleys I met then, and we were quite impressed with the where Dare is actually being delivered there is a very strong community focus and the partnerships tremendous support for it. that were developed in schools, and so on. Could you tell us a bit about all this work over the last Q436 Dr Francis: Do not get me wrong. When we two years. visited, I think it was Blaenrhondda Primary School, Mr Greaves: Yes. I think it stems back to the year there was not general enthusiasm for it then. I think 2001–02 and I think it would be fair to say then that it was just beginning at that time. But we heard we had twelve drug-related deaths. The majority of externally that there were those kinds of expressions those deaths occurred in the Rhondda valleys and of scepticism. Could I finally go back to this question were related to heroin abuse. At the same time, I of qualitative measures. Could you tell us about the think, from the point of view of South Wales Police way in which you are actually measuring the there was grave concern that Class A drugs were eVectiveness of Community Safety Partnerships being imported over the Severn Bridge from areas qualitatively. like Bristol and that we were seeing early signs of Mr Greaves: Again, I think it is through organised crime, groups trying to set up in CardiV. consultation. It is through surveys with members of In consequence, strategically the force through one the public. We are currently going through the crime of our ACCs took up the initiative and Operation audit at this particular time. We have also published Tarian came from that, Tarian actually being the articles in the local newspaper and we have left little Welsh word for shield, if you like, as a way of scripts within those articles for them to write back explaining, to try and protect South Wales from and to give us some feedback on the services that organised crime groups and the increase of Class A people have received and the quality of the response drugs. Tarian basically as a strategy was designed to from the Community Safety Partnership, but cover four elements really: enforcement, and that is generally it has been by questionnaire and through catching people, convicting people and seizing the crime audit that we have recently undertaken drugs; education, actually working within our and which we are expected to undertake every schools educating youths of the dangers of drugs; three years. treatment—obviously we were looking to get as much treatment as we could to those people who Q437 Dr Francis: Would you include in that were suVering from drugs; and there was also a qualitative measuring, the public perception of the community element to it, and I think that is police? How would you measure that? probably something you were alluding to. From a Mr Greaves: Well, I think the only way you can do community point of view, organisations like FADs it is through a questionnaire and perhaps surveys. (Families Against Drugs) in the Cynon Valley have certainly helped us to focus on those families where Q438 Dr Francis: Do you do that? drugs have actually been the blight of their existence Mr Greaves: We have done that as part of the and lives. But in each of these areas in terms of current audit. Also, in certain classifications of education we have had support from the Welsh crime, for example if you are the subject of a Assembly Government to employ extra oYcers and dwelling-house burglary, we will actually send you a to adopt a Wales school programme. Also, there is questionnaire (this is a South Wales Police based a scheme called DARE, which we brought into the issue) asking the occupier of the house what sort of Rhondda valleys in order to actually educate service they had, whether they were satisfied with the children of certain age groups. So there has been a service they had. Similarly, in all reported hate Ev 104 Welsh Affairs Committee: Evidence
15 December 2004 Mr Keri Lewis and Mr Brian Greaves crimes we actually send a questionnaire to the he problems are. It is about knowing your areas and complainers trying to establish the quality of service knowing what the problems are. It is doing the that was received. So we do get an awful lot of data audits and understanding what the public wants and coming back to us where we are able to self-analyse understanding to some extent how the community and, as I said at the very start of the proceedings, engages, how it works and how it functions. Then every single crime we go to, every single incident we once you have got all that information probably this attend a measure of feedback comes to us from the is where the benefit of the audit comes in. Once you public which we have to respond to, and there is no understand what the community is all about and better consultation really than actually speaking to what the problems are that are facing that people who become the victims of crime. The community it then gives you the opportunity to set diYculty we have, perhaps, are those people who do some sort of target for what you want to achieve in not interact with us, the people who do not become the three year period. If you have got the right people victims, the people who do not call on our services. in that process and you do make the right decisions It is trying to capture them really because sometimes in terms of what you need to address, then it is about the measure of public perception can be impaired by setting targets and applying resources to actually the fact that they have become a victim. So delivering that overall objective and you need to sometimes it is important that we see the whole carefully evaluate and monitor then what has population, even those who do not become the happened to make sure that you have not just set oV victims of crime. That is where I feel the on some sort of journey that you are not likely to get questionnaires come in. to the end of because it is not proportional, it is not Dr Francis: Thank you. realistic. We need realistic targets, achievable targets, and I think then with the proper leadership Q439 Chairman: Could I just ask you, when you are that we empower people, we bring people in, we looking at targets and you set your own targets, engage people, we make sure that they feel part of it, what if they conflict with other authorities, for and basically we market what we do because we do example the Health Service? How do you align your not do that very well and it does make me despair targets with other authorities and other parts of the sometimes when I look at our crime figures and I look at the way we are performing—and I am not partnership? V Mr Lewis: I think that really strikes to the very ethos just speaking for Rhondda Cynon Ta , I know of the partnership because you have to have similar issues apply in Bridgend, and yet when you brokerage on that and there have to be tolerances read the local press the impression you get is that the around that. So whilst wearing a local authority hat public do not feel that confident about the communities they live in. So I think really it is about I may take a very strident view in one area, V colleagues in health or probation might take not a very, very e ective leadership. It is understanding diVerent view but perhaps a less ardent view and in what it is we are trying to achieve and it is setting that respect the tolerances have to come in and you realistic targets to achieve it. have to come to some form of brokerage whereby you have the ownership of what is commonly Q441 Mr Williams: Would you like to add anything, agreed. It might not suit everybody’s agenda but one Mr Lewis? of the fundamental thriving parts of the partnership Mr Lewis: Yes. I think I am with all of that. The only is that you have to do that. It does drive you to the sort of emphasis that I think I would place alongside business table to actually broker what you are that is the need to have the partnership in a highly prepared to agree to. visible form within the community and my colleague Mr Greaves: I think it is always helpful for the police is absolutely right, there is transparency there that because I think we have probably got the most to we have a concern about, and it is about showing the gain from a very eVective Community Safety partnership can deliver. I think that is crucial Partnership. I think it is more diYcult when one of because that is about not just getting partnership the other partners, perhaps with not so much to gain ownership of the CSP agenda, it is about getting or perhaps a perceived lack of gain, has to contribute community ownership as well. So if the partnership as well. I think that is the skill when it comes to can achieve a higher visibility and an achievable, negotiating to what extent did they contribute or provable level of performance then it becomes participate in order to achieve the overall target. community owned, and I think that is one of the life- bloods of the partnership; not its partners per se but Q440 Mr Williams: Good afternoon, gentlemen. the community that it serves. Perhaps we could address relationships both within the Community Safety Partnerships and between Q442 Mr Williams: Superintendent Greaves, you Community Safety Partnerships and other talked about leadership. Where does the leadership organisations. Perhaps you could tell us first what drive, energy, focus come from to make Rhondda are the essential ingredients for a successful Cynon TaV and Bridgend successful partnerships? Community Safety Partnership. Mr Greaves: I think it comes primarily from Mr Greaves: Well, I think probably the most critical probably the chair. In Rhondda Cynon TaV,asI is eVective leadership and commitment from the key say, it is a joint chair between the Divisional Police partners is another essential part of that. But I think Commander and the chief executive. Very similar it is having vision. It is setting out a clear vision for arrangements exist in Bridgend. But as I say, that is the partnership. It is probably understanding what primarily where it comes from but it is about the Welsh Affairs Committee: Evidence Ev 105
15 December 2004 Mr Keri Lewis and Mr Brian Greaves engagement of all the other agencies. What we have institutional stability to allow us to get on with the in Rhondda Cynon TaV, if I could just use an agenda and to deliver it because it is the case that example, is a very strong voluntary sector. We have where you have institutional change you have got three crime prevention panels in each of our diVerent faces at the same business table, you have three areas, Rhondda, Cynon and TaV, which are in an inability to commit because of the forthcoming eVect small businesses, and they have been given change process and therefore a lack of guarantee of support by the broader partnership. We have being able to deliver on that commitment, and I invested, we have committed to them, we have think that has created an element of not supported them, we have empowered them and they destabilisation but an element of retardation to the have grown quite considerably. I think that is the delivery of community safety within the secret really, and probably one thing I missed in the partnerships. first part was proper resourcing. It may be a question that comes later but it is really about the diVerent Q444 Mr Williams: We have been told by some funding streams that the partnership actually has, police oYcers (but not in the South Wales area) that which are very complicated. They are improving, local authorities have been slow to acknowledge but there are still probably too many and that they their roles in the partnership and the examples of are too prescriptive and we just need that little bit of police driving forward initiatives which should have flexibility, I suspect. been really the responsibility of local authorities, Mr Lewis: Yes. I think I can add little to that other such as clearing graYti. Have you had any examples than to perhaps emphasise the concepts and the of that in either of your two partnerships? principles of inclusivity because I think there is a Mr Greaves: I had probably be very careful what I danger that whilst there is a national take and say with the chief executive sat next to me, but no, we priority setting and a local interpretation of that, I have no experience of that in Rhondda Cynon TaV.I think there must always be a responsiveness to have made some reference to Kim Riley at the start community need and an ability to be able to link in of my presentation and tremendous support really to that, to understand it and to engage it. I think it right across the board. So no, I cannot give any does go back, as I was saying earlier, to some of what examples of failure in that respect. I call the harder to reach groups where you can think that you are meeting needs but eVectively there is a Q445 Mr Williams: Good. As I say, we have not had large part of the community that has a latent concern that mentioned by police oYcers in the South Wales and you have not tapped it. I think there is a major area. Do you think it is necessary to further challenge on that. strengthen the enforcement mechanism of the statutory requirement for partnership, for example Q443 Mr Williams: Thank you. Perhaps you could along similar lines to those outlined in the Civil share with us which partners in your partnership, in Contingencies Bill? your opinion, pull their weight and within the Mr Greaves: Well, personally I think it is privacy of this meeting perhaps the ones which do disappointing if we have to do that, but I think one not pull their weight. of the weaknesses of the Crime and Disorder Act Mr Greaves: Well, if I can speak for Rhondda Cynon really was the sanctions. Section 17 is there to TaV’s point of view, all our statutory partners do to probably act as a sanction but I am not sure it is ever some extent pull their weight. I think, if I am being really enforced. I suppose what the whole thing totally honest, probably the police and the local needs is some sort of carrot and stick approach to it authority are the stronger players, but then I think it really. There has to be some incentive for people to would be fair and right to say that perhaps health engage and work hard in partnership, I think, and and probation have had diYculties over the last perhaps if that could be worked on—I am not sure couple of years in terms of reorganisation, new it needs to be embedded in legislation but at the end structures within their own organisations. I think of the day I think we do need something just to try probably it may not be right but they may perceive and encourage a little bit more involvement that they have got less to gain by contributing more basically. intently into the partnership arrangements. But really speaking I would say that we have got good Q446 Mr Williams: Mr Lewis, in your evidence you partnership arrangements, good support in indicated that you may have some concerns about Rhondda Cynon TaV, but really probably the prime the adequacy of a statutory definition concerning the players are the police and the local authority. legal status of Community Safety Partnerships. Mr Lewis: Yes. We have not shared thoughts before Could you explain a little more about this and how we came in, I can assure you, but I do go with that as it impacts on the partnership working, and perhaps well and I think I would like to dwell on that a little any ideas on what can be done to address it? because I think there is a lot of good faith and a lot Mr Lewis: Yes. This is a matter, I have to say, which of commitment by statutory lead partners to the has increasingly exercised my mind as the agenda community safety agenda and it is not a matter of has rolled on and whilst I have been the chair of mala fides, I think it is more a question of a Safer Bridgend, and I think a call has to be made by dislocation of structural change which has Government presumptively as to what is going to be eVectively, how shall I say, sidelined to a certain the vehicle to drive community safety within extent certain key partners. There is one plea I think communities. My point there is that if that decision I would make and that is for some degree of is that it does rest with Community Safety Ev 106 Welsh Affairs Committee: Evidence
15 December 2004 Mr Keri Lewis and Mr Brian Greaves
Partnerships then I think there needs, in my opinion actually, I think, employed by the Home OYce but (that is a personal opinion), to be perhaps greater working in the Welsh Assembly. Obviously there are prescription as to what the powers are of the certain directions that come from that. Mr Lewis partnership, particularly in matters of contracting. mentioned earlier on the fact that in the make-up of Now, as my colleague and I both know where, for partnerships, for example in relation to health, the example, funding streams arrive to enable us to local authority are devolved whereas the probation engage individuals in employment such as a and the police still remain under the Home OYce. So Community Safety Partnership coordinator or an there are always some tensions there that exist, but Anti-social Behaviour Partnership coordinator my experience is that the Welsh Assembly along with those contracts of employment must rest somewhere the crime director to some extent follow the and inevitably in my case they rest with the local procedures as they should do. It is a little bit authority. As my evidence says, we are looking to prescriptive. As we said earlier on, going back to the obtain premises as a partnership oYce. As a body funding streams, I sometimes wonder why there are seeking to contract, it would probably be the local so many diVerent funding streams. I would like to authority again. There is nothing untoward in that, see an element of trust coming to the Community but if the partnership is going to be empowered, Safety Partnerships. If we have done our audit, if we particularly in future terms with regard to have put our plans and our strategies together, why commissioning matters then I would have to say I is it that a certain amount of finance cannot be would feel pretty uneasy as a chair of the partnership allocated? As long as we are reasonable in the way in engaging in commissioning matters unless there that we invest that finance and as long as it is was perhaps a greater degree of definition of the directed towards achieving our objectives then statutory roles of the partnership. Now, that is a surely that is what it must be rather than having all personal view. My colleagues might not share it, but these disparate pieces of finance and commitments I am increasingly exercised on that matter, I must that we seem to have to contend with. be honest. Mr Lewis: Yes. My take on that, Chairman, is that I think clearly there are tiers of responsibility and Q447 Mr Williams: Do you see any other obstacles one has to accept the reality of that and work within it. I think the capture there is to have an engaging in the development of the partnerships in both V your areas? dialogue between those di erent tiers which does Mr Lewis: I think my colleague referred rightly to elicit what Her Majesty’s Government is thinking funding streams and I think I touched upon that in about in terms of national priorities, how the Welsh my evidence. They tend to come in diverse forms and Assembly Government can contribute to that sometimes in dollops and we cannot form a plan through managing the devolved functions that it particularly. In fairness they are driven very often by possesses and how we as a partnership can really knit national priorities which, as we have said, do overlay into all that. I think perhaps what I would strive for on local need and circumstance, but if we were to is perhaps a greater degree of networking and a have some greater degree of predilection in what greater degree of frameworking around those issues. those funding streams will be then I think the I think it is there and I think it can be achieved and sustainability of what I can do as a partnership will I know those dialogues are engaged, but sometimes be far more enhanced. I am not saying it is stop, go, we as partnerships do feel perhaps a little bit remote stop, go, but most certainly we do not have the from that and I think if we could be within that loop confidence to commit on a two, three or four year of engagement then that is the bottom up approach programme of issues which I think would have the I was talking about a little earlier. penetration in terms of local community benefit based upon the current funding streams. Q449 Mr Williams: Just one last question. Mr Greaves: I think that is really very cogent because Superintendent Greaves touched on it, but it may be at the end of the day when we are often looking to a political sort of question. Do you think the employ people to work for the partnership we can partnerships would be able to function more only employ them on short-term contracts and I eYciently if there was more devolution of police suspect sometimes we do not always get the very best powers to the Assembly? people applying for those positions. I think if there Mr Greaves: I think there is a possibility that might was some level of long-termism about the whole be the case, but then I can see the benefits of policing thing then it would be much more beneficial, if you in Wales continuing to link into the Home OYce and like, to the partnerships. having more of a national drive. I think there may be more complications with the devolving of the Q448 Mr Williams: Moving on to external authority of the police than actually leaving it where relationships, perhaps you could say something it is, but I will not go into too much detail on that. about the relationship between your partnership, the Mr Lewis: I have diYculty in responding to that Home OYce, the National Assembly for Wales and question. My colleague is nearer to the heart of the the Welsh Assembly Government? question than I. All I can say is that at a local level Mr Greaves: Well, all I can say really is that from a in Bridgend I am confident that there is most policing point of view obviously we link in to the certainly a commitment from the local constabulary. Home OYce and obviously there are certain We work closely together. I would have to say some directions that we have there. In the Welsh Assembly six years ago I would probably have met the Government there is a regional director who is Divisional Commander on one or two occasions Welsh Affairs Committee: Evidence Ev 107
15 December 2004 Mr Keri Lewis and Mr Brian Greaves perhaps in a year; I now meet him probably twice or division may cover two local authority areas. But I three times a week. So I think that is indicative of the think those are the general boundaries that they way in which the agenda can be delivered, frankly. work within. Mr Williams: Thank you. Q452 Chairman: Do you think that the diVerence in Q450 Chairman: Moving on to the relationships titles is important? Are they doing the same job? Are between the devolution settlement and how it is they doing the same job in a diVerent way or are they panning out in Wales compared to England, do you doing a diVerent job? One is called the Crime and know the diVerence between chairing a Community Disorder Reduction Partnership and we are talking Safety Partnership in Wales and a Crime and about community safety in Wales. Is it diVerent? Do Disorder Reduction Partnership in England? you know what I mean? Mr Lewis: The only response I think authoritatively Mr Lewis: I think the nomenclature implies a and genuinely I could give to that is through my diVerence. I think I would go with that. Yes, it does, networking with my colleagues in England, and I most certainly, and community safety does give the think two of the immense strengths that Wales has is inference of a wider mantle than simply reducing firstly it has unitary local government, and I think crime because, as I think I made the point in that is an immense strength. So you do not have the Bridgend’s case, crime is falling. My challenge is to shire county and the district, and I think that is an persuade certain sections of the community that that immensely powerful thing to have. Secondly, we is so and that they are not in danger of walking have Welsh Assembly Government, which does across a road to another place at 10 or eleven o’clock provide a great focus around the engagement at night because they will be the last people, frankly, between, as I say, the devolved and non-devolved to be a victim of a crime. So I think the nomenclature functions. So I think it comes back to a point I have of wording does send a message. I would tend to played quite a lot on in my evidence and that is the agree with that, yes. ability in Wales to have a far greater focus in that Mr Greaves: I was just going to say that I think in sense and a greater compactness because I think as a terms of what we do it is about emergency planning, principality we can speak with one voice on the same it is about your safety; it is a much broader thing issues within the crime and disorder agenda, albeit than just crime and disorder reduction, it is about all that the geography perhaps might be a little those things, and I think perhaps the title is more diVerent. I think a telling example of that is how appropriate in Wales. I am sure England are doing secure accommodation for young oVenders was the same thing, but the title seems more appropriate dealt with on an all Wales basis and representations in Wales. made, particularly in relation to North Wales where of course the accommodation was outside the Q453 Chairman: This is addressed to you, Mr Lewis. principality itself, and we were instrumental there in In paragraph 9.4 you mention concerns about “the obtaining linguistic support for young people to disparity of joint working which can arise within this actually accommodate them and their needs in an matrix of devolved and non-devolved statutory English environment where otherwise they would responsibilities.” Obviously one of the things we have felt even more at risk, perhaps, and isolated. So have been looking at with our Committee is the fact taking your point backwards, Chairman, there is, in that we have both devolved and non-devolved my judgment, a far greater focus and a far greater bodies in a partnership to try and achieve the same potential for development as a consequence. thing. What is the practical impact of this on the Mr Greaves: Just adding to that, I think there are work you are doing? tremendous benefits in coterminosity. In South Mr Lewis: It is not a dysfunctional issue and I think Wales we have got police commands which are it would be wrong to put it in that level of coterminous with our local authority areas. We have importance, but it most certainly can be debilitative got local health boards and even Probation and the and most certainly I think can sap some of the Fire Service are doing their very best to try and partnership drive as a consequence. I think we have provide support on a coterminous basis. I think then already rehearsed some of the reasons why we have you have got a clear definition. All these areas of found ourselves in that position, not least of all responsibility coming together and focusing on one through institutional change and as a consequence particular geographic area does actually bring with of those decisions being taken at national level, it massive benefits, I think, and I am sure that is which in turn have resulted in some degree of something that they really struggle with. Having Y reduced commitment within the partnership spoken to other senior police o cers in England, working. We have also, I think, Chairman, coming to the meeting table, if you like, with so rehearsed issues to previous questions around many diVerent people and covering so many V national target-setting and how they are di erent areas actually causes them some transmogrified at local level. Equally, can I say, the considerable problems. issue of funding streams. I want to revisit that in the answer to your question because whilst the Q451 Dr Francis: You do not have a coterminosity partnership itself has funding stream support which in South-East Wales though, do you? is somewhat diverse in the way in which it comes Mr Greaves: Gwent, no. I am talking about the through, each partner also has its own resource base South Wales police area. I am not quite certain. I and if there is a national directive as to the extent to think there is coterminosity but, for example, one which those resources can be used and for what at Ev 108 Welsh Affairs Committee: Evidence
15 December 2004 Mr Keri Lewis and Mr Brian Greaves local level then that can be an inhibitor to overarching leadership groups within the commitment in relation to the wider enterprise. I principality as well which can deliver at a strategic think there are some degrees of evidence around the regional level whilst the all Wales strategy I think publication of strategies as well because if I enables the north to talk to the south and east to remember correctly the prevent and deter strategy west. Unless I am misdirecting myself, I think the was published in England and then I think it was positions of institutions at Home OYce level would sometime later it was actually published in Wales. I be more engaged if there were to be that one voice think that evidence is again the issue of conformity speaking on behalf of principality institutions between the two processes. It should be one and the through Welsh Assembly Government. I think that same, of course. would be a very vocal position to adopt. Chairman: That is interesting. Thank you. Q454 Chairman: If you were to give one or two examples of how you could improve the situation, could you and would you give them now? Q456 Dr Francis: Could we move on now specifically Mr Lewis: Oh, if I could bottle that and sell that, to the question of tackling anti-social behaviour. Chairman, I think I would be a rich person. It is a Would you say that anti-social behaviour does pose really bold question. I do not think it is an a problem to you in RCT and Bridgend, and what is impossibility or a contradiction in objectives for the nature of that problem? there to be a national framework for partner Mr Greaves: It does actually. Obviously we talked a institutions but with an ability for them to have local bit earlier about the force and, as I say, I think in discretion and to engage in what are deemed to be both areas in terms of crime reduction we have done local priorities whilst paying due cognizance to the exceptionally well, yet the perception of the public is national blanket issues, and I think it is that that things are not perhaps as good as they could be. flexibility that partner institutions, if empowered, I think that has been, to some extent, driven by their could add immense more value to the agenda. Local interpretation of what they perceive to be anti-social government has it because it is obviously instilled in behaviour, young children to some extent hanging local government because provided the local around on street corners or loutish behaviour authority decides that democratically that is what perhaps coming from pubs and diVerent things that they want to do, the intra vires, clearly it can be done. happens. So it is important. Coming out of the But I think it is that element of local discretion which current audit that we are doing, it is a very, very high can be factored into partnership arrangements. priority for the public that anti-social behaviour is addressed and addressed eVectively. Of course, we Q455 Chairman: That kind of leads on to my last have got legislation in order to allow us to deal with question on this section, the All Wales Crime and that. I do not know how much you want me to go on Disorder Forum that I think you were instrumental to here, but we have a process in place to deal with V in setting up in 2002. Did you see that as having that anti-social behaviour in Rhondda Cynon Ta and kind of role, coordinating things on an all Wales that particular procedure has been adopted right basis, and do you think we ought to have something across the South Wales Police area and is proving like that? extremely eVective, but it does not necessarily mean Mr Lewis: I think since that began and cessated that we directly go for an anti-social behaviour order (which I hope is a temporary cessation) we have now as a primary target. It is about working through a developed an all Wales youth oVending strategy. I system of interventions which actually would lead to think there is a very powerful message in that anti-social behaviour in the worst cases. because it shows quite clearly that Wales does have the propensity for delivering on an all Wales basis on given subject matters, one of which is youth Q457 Dr Francis: What about Bridgend? oVending, in terms of a strategic initiative and the Mr Lewis: Yes, I would endorse that. Anti-social other, in my judgment, is crime and disorder itself. I behaviour in terms of the audit concerns is high, but think my evidence rehearses some of the areas there again tolerances diVer in relation to what is which, whilst it was functioning, the forum took intolerable and what is tolerable, or even acceptable, itself to and to have within one room four chief and that diVers within Bridgend as it diVers within constables, a large number of chief executives from the principality. I think there is this diYculty of Wales and key players and other institutions on definition around that, but we have adopted a matters of strategic importance such as drug similar process of engagement on a four stage basis markets, secure accommodation issues, that is a very where the ASBO, frankly, is a last resort, it is not a powerful voice to be able to engage in that loop of first line of engagement, and we are finding that the exchange that I was sharing in relation to an earlier interventions that we are using are reducing the question. I have made approaches to Welsh amount of people moving forward. Although, Assembly Government and I am happy to continue having said that, if there is a need ultimately to move to lead on that, but the problem is it must have a to an ASBO then the facilities are in place so to do. resource base to support it. Previously, I was supporting it administratively through my authority capacity and frankly it just could not move on. I Q458 Dr Francis: Do I take it from your responses, think there is a place for it and, as my colleague was both of you, that it is a priority for you? If it was not making the point earlier, I think there is a sub-set of a national target would it still be a priority for you? Welsh Affairs Committee: Evidence Ev 109
15 December 2004 Mr Keri Lewis and Mr Brian Greaves
Mr Lewis: Yes. Q461 Dr Francis: At the beginning of your question Mr Greaves: It will be certainly a priority, yes. you corrected yourself. You said “young person” or “young people” and then you said “people” and then at the end of your answer you said “young person”. Q459 Dr Francis: Would you say that you are Mr Lewis: Yes. I think I am conscious of the fact that actually winning that battle? like many people when one thinks of ASBOs one Mr Greaves: I think we are. If I can just speak for does think about young people predominantly. Rhondda Cynon TaV, I have got some statistics here since November 2002. On 795 occasions we have Q462 Dr Francis: Is that a mistake? actually issued—Mr Lewis referred to a four tier Mr Lewis: I do not think it is a mistake, I think it is system which we all adopt, but we issue a first letter a natural tendency, but I do think that there is good which sets out the problems and gives the recipient evidence to show that clearly we have got to keep a the opportunity to start responding that that in a wide scheme of thought around ASBOs and not just positive way. From seven hundred and ninety five think of young people as being the centre of them. first letters we only move down then to a total of They tend to get the publicity, but you are right, one ninety-two second letters. So on six hundred odd has to correct oneself and just get back to reality and occasions obviously the first letter has the desired say it is a wider issue than just young people. eVect. If we move then from the second letter to the third letter, which is basically an anti-social Q463 Dr Francis: So statistically then in terms of the behaviour contract, it drops from ninety-one down ASBOs issued are they young people or not? to nineteen, so again you see quite a considerable V Mr Lewis: I think in the majority they are. reduction and in fact in Rhondda Cynon Ta in that Mr Greaves: Could I answer that? In terms of period it has actually led to twelve Anti-social Rhondda Cynon TaV, I cannot speak for Bridgend, Behaviour Orders. Rather than going in at the front but of the twelve I just mentioned earlier on 10 are end and using the Anti-social Behaviour legislation, adults and two are young people. So I think it is a we have gone through a staged process which in its misconception really that anti-social behaviour is own right justifies the ASBO at the end of the day linked always to young people; it is a balance. but it limits the number of ASBOs that we have actually achieved. I am always very conscious that Q464 Dr Francis: Yes. If I could address this we should not forget that we have got primary question to you, Chief Superintendent. In your legislation to deal with lots of the problems which written evidence you cite several examples of a might be perceived as anti-social behaviour. If problem-orientated approach to community somebody commits damage, there is legislation to policing. Is your approach to anti-social behaviour deal with criminal damage. If somebody acts in an based on sustainable, semi-permanent problem- V aggressive, violent way we have got o ences solving approaches or on targeting individuals, in whereby we can arrest people. So I think we have got other words a short-term solution, and can you give to be careful we do not try and use the Anti-social us some examples? Behaviour legislation for everything that we come to Mr Greaves: I think what we have done in Rhondda deal with. Cynon TaV is we have reorganised just over twelve months ago and we are seeing a reduction in crime and a reduction in incidence, and in consequence we have been able to slightly reduce the number of Q460 Dr Francis: Is the same pattern emerging in Y Bridgend? Are you winning the battle and do you police o cers that we have got to respond to have the same approach in terms of ASBOs? incidents. That has allowed us to create community structures in each of our sectors. I do not want to go Mr Lewis: Oh, absolutely the same approach, yes, into too much detail, but in each of our sectors now and we find that young people, people, are taken out we have got six uniformed PCs and a sergeant and of the system of process on the various levels of they actually perform the community structure to progress and I think as we speak I am probably policing within that sector. What I have done is they conscious of only five individuals out of the numbers are red circled. We say they are red circled so they do who started who really are still perhaps moving not get abstracted to do other things, so they towards the contemplation of an ASO because the actually remain providing a slow time policing interventions that we are using are taking people out service (as we describe it) and giving that support to of the system as they move forward. I think that that the communities. That has been supplemented also is a more constructive approach and far from being by Police Community Support OYcers and I am just a matter of mathematics, I think the pleased to say in Rhondda Cynon TaV we have got sustainability of turning around potential ASBO a larger percentage of PCSOs because the local candidates is greater by the long–term interventions authority has actually invested into that with us as than it is simply by virtue of the actual order itself. well. So we are able to give a much stronger The order itself is punitive, clearly. Having said that, community presence and what we encourage our the sustainability on improved behaviour is far more oYcers to do is to become sort of beat managers. likely if you get the young person to want to change They actually act as a fulcrum for community and and that is the intervention process on the three partnership work and trying to draw in also our stages. special constabulary and other volunteers to give a Ev 110 Welsh Affairs Committee: Evidence
15 December 2004 Mr Keri Lewis and Mr Brian Greaves service within the communities. I think this is the problem, for example if somebody commits criminal way the Government would like us to progress in damage we have got powers to arrest them for any event, with the increase of Community Support criminal damage and to charge them for criminal OYcers. With that we also employ full-time one of damage. In this area I think it is less clear what the our PCs actually is our ASBO coordinator and what legislation is. So I would say yes, it is probably an we are looking to do within the county as well is to appropriate use of the legislation. provide a twenty-four hour hotline for anti-social behaviour so that people can ring in as well. So what Q466 Dr Francis: Do you think that there is a lack we do then obviously is when we are getting of a formal definition of anti-social behaviour? complaints we are looking at what the problems are Mr Greaves: I think there probably is because it is and trying to resolve those problems through a lots of things to lots of people and I think Mr Lewis problem orientated approach. So it is actually about V mentioned earlier on about tolerance. It is quite designing an e ective resolution to it, not sort of interesting. We had one example in Rhondda Cynon sticking the plaster over the problem for a week or TaV where we had a couple of youngsters who were so and then actually finding that it actually occurs standing on the street corner just chatting and somewhere else or we just displace it. So it is about generally doing things that young people do and an looking long-term at the problems and in the process Y elderly man approached them and started berating we are trying to train our community beat o cers to them about hanging around on the street corners give them the skills to be able to look at problem- and started using extreme language and became very solving initiatives and even, for example, filling in threatening. Now, if you like, that is in reverse applications for finance from the Lottery basically. He was the one committing anti-social Commission, for example, of something like that in behaviour, not the children on the street corner. So it order to resolve some of these local problems. So it is very much about interpretation, about tolerance, is far more structured in a problem-orientated what people are expected to do. It is amazing to me approach as opposed to a short-term approach. because some communities, probably the worst oV communities, the more deprived communities, have Q465 Dr Francis: Could I finish by asking you a got a much, much higher tolerance than those rather strange question. I do not know whether you communities where there is a greater level of wealth have seen in today’s Times there is a report of a pig and sustenance. It just seems to me that in some of farmer in Norfolk who faces the possibility of a those areas people have perhaps got a very, very low prison sentence as a result of a breach of an anti- tolerance for children hanging around on street social behaviour order after his pigs escaped on to a corners, or doing anything in fact They just want to neighbouring property for a second time, therefore remain in their little houses or boats and the do not breaching the terms of the ASBO. Do you think this want any interference whatsoever. There is a balance is the type of anti-social behaviour the legislation somewhere. I am not quite certain what the was intended to address? definition is, but it probably does need to be more Mr Greaves: I think it probably is. Thinking on my defined, yes. feet here, there probably is some form of legislation for not properly controlling your animals. I cannot Q467 Dr Francis: Thank you for that answer put my finger on the pulse of what that exactly is at because the tone of the question really rather a the moment, but I think the secret with the Anti- loaded one, is it not? It implies certain things, does it social Behaviour Act was that it was sort of to deal not? You assume that anti-social behaviour is with those things that perhaps were not obvious, amongst young people in cities and in fact it applies that there was not necessarily legislation to deal generally and the broader the definition the better, with. Whilst it might seem a bit extreme that a I guess? farmer allowing his pigs to escape from the land Mr Greaves: Yes. could end up with five years imprisonment, I think Dr Francis: Thank you. the report suggested, at the end of the day for it to have got to the position of an ASBO being applied in respect of this particular farmer I should imagine Q468 Mrs Williams: I would just like to make a his regard to public safety, his regard to his role or comment really about the issue of the pig. I used to responsibility in the community has been such that work for a magistrates’ clerk years ago and I used to he is almost just being arrogant and has probably type summonses out and occasionally livestock foregone any sort of logic in terms of the way he would be straying on to the public highway. In those should behave. Reading the article, it seemed to me days they used to fine the farmer five shillings a head that obviously they have had probably months (or for however many sheep were straying on to the probably maybe even longer than that) of problems highway. Chairman, that is just a bit of information. with this particular farmer. So I am sure it was fully Mr Greaves: Thank you for that. appropriate for an ASBO to be put in place and of course if he has breached that now then I suspect the Q469 Mrs Williams: That used to happen in North law should punish him. I doubt if he will get five Wales anyway, I do not know about South Wales, years’ imprisonment, but I should imagine that they but it was the law of the land and still is, I believe. should actually give him some substantial penalty in What are your views about dispersal orders? They order to make an example. So I think it is and, as I are starting to be used now. One was used in my said earlier on if legislation exists to deal with the constituency recently and it has proved to be quite Welsh Affairs Committee: Evidence Ev 111
15 December 2004 Mr Keri Lewis and Mr Brian Greaves successful and the local people are saying because it might be a problem for a rural area obviously would is so successful they would like to see the period not be a problem for an urban ward. What I would being extended. say is that there would be a community beat oYcer Mr Greaves: I think it is all about proportionality and a community team in a rural area and they and I think the punishment, if you like, needs to fit would actually get together and consult with the the crime. So you need to look at the problem you population and look at what the problems are, and have got. As I have alluded to earlier, there is a whole the pig example might be a classic example of where range of tools in the tool box that we as a police one farmer is causing mayhem and madness to that service have in order to deliver the service that we do community and we need to respond to it, as we and to keep crime and disorder, well, not at would to maybe the youths who are hanging around appropriate levels, as low as we possibly can. All I the shopping complexes basically terrorising would say is you need to look at the problem you shoppers. So it is about proportionality, again, and have got, you need to look at what resources and having the right response for the right problem. what legislation we have got to deal with it and if the Mr Lewis: Yes. I think my response to that would be problem is that excessive perhaps we do need that I think you can take comfort from the fact that dispersal orders. But I think we have got to be very the bottom up approach takes the whole community careful. There is a balance here. We police by with it, be it rural, urban, quasi, whatever, and consent in this country. We need the support of all because the crime audit is conducted on a ward basis the community. We certainly do not need to alienate then we have rural wards in the urban wards. So that ourselves with the young people of the country does bring up from the bottom the concerns of rural because the dispersal order tends to be directed more residents within that process and then it has a towards the young and at the end of the day we have reflection within the strategy itself as a consequence. all grown up at diVerent stages, perhaps, and we If one also runs alongside that issues about elected have all used the streets, we have all got together. It representation, clearly speaking in my own area I is the way that we are and I am not sure that if we have nineteen town community council members take the youngsters oV the street who are just and fifty-four county borough council members and generally socialising and gathering that we are community safety is an issue which is shared with necessarily giving the right message. But the other them so that they have an input basically and an end of that spectrum is where there is considerable influence from rural representation and urban disorder and general fear in a neighbourhood then it representation in actually bringing forward areas might be an appropriate tool, but I think it is about that they are concerned about. In my own authority proportionality and about understanding the crime and disorder has been oVered as a scrutiny problem and applying the right level of commitment issue, so my elected members have been scrutinising to it. the works of Safer Bridgend in a very searching way Mr Lewis: I focus on the word “proportionality”. I and that, I think, has added value to the process think that is key and we are all exercised, I think, by because some of the questions that have been asked diVerent circumstances within each of our localities. this afternoon have been asked of me in a diVerent I mentioned earlier the concerns of Bridgend place. So I think it does show that that engagement concerning the night time economy issues. Now, I that I have referred to throughout what I have said am not saying the dispersal orders are appropriate this afternoon is a vitality in bringing up those for that sort of problem, but what I am saying is, as interests and having them captured within a process. we said earlier, there are various remedies in the toolkit and we must be prepared to use them and if dispersal in my judgment is necessary then it should Q471 Mr Williams: Thank you. You both have be used, but proportionality is the word which has responsibility for areas which have Communities been used and I would focus on that. First wards within them. Perhaps you could tell us Mrs Williams: Thank you. something about how the Communities First policing teams work in your areas and how this is diVerent to the ways in which the areas were Q470 Mr Williams: Perhaps I could just refer back previously policed. to the pig question again, not in great detail but it is Mr Greaves: If I could just speak for Rhondda because both you gentlemen represent what would Cynon TaV, I have established three Communities be thought of as very urban areas. The question First teams and I think the general principle of it is really is, do Community Safety Partnerships have a that we have looked at the worst wards, perhaps that role to play? I know you have rural parts of your is a bad phraseology, but the wards which are most areas as well, but do they have a role to play in rural deprived and where there is a clear indication that areas or in predominantly rural areas as well? that deprivation is probably leading to high levels of Mr Greaves: I think they have. I think, again, it is crime and disorder. What we have done is we have just understanding what the issues are in those areas. actually allocated a Communities First team there to We were talking about neighbourhood policing work alongside the Communities First structure that units and community structures further down into exists in that particular ward area and it is just a the ward areas, but all our areas are actually made simple concept really. If I can just give an example, up of lots of diVerent types of areas where you have I spoke earlier on about six community beat oYcers got high levels of deprivation and in some you have and a sergeant in each sector. That would probably no areas of deprivation at all. I think it is about mean that each community beat oYcer probably has providing the right match to the problem. What responsibility for two wards, which might be Ev 112 Welsh Affairs Committee: Evidence
15 December 2004 Mr Keri Lewis and Mr Brian Greaves anything up to about 8,000 population. So that is the Q474 Mrs Williams: You have just mentioned what sort of level of commitment. What we would be residents are saying. Are they asking questions in doing with Communities First is actually putting your police force area? Do they feel that the four PCs and a sergeant into one ward area, which headquarters is sucking in additional resources for would be (and I am generalising here) around about specialised studies, if you like, within HQ rather than a population of 4,000. Now, it is a slow time seeing the oYcers on the streets of the towns? approach, it is a problem-orientated approach that Mr Greaves: I think that might be an issue which is we talked about earlier on, and what you have there more internal to the police than the public is almost saturated—well, I say saturated but it themselves because I doubt if they would be thinking might not seem that saturated, but to have four too much about what is happening in headquarters. dedicated police oYcers and a sergeant working in If I could just speak for the South Wales Police, we one small defined area is a change from what we have try our very best to put as many police oYcers on to been able to do because a lot of our policing is the front line as we possibly can. There is this sort of response policing. The communities do not generally myth really that people are walking around see police oYcers walking around their streets. We headquarters with nothing to do. That is certainly do not have enough really to do that. But in the not the case. If oYcers are in headquarters they are Communities First areas we are able to do that and there for a specific purpose. There are diVerent we are able to give a far greater level of commitment things which need to be done. A division would not in terms of police presence and police response. manage on its own without the support of headquarters, for example things like fire arms, air Y Q472 Mr Williams: Has that been successful? support, tra c and all the rest of it comes from Mr Greaves: It has been extremely successful. I headquarters’ responding units. So I think there is cannot actually dictate to you the statistical changes, bit of a myth there that headquarters is a sort of a but I can say that areas have seen things like a 50% luxury place where real policemen are not located. reduction in reported crime and significant As a force we try and put as many as we can on the reductions in incidents that have happened where front line. If I could just go back to the Communities these teams have been placed. Tylorstown was the First point, in Tylorstown there was always, first team in Rhondda Cynon TaV. The second two probably back as far as the miners’ dispute in 1984 a teams were only put into place just last March, so we bit of tension between the police and the community, have not quite seen the benefits of that yet but there which was a very sort of traditional miners’ village. is already evidence that it is making a huge But just recently, about a year or so ago, we had a diVerence. tragic double murder in Tylorstown and the Communities First team there were asked to act as coYn bearers for the family and I think that just Q473 Mr Williams: You have that in your area as speaks volumes for the diVerence that that has made well, have you? in the communities in South Wales where we have Mr Lewis: Yes, indeed. Rhondda Cynon TaV have been able to concentrate this extra policing, and this a higher concentration of Communities First wards confidence has come back into the community and than Bridgend, we have four in Bridgend, but the spirit, which is what policing really is all about. similarly to Rhondda Cynon TaV we have concentrated through community policing and Communities First policing opening up a police Q475 Mr Williams: When do you think you will be presence actually in the primary school in one of the able to fully evaluate the eVectiveness of Communities First wards, which is important Communities First policing, in particular the because the counselling issue then comes out as a concentration of resources in a particular area? nucleus from there and surprisingly the four wards Mr Greaves: The force is about to embark on an are closely related. The only point I would want to independent audit, another review of the make, and I am not in any way denigrating the Communities First teams. I do take on board what importance of Communities First policing, but in Mr Lewis says but, as I say, in Rhondda Cynon TaV Bridgend’s case if one looks at the crime audit I have I think we have got twenty-two Communities First one Communities First ward which does show high areas in seventeen wards and what we have done is levels of concern in relation to oVending and crime we have tried to put our Communities First teams and disorder issues, but I have concerns elsewhere in into those areas that are not just identified as having the county borough which do not fall within levels of deprivation but also they are linked to crime Communities First wards and I think that point does and disorder. So we have actually put our teams into need to be made because whilst there is an issue what we can perceive to be our highest priority areas. which needs to be engaged on Communities First This is alongside all the other services that we give as policing it is about the application of resources well, so it is not instead of. So they still have reactive across the piece and frankly I think if one were to patrols covering those areas. They will still have, for speak to the local residents of the County Borough example, traYc patrols in those areas, but this is a of Bridgend then I think they could refer to issues of dedicated team, a slow-time team which can look at concern which are not Communities First driven but the problems in those areas and work with other which are very close to them. So I think again it is the partners to try and improve them. So it is making balance issue. some impact. Welsh Affairs Committee: Evidence Ev 113
15 December 2004 Mr Keri Lewis and Mr Brian Greaves
Q476 Mr Williams: This next question is about the Zone, diVerent groups are encouraged to go there Integrated Community Safety Service to enable the and the team at the Safety Zone work them through Rhondda Cynon TaV Community Safety diVerent scenarios in order to give them real life Partnership achieve what other partnerships do experiences of perhaps buying something at the shop not achieve. and being served in a pub. In the last twelve months Mr Greaves: Well, I think what we have done is we over twenty-five thousand children have been have managed to find a unit and we have actually through the unit and had a great deal of tuition and leased a unit where we have many of our partners instruction on diVerent elements of safety and working together. The biggest failure, I think, really general social behaviour, and so forth. As I say, it is that no sooner had we actually moved in there we works tremendously and it is very diverse. We can realised it could have been much bigger and we have use it in the day and at night, women’s safety groups other partners who wish to come and join us, or and a whole range of diVerent individuals have come other parts of the whole structure which could through there and benefited from the structure. perhaps best fit into this unit. But it has brought us together. It does enable us to problem-solve more V Q481 Mrs Williams: Can I turn to funding and e ectively. One of the big problems with the Y partnership is that each organisation has its own sustainability with you? You note several di culties data collection systems, computers and diVerent in terms of the funding of Community Safety things, and they do not speak to one another, there Partnerships. Could you tell us a little bit more is no compatibility with the data. Of course what we about the problems and any proposed solutions too, V and I would like you to address, if you would, the have got at Fairway Court now is all our di erent Y computer systems actually linking in to the unit, so di culties in planning given short-term funding whilst we might not have access to all the diVerent cycles which do not coincide with your three year strategies, and also the diYculties which arise systems it is only just down the corridor to find out V a little bit about something you might need to know around the di erent conditions and restrictions when you are problem-solving an issue. around grant, especially those that pre-determine capital and revenue spending. Mr Lewis: I will lead on that response. I think I have Q477 Mr Williams: Are there any problems with the referred to that in the evidence I have submitted and co-location? I think we have covered some of that ground earlier Mr Greaves: Not that we have actually experienced this afternoon. I think my position statement on that just yet. As I say, one of the greatest problems is the is that Community Safety Partnerships currently fact that we are getting greater demand for more rely upon diverse funding streams but there is not a people to come there and that in its own right is sustainability of assurance of longevity about them causing an issue but that has been tremendously and therefore long-term planning is inhibited as a successful. consequence. My colleague has referred to the engagement of staV and I think he was absolutely Q478 Mr Williams: Are there any problems right to do that because the quality of engagement associated with police managing non-police staV? sometimes can vary depending upon the letting of Mr Greaves: No. I think it has been done very gently the contract and the attraction of quality and by learning as we go along. I have got a chief candidature for posts and therefore to have short- inspector working there who is very sensitive to all term funding streams means that you may be in those issues and very qualified, so we have had a diYculty in recruiting, or at least in retaining quality very, very smooth introduction and integration of all staV, in key areas of operation. There are also issues, the diVerent units working together there, but again as you rightly refer to, in relation to revenue and it comes down to personalities, tolerance and capital streams of funding and I have come across flexibility in the way that we work. that recently in the sense that within my evidence I referred to the need for us to acquire partnership Q479 Mr Williams: Are external agencies premises and I fully agree with the point that has compensated for staV secondment? How does that been made. It provides a far more cohesive working work? environment. With very diverse colleagues working Mr Greaves: Not through the partnership, no. They to the same objectives, to have them based under the are actually contributing in that respect and they are same roof does not always work but in this case it actually contributing towards the cost of the unit does and we have been striving to do that, but as well. eVectively I have had to try and find a way of swapping capital monies for revenue monies because Q480 Mr Williams: Perhaps you could tell us a little I cannot buy, I need to lease, and that is a revenue more about the Safety Zone and the activities which issue. I have managed to do it for the three year go on there? period, which has just got me what I need to. I have Mr Greaves: Well, the Safety Zone is something a three year lease arrangement, but after that we will which was created about five or six years ago really have to find other ways of doing it. So I do accept and the basic concept is that it is a huge warehouse there must be national arrangements and which has been configured with all diVerent elements frameworks around the funding streams, of everyday society—a shop, a pub, a level crossing particularly on revenue and capital, but perhaps and a whole range of other set pieces within the unit. there could be some greater degree of flexibility, Basically, school s are encouraged to go to the Safety particularly on the transposition of those funding Ev 114 Welsh Affairs Committee: Evidence
15 December 2004 Mr Keri Lewis and Mr Brian Greaves streams to meet local needs, which comes back to the by an eVective administrative infrastructure and point I made earlier this afternoon, local appropriate funding” which is identified in your circumstances. written evidence. What would be the most eVective administrative infrastructure, would you say, and Q482 Mrs Williams: Are there diYculties around the most appropriate funding in your view. I know you diVerent streams of funding which come from both have expressed your view now when I asked you the Home OYce and the National Assembly for about the funding of capital. Wales? Mr Greaves: I think if we are going to run an eVective Mr Greaves: Well, yes. I think it is getting better. partnership we need to be able to administer to it and What happened, I think, last year was that a number there is a sort of argument, and I support the of diVerent streams of finance were consolidated argument around partnerships that, for example, if into the buildings in the communities and what they you pool in the number of people together from call the BCU Commander’s Fund and I think the diVerent agencies those people would have needed Y National Audit O ce is looking at proposals just for support from their own agencies in the first instance. one basic allocation of finance for Community But it is very diYcult to withdraw little bits of Safety Partnerships, which I would support. I am support to actually create a realistic level of support not an expert in financial matters, but I do not really at the partnership. For example, if you go to the understand why there needs to be a capital revenue Fairway Court system that we have got where we split. It seems to me that if we could work out some have a number of agencies working together it is very sort of proportion for each Community Safety diYcult to take a proportion of an admin clerk that Partnership of the bigger pot of finance, if it was as might have come from health in order to give simple as that and we were given it, as I said earlier support to the people now who work collectively and on, if we were then actually allowed to commit that sometimes there is a little bit of tension about us finance on the basis of what our strategy outlined trying to use partnership monies to employ perhaps and our plans and our objectives, and maybe there an administrative clerk or a finance oYcer. But at the would be some financial penalties if we did not end of the day if this organisation is going to achieve what we set out to achieve as opposed to function eVectively it needs to have proper levels of forever bidding for finances that sometimes we do not get notification of until the last minute and then administration. We talked earlier on about we have got to try and spend that money in a short performance measurement and performance period of time, which is often very diYcult. Why not management. All that type of work requires support, give us the responsibility right at the very start and it does not just happen. Meetings need to be say, “Well, you get on with it. You’ve told us what minuted. There is a whole range of support which you propose to do. Well, go on and do it,” and if we actually is being driven through the partnership do it, well, fine because we will have achieved our itself and sometimes there are many constraints and objectives. If we do not, maybe there could be some restrictions on us which do not allow us to use the V sort of sanction for us not achieving. I do not know finances to employ sta , for example. Perhaps the whether there are problems with achieving what I direction would be that it needs to go more into our have set out, perhaps it is too simplistic an approach, objectives as opposed to supporting the people who but it just seems to me to be the way we should do it. actually helped us to achieve those objectives. Mrs Williams: Thank you. Q483 Mrs Williams: In paragraph 5.2 of Rhondda Chairman: Okay, I think that is it. It has been a very Cynon TaV’s written evidence you say there is an long session but very useful. Thank you very much “absolute need for the partnership to be supported indeed for coming. Welsh Affairs Committee: Evidence Ev 115
Wednesday 12 January 2005
Members present:
Mr Martyn Jones, in the Chair
Mr Martin Caton Mrs Betty Williams Mr Huw Edwards Mr Roger Williams Mr Nigel Evans Hywel Williams Julie Morgan
The Written evidence from the Gwent Criminal Justice Board is printed on Page 366 and the South Wales Criminal Justice Board is printed on page 358.
Witnesses: Mr Simon Boyle, Lord Lieutenant of Gwent, Chairman of Gwent Criminal Justice Board, Ms Sue Hall, Chief Probation OYcer and Chair of the South Wales Criminal Justice Board, and Mr Stephen Routledge, Performance OYcer, South Wales Criminal Justice Board, examined.
Q484 Chairman: Welcome before the Committee of oVenders who have been brought to justice, i.e. this afternoon. You are aware of what we are people who have committed crimes, have been looking to, which is basically policing and anti- detected and whose cases have been processed social behaviour in Wales. Just for the record if you eVectively through the Criminal Justice System to could in turn introduce yourselves and describe what the point where they have been convicted. As part of you do it would be very useful. Perhaps we can start that we had a whole series of actions. We have been with Mr Boyle. looking in a very rigorous way at how we capture Mr Boyle: Thank you, Chairman. I am the data around oVenders who are going through the Chairman of the Gwent Criminal Justice Board. I system so that we can monitor our performance. In would just like to point out that unlike the chairmen the early stages that was a very big task. We have of all the other Criminal Justice Boards in Britain I been developing our criminal case management am a non-executive chairman and not a professional project in terms of improving police systems, CPS member of any of the justice agencies. When you systems and the points at which those two question me my answers may show that! organisations come together to ensure that cases are processed eVectively. That is one side of our activity Q485 Chairman: I am sure that will not be the case. and I can go into a lot more detail about that if you Ms Hall. wish. In terms of public confidence, we are in the Ms Hall: Thank you, Chairman. I am Sue Hall. I am process of setting up witness care units at the Chair of the South Wales Criminal Justice Board moment and looking at the ways in which we consult and I am also the chief oYcer for South Wales with partners and communicate with the public to Probation. inform the public of the work of the Criminal Justice Mr Routledge: I am Stephen Routledge. I am System and start to receive feedback about key Y performance o cer for the South Wales Criminal issues for the public. Those are the two broad Justice Board. priorities that we have been focusing on up until now. Q486 Chairman: Thank you very much. We are told that the role of the Criminal Justice Board is to improve the delivery of justice and to secure public Q487 Mr Edwards: Good afternoon. Can I refer to confidence in the Criminal Justice System. I wonder the role of the Criminal Justice Board and the way if you could provide some examples both in Gwent that you determine and agree how nationally set and in South Wales of how your Boards address public service agreement targets will be achieved. these issues and how you achieve the aims in Are all these nationally set targets relevant and practice. Again, if we could start with Mr Boyle. appropriate in the two areas of South Wales and Mr Boyle: That is a very wide question. We have in Gwent? fact developed a plan with several headline Mr Boyle: Some of the national targets give a target overarching goals and up to seventy-eight diVerent for a particular aspect of our activity where in our action points in our plan for this year. Each of those particular area we are already ahead of it. There are is under one or other of the main headings and each examples of the opposite as well, where we are miles main goal one member of the Criminal Justice Board behind, so sometimes there is a misfit between what takes overall responsibility for. I do not think you seems desirable locally and nationally only in that want to go through all these. They all fit with the sense. There is no big problem, though, in fitting our overall aim of the Board. local subsidiary targets under the national target Ms Hall: Within South Wales the Criminal Justice headings. Board has been focusing up until now on coordinating and improving joined up justice between the key criminal justice agencies and our Q488 Mr Edwards: Could you give any examples of focus has very much been on increasing the number the two types? Ev 116 Welsh Affairs Committee: Evidence
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Mr Boyle: Well, fines enforcement is one. There is a Q492 Mr Edwards: Do you feel the same? national target and we are a long way ahead of it in Ms Hall: I can give one very good example for South Gwent. That is just one. I do not think there is a huge Wales and that was the implementation of the list where we are miles ahead of the national targets prolific and other priority oVender initiative over the at all, but that is one that triggered my comment. summer, which came at us really extremely quickly. I think it was announced in June or early July for Q489 Mr Edwards: Anything the other way round? implementation by 6 September, or early September, Mr Boyle: I think the ineVective trials percentage. and over the summer the Criminal Justice Boards We have been behind the national target but now in had to work with the Community Safety the most recent ones we have come past it, down to Partnerships to ensure that there were prolific and 20%, the national target having been 25% during this other priority oVender schemes operating in our case year. In our case we know we can do a lot better than in each of the seven CSPs in South Wales. That was that. That is still one in five trials with time and something which it just was not possible to do well resources wasted, which is obviously not acceptable. in the amount of time that we were given, albeit it is But we were at 35% ineVective, so we are making an initiative we would wholeheartedly subscribe to progress. and have worked very hard on. So I think it is very important that if there are going to be developments such as the POPO scheme that we are given proper Q490 Mr Edwards: Thank you. South Wales? advance warning and given enough time to Ms Hall: I agree that it is not actually a big problem. implement them properly. I think the role of Criminal Justice Boards is evolving. In the early days the role of Boards was, I suppose, focused around the national vision of Q493 Mr Edwards: Thank you. Finally, can I ask reducing levels of ineVective trials and bringing you how much scope you feel there is for the oVenders to justice and I think it is quite reasonable consultative and advisory groups to re-focus the that there are national baselines set which areas start Boards’ nationally based priorities to more locally to measure themselves against. But I feel that as we based priorities? have become more mature as Boards our sort of Mr Boyle: In Gwent we have had three seminars at sense of what Boards can achieve is beginning to six monthly intervals, to which we have invited all grow and I am anticipating, for example, in South the members of all the organisations whom we treat Wales when we draw up our plan for next year that as our consultative advisory group. We do speak to as well as the national targets we will be them individually and separately about specific supplementing that with local targets which begin to issues in between. We have had these three seminars, reflect very particular local priorities. I would also which have been very constructive. We have had say that just because there are national targets we are about sixty people there from the criminal justice not constrained at the moment from setting agencies and these other bodies and we directly run ourselves more challenging targets and in the same the agenda for the day on the basis of explaining way as Gwent we have set ourselves more what we are doing and getting the input from all challenging local targets in relation to ineVective present as to whether the priorities should be trials, where we have been quite successful, and also adjusted in one direction or another and we find that in relation to reducing the number of outstanding extremely useful. This is the way we have so far warrants. So we do have that opportunity at the worked in making sure we get local input and pick moment, but my sense is that over the next two to up local concerns as best we can. three years we will see an expansion of the role of Criminal Justice Boards and that then will start to Q494 Mr Edwards: Could you give the Committee perhaps reflect a greater diVerentiation between some examples of what the themes of those Boards across England and Wales. seminars were? Mr Boyle: Well, they had banner headlines such as— Q491 Mr Edwards: Thank you. You mention, if I may, I will find the names and tell you in a Mr Boyle, in paragraph 22 that national initiatives moment. are too frequent and risk diversion of local resources Ms Hall: I think it is fair to say that consultative from local issues. Can you give us an example of networks are not as developed in South Wales as some of the initiatives that you think are too they currently are in Gwent and one of our priorities frequent? this forthcoming year is to develop some sort of Mr Boyle: There is an example in the paper. The structure where we can get better feedback from eVective trial management programme is a national communities and partners. But in itself, as I said in initiative where in some respects, not all, we had my earlier statement, I would not see that as a already done quite a lot of the work in that problem. I think the national priorities are justifiable programme. I think the point I am making is simply national priorities and local issues would come the one I have already made, that if you have a target along as additional priorities, if that makes sense. I nationally some of the forty-two areas are going to be would not see them being in opposition to each in a very diVerent position vis-a`-vis that target and other. may be behind or in front, but if you have too many Mr Routledge: I just want to say with the confidence national initiatives—I can produce a list of them if and public satisfaction target I think that whilst we you like but I have not got it with me. There are other have a headline target of improving people’s belief in examples. I just gave one in the paper. the eVectiveness of the Criminal Justice System to Welsh Affairs Committee: Evidence Ev 117
12 January 2005 Gwent and South Wales Criminal Justice Boards bring oVenders to justice by 6% we as a Board need Q498 Mr Evans: Are you able to say what level to find out over and above what the British Crime below 78% it actually was? Survey is telling us about crime actually what the Mr Routledge: In the past I would say it was local drivers of confidence are and I think we are operating at around about 50 to 60%, maybe mid going to look to try and establish a better network, sixties. Obviously it would fluctuate month by particularly with the public and people who have month, but I think the most recent figures showed a come into contact with the Criminal Justice System. figure up in the nineties over the last couple of One example we mentioned in the paper was the months. So we have actually made a lot of diVerence. establishment of a citizens’ panel. I am happy to It is a big jump. elaborate as we go on. Mr Evans: Thank you. Mr Boyle: I had forgotten the headings of the seminars. Two back it was simply entitled Q499 Mr Caton: Looking again at partnership “Narrowing the Justice Gap” and on that occasion and consultation, Mr Boyle, you just suggested we focused on all the things that go towards making to Mr Edwards that he was invited to your ineVective trials and picked through everything that consultative group on a particular subject. Actually, can go wrong and got people’s input into how we according to appendix 3 of the evidence you have should correct the things that go wrong. The most submitted, which does list a lot of organisations recent one was entitled “Full Steam Ahead”. I think which are invited to these groups, Members of you were invited to it probably, if I may say so. In Parliament are not actually mentioned there; that one what we did was, if you can imagine a sort Assembly Members are. Is there a reason for that? of bar chart with a hundred crimes and somewhere Mr Boyle: You are quite right, sir. I apologise. I may at the end here is the number brought to justice, we have made a mistake but when Mr Edwards I took all the bits of things falling oV and got the thought he meant he had. It could be it has been people in the room to discuss step by step all the omitted from the appendix or you were not asked. things that go wrong and the steps we could take to V V reduce the bits that fall o and get the final o ences Q500 Mr Edwards: I recall getting an invitation to brought to justice figure up. We got a lot of ideas out that, yes. of it. Mr Boyle: As you can see, we have tried to have a Mr Edwards: Thank you. very wide coverage and we certainly had asked Members of Parliament. I can recall one or other Q495 Mr Evans: Did you mention that part of your attending one of the seminars—we have had three— remit is also to look at outstanding fines as well, the but I cannot be sure which is which. level of outstanding fines once they have gone through the system? Q501 Mr Caton: It is just an omission from the Ms Hall: At the moment our remit is around appendix? warrants, that is in terms of people who have not Mr Boyle: I think you are right. It should be in the turned up to court. Does that include fines? appendix. Mr Routledge: We have just been recently consulted about the targets for 2005 and 2006 and it is a new Q502 Mr Caton: Fine. If that is all it is, there is not target for Boards whereas, as Sue says, before we a problem. Can you enlarge a little bit on how, when had just failure to appear at court warrants as a you had the consultative group seminar, the board target, which was a local target. It is now a full strand addresses the issues that have been focused on in which is coming under the heading of enforcement that seminar. and within that enforcement there are still going to Mr Boyle: I can just explain it to you like this: this be failure to appear warrants but yes, that will also time a year ago when we were looking at our plan for include fines. the financial year we are in we had about 45 action points under the main goals, which I mentioned at the beginning, primarily to do with closing the Q496 Mr Evans: You are just taking on this new justice gap and increasing public confidence. After responsibility now? we had this seminar we ended up with 78 actions Mr Routledge: Yes. Before fine enforcement was not because there were another 30-odd points that a target for the Boards but as at 2005–06 it will be a people raised which we felt were valid and needed target for all Criminal Justice Boards. attention so we added them. Hopefully the number of action points will diminish as we gradually tick Q497 Mr Evans: Is it too early to say how the them oV. outstanding debit is— Mr Routledge: I think in South Wales we had Q503 Mr Caton: Thank you very much. Moving to problems with it. Whilst it was not a target for the South Wales, you refer in your evidence to the board, the magistrates’ court committee did bring Criminal Justice Board conferences which you hold some of the issues to the table for debate. It was and you say that apart from the Criminal Justice below the national target, which I think is 78% for stakeholders, race and diversity groups and enforcing fines nationally, but we have actually members of the public attend. Can you expand upon made a lot of improvements and current figures are who has actually been to these conferences? quite far ahead. So hopefully going forward we have Ms Hall: I would have to refer to Stephen as I was addressed some of the problems that we did have. not chair then. 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Mr Routledge: Hopefully it expresses in the paper year. They will be on a variety of subjects. We have that there has actually been one conference that we actually just sent out the first one and the results are have held to date, so not a series of conferences. We due back during February. Supplementing the have a conference on the launch of the Board postal surveys, we will also use focus groups if the whereby we invited key stakeholders and members public are willing to come and meet with us and of the public and we have, as Sue will reiterate, elaborate on some of the things they have said. For discussed holding another such conference again to instance, in our first postal survey we have asked if reflect on where we are now and to sort of people have experienced crime within the last year communicate the work we have been doing and also and if they have did they report the crime. If they did, use it as an opportunity to get questions from the what was the response to that, and if they did not— public and find out their feelings and opinions on particularly if they did not because there is a lot of crime. under-reporting of crime and a lot of victims and witnesses of crime never come into the system—so if Q504 Mr Caton: So who was invited and attended they did not we would like to know why, with a view that first conference? to obviously making interventions wherever Mr Routledge: It was before my time, I had not possible. But as I say, it is a new initiative. We have actually started, but I am under the impression that two surveys this year and hopefully some focus it was obviously representatives from each of the groups and we will see whether we continue that Criminal Justice agencies, diversity organisations, panel throughout the course of time. other sort of non-statutory partners would have been invited, but over an above that I could not say with any certainty. But certainly I could provide a Q507 Mr Caton: Thank you. In section 7.3 of South list of them. Wales’ evidence it is noted that the Criminal Justice Board and Community Safety Partnerships are Q505 Mr Caton: Could you send that to our clerk? working closely at a strategic level. Can you tell us a That would be very useful. bit more about how in practice, that is both in Gwent Mr Routledge: Of course, yes1. and in South Wales, you work with the Community Safety Partnerships? Q506 Mr Caton: You mentioned a little earlier the Ms Hall: There has been a lot of concern, I think South Wales Citizens Panel and you suggested you both at Community Safety Partnership level and at would be able to expand upon that at some stage. I Local Criminal Justice Board level, that we have not think this is probably the stage at which you can until fairly recently found a way of trying to work do that. more closely together. I think in the early days of the Mr Routledge: Yes. It is not a totally revolutionary Criminal Justice Board, Community Safety initiative. I think county councils and other Partnership could not really see the value of what organisations have used them before, but I think it LCJBs were doing for them because a lot of the work we were doing was about the Criminal Justice is new to a Criminal Justice Board. Because public Y V satisfaction and confidence is such an amorphous System and making it more e cient and e ective, kind of subject it is so diYcult to tell if we are making but that was not work that really was the focus of gains. As I said, it is about a 6% improvement target. Community Safety Partnerships’ plans. More We need to know that what interventions we are recently we have begun to recognise that there is a lot V of areas of overlap and in particular the prolific and doing are actually making a di erence and actually V improving confidence. So we are doing it as a trial other priority o enders initiative, which requires the LCJB and CSPs to work together, similarly really this year. We had some money available and V we decided to set up a panel using a professional domestic violence and persistent young o enders. research company. They have recruited a panel of All of those areas are ones where we have got approximately between 1,000 and 1,500 people. responsibilities and CSPs have got responsibilities. They have got representation from across South The way that we have found through it—and Wales according to gender, trying to make sure that actually it is still trial and error—is that I attend the overarching leadership group within South Wales under-represented groups such as the disabled, Y ethnic minorities or the young, who often do not get both in my role as chief o cer of probation and as represented or have a say, are involved in this. So the chair of the Local Criminal Justice Board and some panel is, hopefully, fully representative of South of the other members of the Local Criminal Justice Wales. It will need to be replenished as time goes on. Board who are members of that group attend. At the Obviously some people will come oV the panel and moment we are using that as the conduit to bring others will come on the panel to avoid stagnation, issues and papers where we are trying, I suppose, to but primarily the purpose of the panel will be to influence a more consistent South Wales response undertake about three or four postal surveys per which brings the seven local authorities together. The one which so far has made most progress is the V 1 There was confusion over whether MPs had been invited to prolific and other priority o ender scheme, where the Gwent CJB’s consultative seminars. I can confirm that we now do have a South Wales wide steering group the following Gwent MPs were indeed invited to the last which has representatives of all seven CSPs on it as seminar in October 2004 (though unfortunately omitted in well as other relevant CJS organisations and the error from the list of invitees shown in Annex 3 of our written evidence to the Committee): crime reduction director from the Welsh Assembly Wayne David MP, Paul Murphy MP, Huw Edwards MP, Government also sits on that group. That group is Don Touhig MP, David Havard MP. actually chaired by the Criminal Justice Board but Welsh Affairs Committee: Evidence Ev 119
12 January 2005 Gwent and South Wales Criminal Justice Boards involves the CSPs and I think this is a very important Ms Hall: Well, persistent young oVenders were an development. We are trying to establish something initial priority for Criminal Justice Boards in terms similar in relation to domestic violence and that is of ensuring that anyone who is identified as a currently under discussion with the CSPs. So our persistent young oVender was brought to justice strategy at the moment is really doing it in relation to within seventy-one days. That is the PYO pledge issues which aVect both the CJB and the CSPs rather which was made by the Government and South than our initial plan, which was to have some sort of Wales has been successful in ensuring that joint group. In the end we felt it was more eVective those young oVenders are fast-tracked. Where to focus on specific issues and try to work out a way developments have, I think, taken a turn over the of moving forward. As a result of that sort of early summer with the introduction of the prolific and work that we had done last year around this sort of other oVenders scheme (which is a mouthful) is that approach we are now finding that CSPs are the shift is now not just on processing people who beginning to invite the LCJB representatives to have got a certain number of convictions, it is saying come and talk to them to try and increase awareness who really is causing a problem for the community and understanding. So it is early days but it does feel and what can we do either to deter them, to convict there is more understanding working together over them, or if they have been convicted to resettle and the last six months than there has been in the past rehabilitate them. In a way it has taken a bit of the V couple of years. attention away from young o enders, if anything, Mr Boyle: In Gwent, Chairman, we have a similar and saying it is wider than just young people around thing. We have five local authorities, therefore five bus stops and hanging around streets. CSPs, and there is the question of how to link with Mr Caton: Thank you. them. We have not actually done it yet but we have just agreed with the chief oYcers group in Gwent of Q510 Mrs Williams: I would like to ask a question the five local authorities that members of the on funding. How is the Criminal Justice Board Criminal Justice Board in addition to the Police and funded? the Probation, who are already going regularly, will Ms Hall: We receive a budget in South Wales of £115,000 and on top of that we receive the salary of attend a meeting and try to agree a joint strategy, as Y Sue has said, to deal with schemes of common a performance o cer. interest like the POPOs and domestic violence, so a Y very similar approach. Q511 Mrs Williams: Is the performance o cer’s salary paid in full? Ms Hall: Yes, indeed. Q508 Mr Caton: This is not actually to do with the Mr Routledge: At the moment it is paid in full, yes. consultation process but it is something you mentioned, Ms Hall, the persistent young oVenders. Q512 Mrs Williams: On top of the figure you have We have had at least one submission where there was mentioned? some concern that our shift in dealing with a lot of Ms Hall: Yes, indeed. Next year we are guaranteed these issues is targeting young people specifically. I the same levels of funding, although we do not know know that the Home OYce has set you this agenda, exactly what yet, but the performance oYcer’s salary but are you worried that young people are will, I think, be paid by— increasingly being seen as the problem? If you are a Mr Routledge: Centrally by the Home OYce next persistent oVender it does not matter whether you year. are young, middle-aged or old, I would have said that you are a problem to society. Do you see any Q513 Mrs Williams: For how long? problem with focusing so much on young people, as Mr Routledge: It appears that whilst we were we seem to these days? initially employed by the Home OYce we have Ms Hall: It is interesting actually that the prolific recently transferred, but our line management is by and other priority oVender scheme is not necessarily a local agency. So I am actually seconded from the focusing on young people. That is saying that CSPs Probation Service and I am now managed by Sue as should identify those oVenders who are causing Chair of the Board. That was a decision which was Y Y them the most problems and the way those oVenders taken by the Home O ce, but the Home O ce have Y are identified is a combination of using the Police said that they will fund the performance o cer’s National Intelligence Database and local salary next year but after that Criminal Justice Boards will be given a lump sum each year and it is knowledge. That scheme should not be focusing on V the very low level young oVenders, who perhaps are up to them what sta they appoint, if necessary. not really the ones who should be coming into the Y Criminal Justice System. This initiative is focusing Q514 Mrs Williams: So it is di cult to plan ahead in on people who are getting into trouble, who are that sense? being convicted, and actually it can include people Mr Routledge: Yes. up to the age of ninety; it does not have to be young oVenders. Q515 Mrs Williams: You are only able to plan ahead for twelve months or so, are you? Ms Hall: This is a problem which is not unknown to Q509 Mr Caton: But you identified persistent young those in the public sector, but we have funding oVenders as another category, did you not? guaranteed for next year. Beyond that, we do not Ev 120 Welsh Affairs Committee: Evidence
12 January 2005 Gwent and South Wales Criminal Justice Boards know. We will make the assumption that we will Q520 Julie Morgan: So it is not something that is carry on, but we do not actually categorically built into the system in any way, it should be more know that. stable? Ms Hall: Yes. The only thing which is built into our Q516 Mrs Williams: What is the figure for Gwent? constitution is that the chairmanship will rotate. Mr Boyle: For Gwent this year it is £85,000 and we have been told it will be the same next year, plus the Q521 Chairman: Can I just come in there. You did cost of the performance oYcer’s salary. But it is mention, Mr Boyle, that you are diVerent from worth adding, if I may, Chairman, that we currently everyone else. How did that come about? do not have a performance oYcer. The first holder Mr Boyle: Chairman, of course I am not as diVerent of that post in Gwent left, partly for the reason that from everybody else as all that but when the Boards it was so uncertain what the future was. We do see were first formed the four main agency heads in this as a problem in Gwent. Obviously all the public Gwent (the Police, the CPS, the Probation and the service budgets are never confirmed except year by Courts) got together for a shadow meeting and one year, but most of the public sector agencies have a of the items they discussed was who should be the vision beyond one year. The Criminal Justice Boards chairman. I believe all the other Boards decided that really should have the same longer vision if the one of them would, either on a rotating or a Government believes they should continue, because permanent basis, but they took the view that they otherwise it is very diYcult to recruit and retain wanted an independent chairman. people. Mrs Williams: Thank you. Q522 Chairman: And you were it! Mr Boyle: Three of the individuals concerned have Q517 Julie Morgan: I am going to ask about the since moved from Gwent. Having decided that, they justice gap and public confidence, but before I do then asked me if I would be willing to do so and I that I wonder in South Wales what you do to involve accepted on a sort of temporary basis to see how it the elected representatives in the activities of the went. In the meantime, as in South Wales, we have Criminal Justice Board, because I think we have had had a new Chief Constable last year, we have had a a response from Gwent. I just wondered whether new head of the Court Service and a new head of the you did anything or whether you plan to do CPS. So I have ended up, to my surprise, being the anything. continuity man to some extent! That is how it Ms Hall: I am going to have to hold my hand up happened anyway. really and say that the Board to date has been Chairman: Thank you. undeveloped in the way that we have consulted with partners, with the Welsh Assembly Government and Q523 Julie Morgan: I was going to ask about with elected members and we recognise this. We increasing public confidence in the Criminal Justice have had actually a huge change of personnel on the System and you have already answered a bit about Criminal Justice Board. I think every single member that. How do you measure public confidence and of the Board has changed in the last six or seven how reliable are the measures? You have talked months, as a result of which we really have refocused about the panel. and done a lot of thinking about where we should be Mr Routledge: Just to go back, we are measured going as a Board. We have got an awayday next nationally by the British Crime Survey. We get week and one of the topics for that awayday is results on a quarterly basis. There is only one about participation, community engagement and particular aspect on which the Boards are judged involving people. We recognise it is a gap and we against, which is the eVectiveness of the Criminal have not done enough yet on that score. Justice System or at least the perception of the public of bringing oVences to justice. So in terms of national measurements there is only one particular Q518 Julie Morgan: I think the elected target. We have not been given a great steer over and representatives would welcome the opportunity to above that of how we measure public confidence by become involved. You mentioned the change in the centre, although I think recently they have taken personnel and I think that is a big issue in any groups on board the fact that the Boards are saying what is which try to coordinate, work together and plan. working in other areas and how can we share that, How long are people on the Board for? Is it fixed? because it is very diYcult to say that something Ms Hall: Yes. Your membership of the Board links which is working in one area would necessarily have to your role, therefore the Chief Constable, the Chief an improvement in public confidence if you OYcer of Probation, the Area Director for the introduced it in your area. So over and above that Prison Service, the Chief Crown Prosecutor and the high level measure, as I say, the panel is a way of Area Director for the new unified Court Service are tapping into public feelings and public opinions. We all on it as of right. also look to try and at least evaluate every intervention that we do, so we will undertake Q519 Julie Morgan: Indefinitely? evaluation and questionnaires. For instance, when Ms Hall: Yes. All of those organisations have had a we introduced the video which is mentioned in the change of head over the last year or so and that is briefing paper we evaluated that and as part of a why the change has happened on the Criminal teaching package we will continue to evaluate what Justice Boards. people say about that and the questions which are in Welsh Affairs Committee: Evidence Ev 121
12 January 2005 Gwent and South Wales Criminal Justice Boards the evaluation form are linked back to the questions Mr Boyle: Yes. I will keep it brief and give you the within the British Crime Survey itself. But I think short version. We did a local survey through a there is scope possibly as well of moving forward and professional agency in March which produced a actually conducting professional research, perhaps forty-three page report and basically it said that from CardiV University in our case or one of the most people in Gwent were confident in the Criminal other universities in South Wales, which we have Justice System in Gwent but the large minority who done in the past. With domestic violence we had a were reported not to be very happy about it were sort of evaluation report done by a doctor in the disproportionately those who had brushed with the university. So I think there is scope as well for Criminal Justice System in one way or another and actually getting professionals in and giving us some the ones who were most happy about it were those assistance, but over and above that the Boards are who had never had any contact with it. Within the very much left to sort of find their way. forty-three pages, as you can imagine, there were numerous points which we are gradually trying to Q524 Julie Morgan: Are you sort of implying there follow up. Victims and witnesses comes out all the should be more guidance? time. I do not think this point has been brought out Mr Routledge: I think it would be helpful because, as much yet. I say, again it is a very broad subject. Because you bring more oVences to justice does that necessarily mean increased public confidence? As you know the Q528 Julie Morgan: That was the next question discrepancy that everybody is talking about is the actually. fact that whilst recorded crime has fallen for many Mr Boyle: It came out in our seminars that years, I think for the last seven years, and the tremendous priority is being given and will chances of becoming a victim of crime are less than increasingly be given to trying to make things easier ever according to the British Crime Survey people’s for victims and witnesses because without them no fear of crime is actually on the increase and I think progress can really be made, and public confidence really reducing that fear is a key aim. But again, how is very much linked to that as well. do you measure it? So as a Board we are quite new still and in terms of our measurement of this particular target we are learning, I think. Q529 Julie Morgan: So how do you actually measure this victim satisfaction? Mr Boyle: We have not really got a measure yet. Q525 Julie Morgan: From what you have done so Mr Routledge: If I might add, there is a survey called far do you have anything to suggest why there is this the WAVES survey. I think it stands for Witness and disparity between the public’s perception and the Victim Experience Satisfaction, which is going to be actual figures? undertaken by MORI. I think they have been in Mr Routledge: National research which was carried contact with lead people within each of the agencies, out before the confidence target was introduced showed that a lot of public confidence is determined particularly the Police, to identify victims and by the media. They do have a large role. That does witnesses who have come into contact with the not mean that they totally determine it, but they do system and who are willing to be contacted about have a large role to play and linked to that we have their views. So there is something nationally due to engaged a professional media company to help us come in, but I do not think we will see the real results with press releases and radio interviews because that of that for about six months or so until it is up and is seen by research as an eVective way of improving running. public confidence. But also I think research has shown that your contact with the Criminal Justice System regularly influences your confidence, so we Q530 Julie Morgan: The Government is proposing have got a real sort of focus about improving the to have a victims’ commissioner, is it not? way that we service the public. I think also your Mr Routledge: That is right, yes. contact with family and friends as well is another key one, somebody who knows someone who works in Q531 Julie Morgan: Do you think that may help? the Criminal Justice System. So if we are able to Mr Routledge: I think so. Certainly having a victims’ improve internally the staV’s belief in what they are commissioner is important. I think the shift doing, their confidence and meaning in what they are doing, I think ultimately that will pay oV in terms of particularly is much more victims focused than it has what they tell the public and family and friends, et been in the past. It is never going to be nice to be a cetera. witness in court but I think the services that we provide need to be much more coordinated. People need to be given more information about their case Q526 Julie Morgan: Thank you. The Gwent because often in the past victims and witnesses have Criminal Justice Board has been involved in never had a central contact point, whereas with confidence research you say on your website? witness care units you will have a single person who Mr Boyle: Yes. manages their case from charge to sentence. So there is a definite shift in focus towards victim and witness Q527 Julie Morgan: Can you tell us any more satisfaction. about that? Julie Morgan: Thank you. Ev 122 Welsh Affairs Committee: Evidence
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Q532 Mr Williams: Good afternoon. Perhaps we electronic exchange of the information. So it made it could turn to performance management and data. In more accurate and speeded up the process. So from a Gwent we are told that the traYc light system is used lag of about seven months, which makes it extremely for performance measurement. Perhaps you could diYcult to performance manage, as you can tell us something about that. imagine, we eventually brought the data up to date Mr Boyle: Certainly. I mentioned earlier that we had to within two months. There is still scope for seventy-eight actions on our list this year and we use ensuring that local systems for collection of data are the traYc light system. Red means either the action water-tight and that the checks are done on a regular on it has not started or it is less than 50% achieved. basis but, as Sue says, we are quite confident that the yellow means it is half achieved but less than 80% data in that area is now very good and I would say and green is 80% or complete. that with the other data that we gather the systems that we have in place are very strong and we are Q533 Mr Williams: Is that qualitative or confident that the data we collect is accurate, if not quantitative? to 100%. Mr Boyle: Some are qualitative and some are quantitative. Q537 Mr Williams: So the data is strong when it gives you the message that you would like to hear but Q534 Mr Williams: Also in paragraph 21 you say perhaps not so strong when it gives you the message that the credibility of the data is an issue in Gwent. that you do not want to hear? Can you perhaps explore that a little bit for us? Ms Hall: I think it has been because we recognised at Mr Boyle: This is a sore subject because obviously the very beginning, as I mentioned earlier, that our the measure of oVences brought to justice is our systems were not terribly robust. We have put a lot crucial measure and we have been rather of eVort into sorting out our data collection system dumbfounded by the fact that the national figures because if you cannot actually accurately measure collected up in the centre show that all the trends are something you do not know how you are doing and going the wrong way, whereas we were fairly it is diYcult then to focus your priorities and your convinced we were making progress. We have an eVorts. So that has been, I think, one of the successes ongoing investigation into this. But apart from with the South Wales Board. actually getting it right, there is a very tangled route Mr Williams: Thank you. for the statistics. They have to go through numerous diVerent gates where coding errors can be made. Q538 Mr Edwards: Could I ask you about anti- That is what I am referring to there. social behaviour. In evidence to this Committee the director of the anti-social behaviour unit at the Q535 Mr Williams: So is there work in progress Home OYce talked about anti-social behaviour perhaps? prosecutors. We questioned the chair of the North Mr Boyle: Yes, we are still working on trying to get a Wales Criminal Justice Board on this, so could I ask robust measure which we can totally rely on. I think the same question of you. Do you have dedicated some of the problem has been of our making in anti-social behaviour prosecutors in Gwent or South Gwent, frankly. If I say that in Gwent they tend to Wales? Has this been a matter which you have say I am wrong. considered? Mr Boyle: We have not got anybody with that label Q536 Mr Williams: Ms Hall said that there was a in Gwent yet. problem, perhaps, when you set up your Board in the beginning. Is there any work which can be done Q539 Mr Edwards: Has it been considered? between organisations, perhaps, on these issues Mr Boyle: Not to my knowledge, but we have had a which would prevent the same system having to be gap in the leadership of the CPS and I think we will invented again? be discussing it. Ms Hall: Yes. Certainly we have been talking over Ms Hall: Can I start oV by saying that Anti-Social the recent days and I think it might be helpful for Behaviour Orders are not actually a priority for the South Wales to talk with Gwent when the Gwent Local Criminal Justice Board. That is not to say we performance oYcer is appointed because I think our do not take an interest in it, but we are not tasked position is that we are relatively confident in our with overseeing the operation of anti-social data and our data is more up to date than Gwent’s behaviour. That has been driven very much through and perhaps our performance oYcer can explain the Community Safety Partnerships and the local why that is so. authorities. However, having said that, we do take Mr Routledge: We did have a bit of a lag with our an interest in what is happening and we do have a oVences brought to justice data. It is a complex specialist anti-social behaviour prosecutor in South process. I think the main problem we had was that Wales, and indeed an extremely active specialist CardiV Magistrates’ Court was submitting manual prosecutor who, as we have mentioned in our forms to the Home OYce, or at least the Police were evidence, has recently convened an anti-social sending manual forms to the Home OYce. behaviour legal group to try and ensure that Obviously that slowed the process down and meant consistent standards of legal advice are oVered the data lagged. We had the assistance from the across the seven CSPs and to provide a sort of Home OYce, which implemented an assisted data network for the prosecutors in each of the seven interchange link, a grand phrase basically for CSPs to meet, together with the Police solicitor. Welsh Affairs Committee: Evidence Ev 123
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Q540 Mr Edwards: Is this the ASBO legal group? Mr Boyle: I can certainly comment on that. As Sue Ms Hall: Yes, it is. has said, it has been regarded not in the same way as the media would have it, as something you slap Q541 Mr Edwards: So you see some benefits from around everywhere, but as a last resort. We are not that? directly responsible, as Sue has said. It is initiated by Ms Hall: It is very, very early days. They have had the groups, which include the Police, the local all of one meeting. They had their meeting, I think, authorities and the housing associations. They either in December or very, very recently. But it is consider the case at first hearing and they have a sort very clear that there is perceived to be a great need of toolkit of possible responses, of which an ASBO for this group. There is going to be a formal launch is only one. All I know is that the courts have dealt of the group in March and I will ensure that with them immediately on the day requested, there invitations are sent out widely for that launch. So have been no delays, and any breaches of ASBOs obviously we will evaluate it when it has been have resulted in custody in Gwent. So it is tight at running a bit longer, but certainly it fills a gap which that end. The only comment I would make is that I exists at the moment where prosecutors do not have became aware that there were about twelve hundred good networks to fall back on and this, hopefully, and something ASBOs issued in the last twelve will develop good practice across South Wales. months in England and Wales. It was reported to be four times the number of the year before. If that is correct, twenty-one in Gwent is actually Q542 Mr Edwards: There have been new sentencing proportionally high-ish for our population. guidelines on the consistency of magistrates’ sentencing in anti-social behaviour cases. Have you Q545 Mr Edwards: I am sure you would accept that got any comment on that? the public perception is that this is probably a very Ms Hall: In South Wales the number of cases which useful tool. actually go to court for an Anti-Social Behaviour Mr Boyle: Yes. Order is really the tip of the iceberg. The strategy within South Wales is very much about trying to tackle the causes of anti-social behaviour at their Q546 Mr Edwards: My impression is that the public root and to try and resolve the problems without do not feel very reassured, or certainly not the area actually resorting to court. So in South Wales cases that I represent, that they are actually being only come to court if all the other measures have deployed as a useful tool and I can certainly say from failed and I think currently it is only about 5% of all my own experience of clearing up broken vodka referrals for anti-social behaviour which actually bottles on the sports field in Monmouth on a end up in court. Therefore, I am aware that the Saturday morning and thinking about the guidelines exist but I am not aware that they have disruption which under-age drinking causes in the made a big diVerence in the way that ASBOs are community, even a small community like being dealt with by the courts. Monmouth, that there might be a few more ASBOs being considered and other of the techniques which have been introduced in recent legislation. Q543 Mr Edwards: How many ASBOs in South Mr Boyle: It is a fair point. The local authority Wales have there been in, say, the last twelve provides a chair of the group which either initiates months? ASBOs or other remedies. They have a thirty-five Ms Hall: Interestingly, as a Criminal Justice Board page protocol of possible ways of dealing with these we do not monitor that information and I was aware things. I cannot answer in detail about Monmouth, that we did not in preparation for today’s event and you know more about it than I do. To be quite frank, I asked CPS whether they could tell me and even the if I could add, Chairman, I think the public were specialist ASBO prosecutor was not able to give me oversold a bit on ASBOs because there are lots of an accurate figure for the last twelve months. It is other things which you can do of a preventative between twenty-four and thirty, and I think the nature which must come as a better choice really if reason why it has not been possible to get an you can prevent people from getting into court by accurate figure is because these figures are collected other remedies. locally, within the local authorities. Now that we have a legal group I would hope that we start to get Q547 Mr Edwards: Yes. My own impression, and I some more accurate monitoring information would like to have the evidence, is that they are coming out. probably used far more in a place like Salford, an inner-city area, than they are in some of our Q544 Mr Edwards: I am sure we would welcome communities? that. Given the high prominence that ASBOs have Ms Hall: If I could answer that, I think there is a bit attracted it would be reasonable that we or the of a postcode lottery around ASBOs. I think the public could be informed about the number of evidence is clear that in some parts of the country ASBOs. In the Gwent evidence to us you say, they are used much more frequently than in other Mr Boyle, that you have had 21 in Gwent. Have you parts of the country. I would like just to repeat what any comment on that? It does not seem to me that I said earlier, which is that the local Criminal Justice many given the sort of nature of some of the Boards are not responsible for ASBO strategy within communities in Gwent and some of the problems communities. They are very much part and parcel of that we all confront now and again. the Community Safety Partnerships. Obviously we Ev 124 Welsh Affairs Committee: Evidence
12 January 2005 Gwent and South Wales Criminal Justice Boards have an interest and I think we need to find a way of what is the relationship between the National linking in more to the sorts of decisions which are Assembly for Wales, the Welsh Assembly made around ASBOs, but it is very much a local Government and the Criminal Justice Board? issue rather than an LCJB issue. Mr Boyle: Not intimate because, as you know, the Criminal Justice Boards were set up from London, Q548 Mr Williams: You talk about a postcode not from CardiV, and how this will develop in the lottery for ASBOs. Do you think that is because future I am not quite sure because obviously the there are diVerent definitions of anti-social Welsh Assembly does have a hand via the local behaviour in diVerent areas as opposed to crime, for authorities in the Community Safety Partnerships instance, which has a legal definition for the crime? but not directly in the Criminal Justice Boards. Ms Hall: I think there is a number of factors. One is, Ms Hall: Similarly, when the Boards were conceived I suppose, the tolerance within a local community of and originally set up there were not a lot of points of certain sorts of behaviour and another will be the contact because so much of the work was being done culture of the Police, the local authority and courts around the Criminal Justice System, which is not the within that area and that varies. In some cases areas responsibility of the Assembly Government, but as will want to move much more to processing things we have now begun to get more initiatives involved, through the courts and having legal sanctions, the CSPs, so we have begun to have greater contact whereas in other areas there may be more willingness with the Welsh Assembly Government, largely to try other measures first. That is what I think leads through the crime reduction director, that is our to the discrepancies across the country. Anti-Social main link. As we have said in our submission, we did behaviour itself is actually quite diYcult to define. receive £8,000 worth of funding from the Assembly What one person might call anti-social behaviour Government to help with our Citizens Panel, which another person might just think is normal is an extremely positive move. It is a sort of needs boisterousness amongst young people. must arrangement at the moment. Where there is a need to communicate that happens, but there is not Q549 Mr Williams: My Chief Constable! a sort of ongoing day by day relationship. Ms Hall: There is a dilemma and in a way local communities have got to find local solutions to this. Mr Williams: Thank you. Q552 Mrs Williams: In paragraph 8 of your submission you mentioned the creation of a strategic Q550 Mrs Williams: On the same topic, clearly you group, which involves the CJB, the CSP and the take an interest in the whole issue but is there crime reduction director for Wales. What is the evidence, do you think, in your particular areas that purpose of this group and how is it working, or is it magistrates in some areas tend to be softer than in too early to say? Is it making an impact? other areas, because at the end of the day it comes Ms Hall: Since this statement was prepared there before the magistrates and they make a decision have been developments, which I referred to earlier. whether they go for an order or not? Is there any We did have a proposal that we would have the evidence of that in your areas? strategic group but on reflection we felt that it Ms Hall: I would have to say for South Wales, and actually made more sense to use the overarching I have checked this out again before I came, I am leadership group within Wales as the meeting point told that where an application is made for an Anti- for the Local Criminal Justice Board and the CSPs, Social Behaviour Order in South Wales it is almost and the crime reduction director attends the invariably granted and that breaches are treated overarching leadership group as well. So we are very seriously. So we do not actually see any making use of an existing meeting to do that piece of problem with the magistracy in relation to Anti- business at the moment rather than create a separate Social Behaviour Orders. group, which we had initially been discussing. This Mr Boyle: I think I may have mentioned before that was to make better use of everybody’s time. every ASBO requested by one of the CSPs has been granted with no delay. Of course, evidence has to be produced and the court makes the final decision, but Q553 Mrs Williams: Are there any special issues every one that has been requested has been issued. which arise for Criminal Justice Boards in Wales So as Sue says, it does go a little bit back to the that do not arise for CJBs in England as a result of Community Safety Partnerships as to how often devolution? they actually request an ASBO and they have other Ms Hall: Without any doubt, and I worked in options for dealing with things. England for many years before I came to Wales. Mrs Williams: Thank you. Without doubt it is more complicated in Wales Chairman: In that case, unless there are any other because of the use that is made of CSPs by the questions— Assembly Government for driving down strategy in Mrs Williams: I would like to ask a question about relation to health and community safety, which the relationship between— means that initiatives can happen within CSPs which Chairman: Carry on then, Mrs Williams. are not really paralleled within England and are not reflected in some of the initiatives which come Q551 Mrs Williams: I just wanted to follow up what through from the Home OYce and from London. So Mr Edwards has asked really. What I am interested there is more of a balancing act that has to happen to know is, and I am sure the Committee is as well, here in Wales than happens in England. Welsh Affairs Committee: Evidence Ev 125
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Q554 Mrs Williams: What do you think in Gwent? Q555 Chairman: Thank you very much for coming. Mr Boyle: I have not seen what happens in England It has been a very useful session. in the same way, but I do not think the Criminal Mr Boyle: Chairman, would it be totally out of order Justice Boards themselves actually operate any to ask you a question, sir? diVerently in Wales to England from what I have gathered. But as Sue says, there are twenty-two Q556 Chairman: It generally is, but I shall allow it on Community Safety Partnerships and four Criminal this occasion. Justice Boards in Wales, so there is obviously quite Mr Boyle: I know you have been taking evidence a lot of intensive liaison and scope for crossed wires from numerous people. What is the end of the process? Do you produce a sort of report? just in that structure. I am not quite sure what proportion of Criminal Justice Boards to Q557 Chairman: Indeed we do, yes. Community Safety Partnerships there are in Mr Boyle: With a hundred recommendations, that England. sort of thing? Ms Hall: I think that the issue is less the number of Chairman: I doubt that it will be a hundred, local authorities to Boards, it is rather where the Mr Boyle, but there will be a report with strategy comes from and what the drivers are. It is recommendations which goes to the Government just more complicated in Wales because of the and then they have to respond within two existence of the Assembly Government. months. They may not have to implement the Mrs Williams: Thank you. recommendations. Thank you.
The Written evidence from Ceredigion Community Safety Partnership is printed on Page 325 and Denbighshire Community Safety Partnership is printed on page 327
Witnesses: Mr Owen Watkin, Chairman, Ceredigion Community Safety Partnership, Chief Executive, Ceredigion County Council, and Mr Ian Miller, Joint Chairman, Denbighshire Community Safety Partnership, Chief Executive, Denbighshire County Council, examined.
Q558 Chairman: Can I thank you for your written Mr Watkin: Thank you for the question. There are submissions originally and for coming here today a number of elements here. We are enjoined to for the oral evidence session. Just for the record, can undertake a crime audit in all areas of Community I ask you to introduce yourselves, but before I do can Safety Partnerships and that will lead to a strategy I also warn you that within about 10 minutes there which is meant to reflect the priorities of our will be a division in the House and I will have to communities. So there is a local issue with regard to suspend the sitting. It is an occupational hazard. their priorities. There are bound to be national Mr Watkin, would you like to start? priorities. We understand that the Home OYce, Mr Watkin: Could I firstly thank you for inviting us having published their priorities, require this afternoon to give evidence and we are grateful Community Safety Partnerships to acknowledge for this opportunity. My name is Owen Watkin. I am those and to act towards them. The reconciliation Chief Executive of Ceredigion County Council and between national priorities and local priorities and, also Chairman of Ceredigion Community Safety as has just been alluded to, maybe priorities from the Partnership. Welsh Assembly Government need to be reconciled Mr Miller: Good afternoon. My name is Ian Miller. in the form of discussion at a local level. We have, for I am the Chief Executive of Denbighshire County example, a letter from the Permanent Secretary of the Home OYce of 8 December 2004 referring to Council and I am the joint Chair of the Denbighshire Home OYce Public Service Agreement targets and Community Safety Partnership. there are seven of these. One in particular, the PSA1 is to reduce crime by 15% overall. It depends on the Q559 Chairman: Can I ask you who the other quartile of the Community Safety Partnership with Chair is? regard to the actual percentage. In order to take this Mr Miller: Yes. The other Chair is Chief forward what is suggested by the Assembly is that we Superintendent Julian Sandham, who is the have discussions at a local level, that is the CSP, the commander of the basic command unit. BCU Commander, the representative of the policy Chairman: Thank you. If I can start oV with authority, in order to create an understanding of Mr Roger Williams. what the targets should be. It is intended that those targets should form part of the community safety strategy itself. So if we go back to the beginning of Q560 Mr Williams: Thank you very much indeed. my explanation that although we have local Perhaps we could explore the issue of national priorities under the current arrangements we have to priorities and how appropriate they are to your adhere to the agreement on national targets. So there regions and how you try to harmonize local and has to be this discussion and an attempt to reconcile national priorities in determining the Community the right targets for each Community Safety Safety Partnership strategy. Partnership. Ev 126 Welsh Affairs Committee: Evidence
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Mr Miller: If I could perhaps add to that, obviously Mr Watkin: I think it is similar to the lines that Ian from the local government perspective we would Miller has just referred to. We recognise from the prefer local discretion and accountability for crime audit that there are fundamental things which whatever targets and priorities we set, but obviously worry people in the community, alcohol-related we also recognise the right of the UK Government crime, violence, bad behaviour, and these are or the Welsh Assembly Government to indicate reflected in national general issues and targets. The priorities. But certainly with those that come from question is, how do we actually tackle them on a the Home OYce I think there is the danger that local level and at the same time having to meet target because there are looking at Wales and England as improvements? Policing in a rural area, it is obvious a whole it is quite likely that things which they might to all of us, is a totally diVerent issue from policing identify as priorities across such a large area are less in urban areas in terms of distance, sparsity, the likely to be relevant when you come down to the number of resources, the number of police available. county level in Wales, and that can even be a Also, in the area in which we have become more problem in Wales. If you set a national target for deeply involved in terms of ASBOs, as you have just Wales you might find that that is not necessarily heard, how do we deal with these at a local level? So relevant in every area. Just to give one example of there are issues where we have to try and create the that, one of the ten priority areas in crime reduction right solution for each CSP in order to deliver and which has been identified by the Home OYce in the there are bound to be nuances and variations letter Owen Watkin has referred to is the theft of between all areas, as Ian mentioned, areas within pedal cycles. Well, that is just not an issue in Wales because of the diVerent make-up of diVerent Denbighshire and I doubt that it is a particularly areas. significant issue in many areas in Wales. That is just one illustration of the problems that can come from a national approach which adopts a single Q562 Mr Williams: Rural Wales has particular straitjacket, as it were. We do have then the diYculty problems with travelling criminals, we are told. Does of harmonizing between what we want to do locally your work have a particular emphasis as regards and what is coming down from above. Obviously we that problem? cannot ignore what is coming down from above. We Mr Watkin: I think, Chairman, they would be have in the last year or two in Denbighshire reflected in the nature of the crime, that is if we were consciously sought to align our targets with those talking about theft of a vehicle or theft from a that are in the policing plan for the central division vehicle, vehicle interference or tampering, or in North Wales Police because there seemed no logic burglary, that would be the nature of the alleged in having diVerent targets from those which the oVence whoever was the perpetrator. I regret I have Police were working to. But if I could just give one no information about travelling criminals. other illustration of something which seems rather Mr Williams: Okay. Thank you. unrealistic, I am sure the Committee has heard V about the priority and prolific o ender scheme and Q563 Hywel Williams: Community engagement is at we have moved forward very quickly in identifying the heart of both policing and the community safety the people we are going to target in Denbighshire. agenda and in fact you refer to it in your But more recently there has been a request that we submissions. How do you consult with the should set a target for how much crime was going to community? Secondly, how do you reach the be reduced in our area by the end of March this year particularly diYcult to reach groups? as a result of implementing the scheme. Well, with all Mr Miller: What we have done in the past in due respect to our friends in the Home OYce, that Denbighshire is we have undertaken a survey of is a virtually impossible task. While one can identify young people’s attitudes to crime and that threw up how much crime the individuals who have been some interesting responses from them. Also, we have convicted are committing, or perhaps have been suspected of committing, it is a very diYcult task used things like our citizens panel. We have a citizens then to say how much crime is going to fall as a result panel of five hundred people which we use for of having the new scheme. surveys on a variety of things and we have taken Mr Watkin: Could I add a comment. On the their views on these sorts of issues as well. Then we national targets, I think we need to be clear what did a more extensive survey last year in preparation targets we are talking about. There are the Home for our community strategy, which asked about OYce targets, the National Probation Service issues and performance relating to a wide range of targets, the Youth Justice Board targets and we have public services, not just about the county council, heard just now there may be Local Criminal Justice and that identified that actually one of the issues that Board targets. There is a number of performance people seem least satisfied with was the performance indicators, therefore, in the field of community of the Police. As we have heard from the earlier safety and crime reduction. It seems to me that it witnesses, there can often be a disparity between the needs to be simplified in order to make sense and to reality and what people’s perception of the reality is operate much more eVectively. in terms of crime and disorder. More recently we have been consulting on our audit of crime and Q561 Mr Williams: Also, Mr Watkin, in your disorder and we circulated that very widely to evidence you say that as a result of the rurality of community councils, voluntary groups, and so on, Ceredigion you have diVerent needs and priorities and sought views on its findings and what we have and solutions to those set nationally. Perhaps you identified as the priority areas in our draft strategy could give us some examples of those? for 2005 to 2008 and in the next month or two the Welsh Affairs Committee: Evidence Ev 127
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Community Safety Partnership will be meeting to sure that we adhere to equality of opportunity in consider those and finalise it. Obviously as part of language choice is very, very important and within that we do try our best to seek the views of groups our resources we are trying to advance that. which represent more diYcult to reach sectors of the Mr Miller: Very briefly, there is a range of things population. For example, the North Wales Race that we do and there is something called Crucial Equality network is one of the bodies that we have Crew, which is an organisation which visits schools certainly involved in that work. and covers a range of things other than community Mr Watkin: In a similar vein, I think perhaps the safety, and I am sure they deliver their programmes easiest way of doing it is by proxy in the sense that in the appropriate language. Equally, the schools’ we are currently consulting on the audit which leads liaison oYcers the North Wales Police have been to the next strategy and a document has gone out to investing in recently again and I am sure that they bodies which represent communities within the also can deal with whichever language is most community, that is providers of, shall we say, drug appropriate for the children. Denbighshire’s own rehabilitation, those who look after people who are policy is of course strongly in support of producing vulnerable in society. So we may not be able to get material bilingually and encouraging people to use directly to the hard to reach groups but we are Welsh if they want to do so in dealing with any issues making an eVort to get as close as possible to those with the council. who are in contact with those groups. As I say, they Hywel Williams: Thank you. I think that is all that I could be, in terms of substance misuse, the voluntary have got. organisations, the people who deal very intimately Chairman: Thank you for that. We need to break with these groups, bodies who are linked to women’s now for about 15 minutes. aid, the young, the elderly and the physically and The Committee suspended from 4.33 pm to 4.49 pm mentally disabled. We are trying to do it by going to for a division in the House. those who are in the best position to know because we recognise that the resource to go actually to the hard to reach groups is beyond the resources Q565 Mr Caton: If we could look again at targets available to us. As I say, there is a very wide and performance and their measurements and going consultation in order to try and bring this back to some of the points you made about the V information forward. Also, I think we have to di erence between national and local targets and recognise that we have forty-two county councillors performance measurement setting. The Building who are close to the community, fifty-one town Communities, Beating Crime white paper seeks to community councils and a number of groups which institute a new rigorous performance regime for make the link and they are able to inform us and give Community Safety Partnerships and the CSP V us their judgment on issues which aVect the hard to performance targets will be di erent from the Police reach groups. performance targets. How will this new performance regime impact upon the Partnerships’ arrangements in Denbighshire and Ceredigion and will this help or Q564 Hywel Williams: Might I just ask a hinder the role of the Police within the Partnerships? supplementary? This is a particular hobby horse of Mr Watkin: Chairman, I think that question goes to mine and perhaps some of the members of the the nub of the dilemma really because we have Committee as well. One of the criteria for diVerent drivers going in diVerent directions. As I evaluation, as we have already said, is an ongoing sought to explain before, I think the reconciliation dialogue with all sections of the community. We we have to seek is to negotiate targets which are talked earlier on about adhering to priorities from meaningful for the particular CSP. If I could just central government, from the Home OYce or quote from the letter of 8 December, to which I whomever and of course the National Assembly referred earlier, they say there is a clear relationship Government comes into this. Specifically I was between the targets set for CSPs in respect of PCA1, thinking in terms of Iaith Pawb, which is the strategy which is the 15% overall crime reduction target, and for mainstreaming the use of the Welsh language in the target set for Police Forces above Force or BCU the activities of bodies such as your own. I did note level and to that end they refer to Home OYce that the Ceredigion submission does refer to regional directors. I think what they are referring to developing bilingual intervention programmes. I in Wales would be the Home OYce regional director just wondered if you could possibly tell the sitting in WAG oYces together with the other Committee a little bit about that or if either or both person to be appointed. You have heard evidence of you could tell us a little bit more about the use of from Miss O’Mara, I think, earlier on in November the Welsh language. It is a particular interest of that there was going to be another person to be mine, which is why I am taking this opportunity to appointed. They will facilitate meetings at county tax you about it. force level with Chief Constables, the Police Mr Watkin: I am trying to find the paper which authority and Partnership chairs to ensure the refers to this. We are funding a post which does Partnerships’ targets and Police targets are in intervention work with young people in the YOT alignment. That, I take it, is the aim of the Home and the oYcer involved there went on an intensive OYce but I think there are practical problems which Welsh course. We want the language of choice to be arise from that. One is, for example, the timing of the available to whoever is involved in these activities policing plan for each Policy authority area. The and the material for young people we intend to be idea in 1998 when we started oV with the CSPs was bilingual. We recognise as a partnership that making that the community safety strategy would be a Ev 128 Welsh Affairs Committee: Evidence
12 January 2005 Ceredigion and Denbighshire Community Safety Partnerships building block into the policing plan. Now, unless Mr Watkin: Perhaps the issue is what are the there is alignment in terms of time that they actually outcomes that we are trying to achieve and if we can do come together and the CSP plan feeds into the articulate the outcomes that we want—to reduce policing plan then there is going to be dislocation. crime, safer communities, few young people being Secondly, we will have to see how it goes—the brought into the Criminal Justice System because meetings have not been set up yet; they are to take there are more social nets to look after them—we place towards the end of January and February—to could then set our own targets to reach those see how we can reconcile these issues. So the target outcomes. It is not a direct answer to your question, setting I think is an issue. The second bit is to do with I am posing even another alternative, but if we are the performance management and it is clear that outcome-focused rather than driven by input and there is going to be, as you referred to, Chairman, a output targets then perhaps we could find that more directed and closer monitoring of the flexibility, although I have to acknowledge that in performance of CSPs. So we are moving to new the letter from the Home OYce they said that the areas now where we have very specific targets linked new target gives local Partnerships much more to the PSAs and a new performance management flexibility to decide for themselves where the crime regime. We have had our own internal regime or reduction priorities lie, taking account of local system or performance management but I think we circumstances. So they think there is going to be are going to see a step change when these new targets flexibility. I do personally think that there is a huge are put in place. debate to be had here with regard to what are the Mr Miller: Yes, I would echo, Chairman, much of targets for MPS, the targets for the Criminal Justice what Owen has said there. One of the things I Boards, the targets for the Youth Justice Board, for spotted from the Building Communities, Beating the Police, and what is the resource and what is the Crime white paper is the duty that is proposed for mechanism for bringing all those together? A very Police authorities to take into account the local important element which I personally think has policing priorities identified at crime and disorder developed is that we are coterminous in terms of reduction partnership level when publishing Force local authorities, LHBs, BCUs and the arrangement policing plans and strategies. There seems to be a for Fire authorities and I think that coterminosity is welcome acknowledgement that local policing plans crucial because that is the way we can bring people should take account of the priorities which are together to work far more eVectively. I have a feeling identified by each of the Community Safety that if we are controlled more centrally because of Partnerships. I have to say that the experience in the generalised targets then we may lose that local last couple of years has been the other way around connection, which is valuable and has produced because, as I have mentioned earlier, we have had to results. align our targets with those which the North Wales Mr Miller: Very briefly, I would refer to my earlier Police central division itself was adopting. The only comment that obviously we would prefer local other thing I did want to say about the national discretion and to be accountable for that, but targets is that one hopes they are based on evidence obviously if there are going to be national targets it of what is actually achievable. It is just a makes sense for them to be consistent targets, the coincidence, I suspect, that in the first seven months same targets for all the bodies involved in this of the current financial year crime in Denbighshire Partnership work. fell by 15% compared with the equivalent seven Mr Caton: Thank you. months the previous year. I hope when we see the Chairman: We can return to your line of questioning, statistics up to the end of December shortly that we Mr Hywel Williams. will be maintaining that performance. But as I say, it is just a coincidence and in terms of the targets that we have set ourselves they are not about the totality Q567 Hywel Williams: Thank you. It has been very of crime falling, they are about certain categories of striking when we have had evidence to this crime, seeking reductions, for example, of 10% in Committee that fear of crime is very high, although I domestic burglary, 10% in violent crime and 10% in think you mentioned earlier on that the actual crime vehicle crime. Now we see there is an issue about rates are low but the perception is otherwise. How how you align those sorts of targets which focus on do you tackle fear of crime rather than crime itself, particular types of crime with what is now a push if you can? Is there a magic key? towards a target in reducing crime overall. Mr Miller: Well, some of the work that we have done in Denbighshire has involved providing project funding for victim support, particularly to work Q566 Mr Caton: Thank you. Clearly we have got with elderly people in terms of advising them how to these separate targets for the CSP and the Police and make their homes safer because that is actually one one hopes that an answer might be provided by the of the groups of the population that perhaps feels coordination that you mentioned, Mr Watkin, in most concerned about crime. It does seem to be you answer afterwards, but an alternative suggestion related to age; the older people are the more for improved Partnership working is that the concerned they are about crime. That is not to say Government sets common or complimentary targets that young people are not concerned, they are. So I across all agencies involved in CSPs. That could think it is mainly through that, but obviously the have disadvantages in reducing flexibility locally, main focus of the Partnerships is about reducing but at least it would be more integrated. What are crime and disorder, it is not about reducing the fear your feelings about that? of crime. The hope is, of course, that through the Welsh Affairs Committee: Evidence Ev 129
12 January 2005 Ceredigion and Denbighshire Community Safety Partnerships achievements that we have certainly had in message about what is being done and to be fair to Denbighshire in terms of real reductions in the level the local media, I think they have carried those of crime (less so in the area of disorder and anti- stories. But there is a school of thought which says social behaviour) that will be felt by people as a real that even stories about the fact that crime is falling impact and will start to aVect their perceptions. The actually reminds people about crime and can be other area which has certainly contributed positively counter-productive! I am not aware locally that we there is, I think, the investment that has happened in have had any diYculties in getting the media to the last three or four years in terms of various support a positive message where we are able to give additional sorts of people who are helping to detect one, and of course we are not always able to give a crime and disorder or helping people to feel safer in positive message. Sometimes the figures go in the their communities. I am thinking there of things like wrong direction and then we have to be candid the community warden scheme that we fund, which about that as well. is run in Denbighshire by a not for profit body, and Mr Watkin: Chairman, I can safely say that the in the Police of course they have invested heavily in papers do report crimes but they also are willing to community beat managers and community support help us. We had a campaign recently against what oYcers, particularly in Rhyl, and I think that has were referred to as “boy racers” but we now refer to certainly built a level of confidence in those them as “racers” because we are trying to be more communities. correct and the press did publish a good spread Mr Watkin: As I say, we are currently carrying out about the action being taken to deal with these the new consultation on the audit, but if we go back racers. In December in the Cambrian News there to 2002 we asked the public what they felt was a half page spread about the Police putting a engendered fear of crime. The factors that cause person on the ground in villages in north Ceredigion most fear were they were fearful of poorly lit areas in and I am sure that article had a big impact on and near pubs and clubs and while in the street late reassuring people that the Police are doing at night. This is their description in terms of creating something positive to meet the people’s requests to fear. The factors causing most fear were poor street see more of a police presence locally. lighting and people under the influence of drugs. As Ian said, it is diYcult to tackle the fear of crime Q569 Hywel Williams: Could I just ask you as well, immediately because obviously we live in a free V country and the media are able to publish openly, part of a ecting the public agenda is just awareness but I am sure that having items on the television of your own work so what do you do to raise the news and in the papers every day about criminal level of awareness of the Community Safety activities does aVect people’s perception of crime Partnership itself? and their fear. In 2002 people said that to promote Mr Miller: Well, within the council one of the things safety and reduce crime and disorder they suggested I often do is remind colleagues of the duty that we somewhere for young people to go, improved street are under in the Crime and Disorder Reduction Act lighting, programmes to prevent crime, videoing to exercise our functions in a way which seeks to anti-social behaviour, more local employment, more achieve that outcome. Just to give you one very cctv cameras and more sports and leisure facilities. recent example, after two and a half years of battling That is what their suggestions were. We have the licensing committee in Denbighshire decided last actioned lots of those. CCTV has come in. We have week to remove the limit on the number of taxi been dealing with ASBOs. With CCTV the street licences in the north of the county. That is something lighting has to improve in order to get the image on that I had been pushing for personally for a variety the cameras, so a lot of that has been handled. But of reasons but the Community Safety Partnership, to reduce the fear of crime we have to go in an because I had got them interested in it, supported the oblique way to find the circumstances which create case for removing that limit on taxi licenses because that feeling and I think it is by doing that kind of one of the problems we face in Rhyl is that when the work that we can perhaps reduce people’s night clubs and the pubs empty you have queues for perceptions. The other thing, of course, is to taxis and you get trouble in the taxi queue. communicate with people what the true situation is Therefore, by not having a limit on the number of and have good liaison and try to persuade people taxi licences the hope is that there will be more taxis that they are living in a relatively crime-free or low available and therefore it might help to reduce crime crime area and it is not as bad as they may be and disorder. thinking. But we have still got that perception. Mr Watkin: I think we need to do more in terms of communication. We have been perhaps concentrating too much on specifics and I think we Q568 Hywel Williams: Have you been able to recruit have a lesson to learn about communities. But as I the local media? The fact that everything is safe and say, we have positive messages about boy racers. The happy is not a headline which will sell newspapers other issue which I hope will engender interest and and the fact that it is all awful actually does sell show that there is activity within the Partnership is newspapers. What sort of relationship do you have that there is work going on now to introduce an with your local media? Are they open to influence? order to ban drinking alcohol in public places in Mr Miller: If I can take that question first, Aberystwyth. That could be a major issue which Chairman. Certainly one of the things the could show that the Community Safety Partnership Community Safety Partnership has spent a lot of with the Police have got the support of the county time in doing is concentrating on getting across the council to make that order. Hopefully when it Ev 130 Welsh Affairs Committee: Evidence
12 January 2005 Ceredigion and Denbighshire Community Safety Partnerships comes into eVect over the coming months it will help them to help us. So there is a very good demonstrate that there are positive things we can do relationship and a growing positive relationship as which aVects the quality of life for people. we work through the strategy. Hywel Williams: Thank you. Mr Miller: We, too, Chairman, have a very positive relationship with the Police locally. Just to give a few examples of that, in terms of joint working the Police Q570 Mr Williams: I am also concerned about the employ the anti-social behaviour coordinator for role of the media in creating the fear of crime. While Denbighshire. In the last few months we have started we cannot in any way control what the local press or attending the joint tasking group, which is the body even the national press put out, surely if we do which sets the priorities for policing activity and that believe that it is a good thing to reduce the fear of has been very valuable. The county council has been crime we should be able to put our own message out directly involved in that. For their part, the Police in terms of some sort of advertisement. Have you come along to four area crime and disorder groups ever considered that to be a good use of money, that we have set up in Denbighshire, so therefore because Government would advertise if it felt that there will usually be someone like the inspector or there was a need to do something to promote health, perhaps the sergeant covering a particular area and for instance? Surely promoting a reduction in the that allows local people and local businesses who are fear of crime could also be seen in the same light? interested in crime and disorder issues to deal Mr Miller: Certainly, and the vehicle that we have directly with the Police and ourselves in terms of used for this message in Denbighshire is Llais Y Sir, setting priorities for local action. We have which is a monthly newsletter which is sent to every undertaken a number of joint operations such as household and we have carried stories in that in the truancy sweeps and an operation at a nightclub past about how the crime figures have fallen. So yes, which led to its closure. Looking forward to the we would agree that we should use those sorts of future, we are actively investigating a proposal to vehicles to get the message across as well. invest in a joint community safety facility in Rhyl in Mr Watkin: Chairman, we have funded the Fire the police station because most of the police station’s authority to distribute posters about safe conditions, activities have now been relocated to St Asaph promoting safety in terms of fire. The other issue Business Park and if it comes to fruition that would which we are linking to health in terms of Health, involve locating our cctv control room in the Social Care and Wellbeing, and the wellbeing aspect building and also the community safety wardens of it, is that we have jointly with the LHB a organisation which I mentioned earlier and possibly publication which goes to every household, Bywyd our own one-stop-shop and cash oYce. So those Da (Healthy Life), and in the next issue we intend to sorts of joint operations and joint working are very put in a significant section to deal with community positive in Denbighshire and I hope when you see safety issues, so healthy lifestyles and quality of life Chief Superintendent Sandham tomorrow he will are pulled together. tell you there is nothing he wants from us because he too, I hope, would share the appreciation of the positive relationship we have. Q571 Julie Morgan: I was going to ask about your relationship with the Police. Is there anything that Y you would like to get from the Police that you are not Q572 Julie Morgan: Thank you. Some police o cers have expressed frustration that local authorities currently getting, and what do you think they would have been slow to acknowledge their responsibilities like to get from you which they might not be getting under the Crime and Disorder Act and we have had at the moment? Have you got any views on that? several examples of the Police driving initiatives Mr Watkin: Our relationship with the Police on a which are the responsibility of the local authorities, BCU level is excellent, I do not think it can be such as cleaning graYti. I just wondered if you had bettered, not only on the BCU level, with the had any similar problems like that in Denbighshire Superintendent, who is the Divisional Commander, or in Ceredigion. but also his three inspector divisions within the Mr Watkin: Chairman, the County Council cleans county. So we act very, very closely with the Police. the graYti. We have not asked the police to What would we ask from the Police? Well, we have undertake action on that, we have undertaken the to recognise the resources they have got and the responsibility. Going back a couple of years now, drivers to which they are subject. Obviously they part of the resources we had with the CSP were used have got a huge responsibility to undertake and we to buy machines to clean graYti and chewing gum act closely with them. What do they have from us? on pavements. I have not been told by the Police that Well, we use the resources available by way of grant they are frustrated that we are asking them to do to help Police with actions. For example, we have things that we should be doing. I think the general paid for two mobile police stations. At the request of point of section 17 of the 1998 Act is that everything the Police we put in CCTV in three towns. So we we do should be directed to reduce crime and the fear have been able to do practical things to help them. of crime and I think there is an issue. A few years ago The other issue is with regard to the financial aspect. when this came in the Police were very concerned The split between capital and revenue sometimes that we, the local authority, put measures in place to works as a disadvantage in programmes, so we are ensure that all our activities fully took account of able to do some negotiation with the Police to section 17, which is a very wide responsibility. That exchange capital and revenue spending in order to is, I think, more of a cultural thing, the way people Welsh Affairs Committee: Evidence Ev 131
12 January 2005 Ceredigion and Denbighshire Community Safety Partnerships actually act. A refuse collector seeing incidents can Mr Miller: I share some of those concerns. report them. It is a very general thing to do with Obviously there is a statutory duty on us to culture, that the local authority is aware of issues to participate already and ultimately that could be do with crime. That is something we have had to enforced through the courts if someone was not work at all the time. I have not had specific issues complying with such a duty. I guess, as another brought to my attention on that. general observation, there are enough intervention Mr Miller: Just as with Ceredigion, we used some powers aVecting local government already. I cannot money a few years back to invest jointly with Conwy speak for all the bodies involved in the Community in a graYti-buster machine, so we do that, and in fact Safety Partnership, but certainly I think we have got I think they sometimes use people who have been our fill of them. But obviously it is always possible to convicted of oVences and on community service to write legislation in a way to create more intervention actually clear up the graYti as well. I think we have powers, for example powers of direction for the not had any significant problems, but in any area Assembly or for the Secretary of State. The question where you are working jointly together with other which might then arise is if such powers existed and organisations there are always going to be some if they were used, what would the impact be? It does problems and it is a matter, as Owen has explained, raise the concern that Owen was mentioning that if a power was actually used in those circumstances it of culture. But I think that is changing over time and would mean not just some activity by the body that one of the things that was a particular spur to even was subject to the direction but presumably it might more joint working in Denbighshire was the policing also mean having to incur some expenditure and priority area that we had in Rhyl west a couple of Y inevitably that means it is money which is going to years back where the Home O ce invested be taken away from something else. So if you created additional resource and we had to work very closely further intervention powers, enforcement powers, with the Police in tackling levels of crime and would that mean that other areas would suVer at the disorder there. That has led to a number of valuable end of the day? initiatives and just one to mention there is alley- gating which has started to come in, in terms of closing oV some of the rear lanes and then denying Q574 Julie Morgan: Thank you. Are there any to criminals the access into the rear of houses. I am obstacles that you can define, any further obstacles sure the Police, if you asked them, would say that that could be tackled which are preventing further sometimes we have not been able to progress that as development of the Partnerships? Mr Miller: I think the point that Owen has quickly as they would have liked in terms of making mentioned about how for some bodies it is more the necessary orders, and so on and so forth, but the diYcult to engage in all of the Partnerships equally fact is that it has happened. We learned from that is a valid one because, to take examples in North experience and obviously as the scheme has rolled Wales, the bodies which cover the whole of North out it moves ever more smoothly. Wales, they have got six Community Safety Partnerships to attend to, things like the Probation Service or the Magistrates’ Court Committee, and Q573 Julie Morgan: Do you think there is any need therefore it is more diYcult for them to perhaps to further strengthen the enforcement mechanism of engage as fully in it as it is for the county council, the the sort of statutory requirement for partnership? local Police Commander and the local health Mr Watkin: Chairman, there is an interesting boards. There is no easy way around that, I do not question which came up in a meeting we had in think, unless you were to move to less local December which the Home OYce had arranged in Community Safety Partnerships, and I do not think CardiV on this review that has come out of the white that is necessarily a good way forward either. For paper. The question was floated whether there example, it would be very simple if you wanted to should be sanctions applied to potential partners or have one for North Wales, you could, but would that bodies which should be partners. I think it has then necessarily produce a responsive strategy for attendant diYculties of what is the sanction. Are tackling crime and disorder across the whole of authorities going to lose money, for example? If the North Wales? LHB is not able to fully participate and the LHB is Y already in financial di culty is it going to lose any Q575 Chairman: Would either of you say that the more money for a failure to participate? It comes present situation is a problem in terms of the down to the resources available. For example, the representation from the other agencies which are LHB does participate. We have a chief executive of supposed to be involved? You have hinted at that, the LHB who is sitting as part of the executive board Mr Miller, in terms of the fact that in your locality on the Partnership. MPS are not able to provide the you have got your Police Chief, yourselves and the resources that I or we would wish for them to local health boards, but the other agencies have participate fully. So the organisations are stretched problems. Is it actually aVecting the eVectiveness of already and I am not certain how it could be your respective Board? enforced. What mechanism would there be to Mr Miller: I would not say I could put my finger on enforce an organisation to willingly be involved in a hard evidence that it was aVecting us in that way. I partnership which is an experience we need to guess the area where we probably feel more exposed develop over time? It depends on a lot of altruism or is about the links with the Criminal Justice System, willingness to participate. and indeed at our meeting next week we are having Ev 132 Welsh Affairs Committee: Evidence
12 January 2005 Ceredigion and Denbighshire Community Safety Partnerships the chair of the Criminal Justice Board along to give would be diYcult for the Police to dedicate one us a presentation so that we can keep better in touch. person for that. But as I say, we have provided two I think that is possibly an area where we could mobile police stations which can be used to go out to develop relationships more. those villages. The other Communities First areas Mr Watkin: Chairman, could I comment. I think we are Aberystwyth west and south, which are compact are subject to a plethora of partnerships. We are areas of Aberystwyth. I refer to this article and it is talking about a very important Partnership here and very positive because PC Collom is going to be based it strikes me that it is going to grow in importance. In in a satellite police station in the Memorial Hall in fact the white paper refers to making the CSPs and Penparcau. There is a small room where a police Crime Reduction Partnerships the instrument for station can be based there and he will have a dealing with crime. But the participants in this presence there in that Communities First area. Also, Partnership have to attend a myriad of other he will go out of there to the villages in north V partnerships and it is really having an e ect on Ceredigion and park his van and walk around and capacity to attend all these meetings. Therefore, the be seen. So it is being tackled not directly as having amount of commitment that even county council a dedicated police presence for a Communities First departments or organisations, or the voluntary V V area but it is being done in a di erent way. Also, I sector can give is a ected by the number of should say that there are community police oYcers partnerships there are in being at the moment. within the BCU as well.
Q576 Chairman: I suspect that is a particularly rural problem, is it not? I do not suppose they have the Q578 Mrs Williams: Are there plans to improve the same problems in the cities, for example? I am just situation in the rural areas? It is due to the rurality speculating. nature of the first division that you mentioned, is it Mr Watkin: Yes. I appreciate that the requirement not? to have the Partnerships is ubiquitous. The question Mr Watkin: Yes. I do not know of further plans the is, are the organisations that are in being in those Police would have to increase their presence there, particular areas able to fund or participate to the although they are doing their best to be more visible extent that— in those areas. Chairman: Exactly. That is a point. We will have to Mrs Williams: Thank you. consider that. It is obviously an issue.
Q577 Mrs Williams: Both your authorities have Q579 Mr Caton: What is the nature of the designated Communities First areas within your relationship between the Home OYce, the National boundaries, have you not? Do you have dedicated Assembly for Wales, the Welsh Assembly police teams for those areas? Government and the Community Safety Mr Miller: Yes, we do. In Denbighshire and in Partnerships? North Wales generally the approach is that they are Mr Watkin: With the Assembly we have had a very, trying to get a community beat manager in each very close relationship. David Aherne when he was electoral division. Actually it turns out in Rhyl west in the post up to August used to attend our we have got two community beat managers and that Partnership meetings on a regular basis. Also, his is a reflection of the relatively high level of crime in oYcers attended our meetings. We had a very close that area and Rhyl south-west also has a community day to day contact with them. So our relationship beat manager. Then they have got eight community Y with the Assembly has been very good. We have a support o cer posts just in Rhyl west. Again, I think more distant relationship with the Home OYce. that is the inheritance of the policing priority area Their circulars come to us and correspondence but that I mentioned a little while ago. The benefit of the we do not have the same type of relationship as we community beat managers is that they have to sign do with the Assembly. up for five year contracts to stay in the area for five Mr Miller: Certainly I would echo that. Our closest years so that they build a good relationship with the V local community and know who the criminals are link is with the team in Cardi . I would not say that and things like that. Certainly things have improved that relationship has always been a smooth one. We in the last couple of years because looking back to have had a number of problems over the years. when I started in this job three years ago I do not Usually they revolve around the grants and whether think there was a single community beat manager in we have satisfied the conditions and done the plans Denbighshire. I think many communities report correctly and things like that. But I think on the very positively on the experience of having them. whole it has been a positive relationship and perhaps Mr Watkin: Chairman, we have two Communities because of distance it was more diYcult for a First areas. One is called the upland villages of representative from the team to come and attend all Tregaron, which is most of the eastern part of of our meetings, but more recently they have now Ceredigion, the high area between Devil’s Bridge, got a post based in North Wales so obviously we are Ponterwyd, Pontrhydygroes through Tregaron, and hoping that that person will be coming to our it is a very, very sparse and rural area. It is a very Partnership meetings in future. Also, there is a extensive area. There is not a dedicated police oYcer regional substance misuse advisor in North Wales. for that area but the Lampeter inspector covers that So certainly our main relationship is with the team area and because of its significant size perhaps it in the National Assembly. Welsh Affairs Committee: Evidence Ev 133
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Q580 Mr Caton: Mr Watkin, you referred to Mr creating plans. But we would have to have our own Aherne. I thought he was actually funded by the business plan, as Ian says, or a clear operational plan Home OYce and reported to the Home OYce. You so that we knew what we were doing. To come back are talking about that as a relationship with the to the issue of targets, obviously we have to have Assembly, and I can understand because of where some structure in place to meet those targets and use that person was based and the very fact that he was resources in the best possible way. So they are there. What will happen now will hopefully welcomed and I share Ian’s view of support of the strengthen that relationship. But through that you Assembly’s proposal to reduce the requirement for did have a relationship with the Home OYce in fact, so many plans. One issue that we did recognise is did you not? that there has to be improved data sharing between Mr Watkin: I suppose we did, but the relationship organisations that are participants. For example, the on a personal basis was that David Aherne came data sharing protocols have developed significantly, from the Assembly because he was based there. If I but we still have to go further so that the information put the two concepts together it was just because flow with regard to all these issues is shared totally there was David coming from CardiV and he was between partners, and that involves the health sector acting also as the Assembly person. If you step back as well and the particular issues they have with and think about it, yes, he was one of the ten regional regard to data release. directors of the Home OYce. Perhaps it shows that the culture of the Assembly had influenced him in the way he was working. He was a very positive and Q582 Mr Caton: Are there any special issues that useful ally in taking the strategy forward. arise from Partnerships in Wales that would not arise from Partnerships in England as a result of devolution? Q581 Mr Caton: Yes, indeed, and it is very Mr Miller: Perhaps I could mention a couple of important that we have a Welsh voice directly into things. First of all, of course, in addition to Members the Home OYce and that is one of the functions of of Parliament who might take an interest in the that post, I think. Could you both tell us how you see activities of Community Safety Partnerships we the current review of local government schemes have the Assembly Members who take an interest and strategies being undertaken by the National and that is something, of course, which our Assembly impacting on Community Safety colleagues in England do not have to worry about. Partnerships? Another particular issue that I would mention is the Mr Miller: Perhaps I will take that question, funding arrangements and one of the things that is Chairman. We both had the letter before Christmas in the white paper for England at least is the which was seeking views on a suggestion that the proposal to introduce a single funding stream. At the statutory requirement to produce plans and moment they have the Home OYce and the OYce of strategies should be removed and certainly that is the Deputy Prime Minister funding the Crime something I support personally. The Community Reduction Partnerships in England and they are Safety Partnership is discussing the question next going to be moving to a single funding stream. week so I had better not commit them to adopt that Obviously because of devolution we are not seeing view, because I think it is part of a wider issue, which the same arrangement proposed for Wales. It looks is the huge number of plans and strategies that like we are going to continue to have two funding councils are required to produce. It requires a huge V streams and going back to what I was just saying amount of e ort and costs a lot of money and you about the bureaucracy of specific grant regimes that do wonder sometimes whether all that investment is would be a concern for us. It would seem to worth it. Are the plans and strategies actually read impose more onerous requirements on the Welsh by the central government departments or the Partnerships than their English counterparts. Assembly that require them? Alongside that, I would say there is also a big issue around specific grants as well which are intensely bureaucratic in Q583 Chairman: You said you were worried about terms of the overheads associated with them. AM and MP involvement. It sounds as though you Therefore, local government’s general perspective is do not like us looking at what you did. that it welcomes any moves to reduce the statutory Mr Miller: No, no, I did not say that I was worried requirements for plans and specific grants, and so about the involvement, I was saying that both on. That is not to say that if the statutory Assembly Members and MPs express an interest in requirement were to go we would suddenly stop the work of the Partnerships, whereas in England of producing strategies or business plans, or what have course they only have Members of Parliament you. Of course we will need them, but they will be in expressing an interest. our control, they will not be set by central DIKTAT. We will decide what period they cover, how often we produce them, their content, and so on. I think that Q584 Chairman: And you are worried about that? would be good and healthy for local government. Mr Miller: Well, it can be an issue because certainly Mr Watkin: Chairman, we had an opportunity in Denbighshire we have had a specific request from yesterday as the Community Safety Executive Board an Assembly Member to be represented on the of looking at the letter. The general view was that it Partnership and the Partnership looked at that was welcomed because it would take away the question and concluded that it could not agree to it requirement for the mechanistic approach to because if it agreed to one Assembly Member—and Ev 134 Welsh Affairs Committee: Evidence
12 January 2005 Ceredigion and Denbighshire Community Safety Partnerships in Denbighshire we are in the unfortunate situation crime and to rehabilitate people who perhaps are in that we are split between three constituencies—we danger of committing crime, whereas the CJB may would have the three— be at the court end of that spectrum. So they are significant and important. We are funding an ASBO Q585 Chairman: It could be a fortunate situation, team and there is plenty of activity going on in that Mr Miller. You could have three AMs acting on area. behalf of Denbighshire. Mr Miller: Yes, anti-social behaviour in Mr Miller: Plus, what would we do about the Denbighshire is a problem and it has emerged as one Regional Assembly Members, because how could of the three areas that we are proposing to focus on we deny them a seat? Then surely if we are going to in the period 2005 to 2008. I guess that reflects the have the Assembly Members represented, since most fact that it is not falling as fast as crime. I mentioned of our funding actually comes from the Home OYce that in the first seven months of this financial year would not the MPs also want to be represented? crime has gone down 15% in Denbighshire but in That would have over-burdened the Partnership, we that period disorder only went down 1%. So there is felt, in terms of the size of the committee. obviously a more intractable problem there. It may be to do with the fact that in one sense more Q586 Chairman: I actually think in practice you incidents are being reported because under the Dyna would not have to worry. We have got a lot more Ddigon initiative which North Wales Police have things to do than join your Partnership! Mr Watkin? started more people are actually taking steps to Mr Watkin: I think the big advantage we have in report anti-social behaviour and other disorder. If I Wales is perhaps not a devolution issue but a could just move on to how we tackle it then, structural issue, which is that we have twenty-two obviously we have got a range of tools at our unitary authorities. On my reading of the white disposal and I mentioned in my written evidence that paper the issues with regard to performance in we prefer not to go for an Anti-Social Behaviour England may be because of the two tiered local Order as the first response. We would prefer to avoid government and the number of district councils it if at all possible and use the ASBO very much as which have CSPs and the county council and their the last line of defence. That is why in Denbighshire relationship. We are very fortunate that we have a we have had quite a number of these acceptable single system of unitary authorities which can bring behaviour contracts as a way of trying to get people all the forces together in one piece. to behave properly short of taking them to court for Chairman: Thank you very much. an Anti-Social Behaviour Order. The other thing to say about ASBOs is that we have had the very positive news in Denbighshire that we have doubled Q587 Mrs Williams: If I could turn to anti-social the figure that was in the written evidence. There behaviour and ask you what is the nature of anti- were no fewer than five granted last week to a group social behaviour that you face in your areas and of young troublemakers in Rhyl, including one who would you say that anti-social behaviour could be a is only twelve. But unlike some other previous cases priority for you were it not such a high profile and a where the magistrates have refused requests to name national target? the individuals, on this occasion they granted that Mr Watkin: It is going to be. It is going to be a PSA2, Y request and of course the Police and ourselves I think, from the Home O ce and anti-social immediately published the names because obviously behaviour is going to be one of the targets. The we feel it is important that the public can help in the behaviour that is anti-social is a significant issue that enforcement of whatever conditions have been set in I alluded to earlier on with regard to the fear of an Anti-Social Behaviour Order. If individuals are crime. We have fourteen current cases being looked prohibited from going to a particular area or at by our ASBO team at the moment and the most something obviously the Police and ourselves can common factors of behaviour which feature help enforce it but it is even better if we have got the amongst the fourteen are threats and verbal abuse, eyes of the public there to help us as well. drink related and substance misuse, youth nuisance and damage and neighbours. Those seem to be the common areas. Q589 Mr Caton: Do you see any problem with naming and shaming a twelve-year-old child? Q588 Mrs Williams: In that order? Mr Miller: As I indicated, we seek an ASBO only if Mr Watkin: I am just reading across a list; it is not it is really necessary and it is the last line of attack. the priority order. Those are the subject areas. So the Therefore, it is not something that we do lightly issue of ASBOs is important but I would just like to and if all other mechanisms have failed such as say that I think Sue Hall mentioned earlier on this acceptable behaviour contracts, working with social afternoon that that is one way of handling workers, and so on, then— behaviour. There are other ways of handling behaviour and I am keen to emphasise that the work Q590 Mr Caton: You do not automatically have to of the YOT is to prevent youth crime. So there are publish a name because you get an ASBO, do you? measures that we can take with young oVenders Mr Miller: No. It does depend upon whether the which do not lead to court orders. I think this is the courts give permission, although I think there diVerence between our area of work and the are some proposals afoot which will create a Criminal Justice Board’s area of work because we presumption of naming people unless there are very are at the end of the spectrum that seeks to prevent good reasons to the contrary. But I think if these Welsh Affairs Committee: Evidence Ev 135
12 January 2005 Ceredigion and Denbighshire Community Safety Partnerships young people—and it does not matter how old they Q593 Mrs Williams: Do you have a view as to are—have brought it upon themselves by their own whether there are suYcient mechanisms in place to behaviour they cannot expect to be shielded from make absolutely sure that magistrates are fully, and public scrutiny. That would be my view and I think I mean fully, aware of new legislation in this field? the Partnership also generally shares that view. I Mr Watkin: I have not enough information about know there are diVerent camps on this, particularly the training. I know there is a lot of training that when you are talking about people under the age of goes on within the Bench and within the Court eighteen. Some people think that young people who Service for magistrates but I cannot answer that have done wrong should not be brought into the question as I do not know what measures have been glare of publicity, but if these people are causing put in place to raise their awareness. such a problem to society and to the communities they live in it can actually be a useful tool to control Q594 Mrs Williams: I asked a similar question of the their behaviour. two gentlemen who were answering questions before yourselves and I think we all heard that they said that every application had been granted, which Q591 Mrs Williams: The Chief Constables of Wales means in their particular areas, Gwent and South tell us that they regard an ASBO as a last resort and Wales, it did appear that the magistrates were consider the overuse of ASBOs as a failure of listening to all the evidence and were prepared to strategy in tackling anti-social behaviour. Mr Miller grant them. What I am really asking is, is this patchy has told us what his view is. Could I ask you, throughout Wales? Do we have situations where Mr Watkin, for your view? magistrates tend to be softer in some areas? I am Mr Watkin: I would agree with Ian. We have thinking in particular of North Wales. Mr Miller measures such as warnings, advice, mediation, noise probably reads the same newspapers as I do and pollution measures, signing acceptable behaviour there are some areas which are reported to be contracts and, as I say, the intervention work of the notorious for being soft on such issues. I am YOT are measures that would need to be taken into interested to know what the situation is in your account early on before coming to a decision to go particular areas. for an ASBO. Mr Miller: Yes. Certainly, Chairman, that has been our experience. The very first two Anti-Social Behaviour Orders we applied for were refused and Q592 Mrs Williams: Could you tell us what work that was a major setback for us because, as I Community Safety Partnerships are doing with both indicated earlier, we only take the step of applying the Police and the Criminal Justice Boards in order for an order if we think there is a really good reason to raise awareness amongst magistrates and the for doing it in the first place. Therefore, we were very judiciary with regard to the new anti-social disappointed by the decision the magistrates took in behaviour legislation? that case and indeed the Police Commander and Mr Watkin: We are inviting a representative of the myself had a discussion with the clerk to the Dyfed Powys CJB to a meeting of our Partnership, Magistrates’ Courts Committee because we wanted I think on 8 February, to begin to explore the to try to understand how we could avoid that relationship between the work of the CSP and the situation arising in the future. There are good reasons, as Owen has explained, why the judiciary CJB. We do have on a regular basis the papers of and the clerks who advise them have to be careful the CBJ so we are informed of what is going on about how they are seen to interact with us on these there. But I think we have to just go back to the sorts of issues. But I would say that there have also concept of the spectrum of where we are active and been other examples, and this is why I mentioned it where they are active and how we bring these things in my written evidence, where we have not been together, raising awareness with the judiciary and entirely satisfied with the decisions that the the magistrates and district judges and Crown Court magistrates took. There was a case before Christmas judges. Wearing another hat, I am secretary to where they did grant Anti-Social Behaviour Orders the Lord Chancellor’s Advisory Committee on in respect of two individuals but not as widely drawn Magistrates and my contact with magistrates leads as we had asked for in the application. It was a joint me to be slightly careful about involving individual application with the Police leading on it. Also, they magistrates in operational matters in which we are turned down the request that the name should be involved because they have their own training and published. Going back to what I was saying earlier, development procedures by the DCA and the Lord in my own view it does have benefits to be able to Chancellor’s or the Secretary of State for know who the individuals are who are subject to Constitutional AVairs department and I wonder if these orders so that the general public can help in there is another channel for them to be made of. But their enforcement as well. Therefore, we have had a if they wanted, we would be perfectly open and rather patchy response. More recently, as I have willing to share with them our activities with regard indicated just a moment ago, we have had five orders to ASBOs and other work that we are doing if they granted as a block last week so maybe things are wanted that. We have not had that approach and, as improving. The issues which may arise out of this I say, I have got a slight reservation about whether are, I guess, around the training for magistrates and it is our function to engage with the judiciary in the the guidance that is given to them by the Department wider sense, magistrates and higher judges. for Constitutional AVairs. Of course, one does not Ev 136 Welsh Affairs Committee: Evidence
12 January 2005 Ceredigion and Denbighshire Community Safety Partnerships want to point the finger too strongly in this direction Q598 Julie Morgan: It is a problem? because, as I say, I am not sure why it is that we have Mr Miller: It is a problem. I would say that it has had this patchy response in Denbighshire, but it may perhaps improved in the last year or so, but certainly relate to those sorts of issues or maybe the quality of every year we have had problems with this and it the advice they are getting from the clerks. I do not comes around late availability of the figures for the know. But I think there is some evidence to suggest amount of funding and slow approval mechanisms that there is not a consistent pattern even within and lots of detailed questioning about what we are Wales, let alone perhaps more widely. doing, which seems excessive. Just as an example, we still have not had detailed figures for 2005–06 and we are less than three months away from the start of the Q595 Mrs Williams: Could it be—and I am pressing year and in our meetings in the next three or four you on this—that there are not suYcient weeks we are talking about how we are going to mechanisms in place to train magistrates or is it allocate a budget which at the moment we are not because it is obligatory rather than compulsory? entirely sure what it is. The other issue that causes Mr Miller: I do not know enough about the problems is the capital revenue split. That just seems magistracy to answer that question, I am afraid, arbitrary and no doubt it is something imposed by Chairman. the Treasury on the Home OYce, that it has to have Mr Watkin: I remember a case, Chairman, where the this split, but that does create problems then in making sure that you can use the money in the most magistrates in Ceredigion granted eight ASBOs in V the early days. They were all appealed to the e ective fashion. We have already alluded to the fact that it seems that in Wales we are going to carry on Swansea Crown Court and the appeals were with at least two funding streams, whereas in successful because it was felt that those were the England they will be down to one. wrong subjects of ASBOs. Mr Watkin: Chairman, I would endorse Ian’s comments entirely. Also, we have quarterly Q596 Mrs Williams: So there have been no refusals reporting mechanisms on the expenditure and some in your area? things cannot work in a pre-planned every time. It is Mr Watkin: To my knowledge. But it was an early an excellent idea to have an expenditure profile and to aim to spend a grant throughout the year, but day before finding out—perhaps it is part of the issues do arise—late notification, contracts may be judicial process—it was to do with persistent diYcult, for example we are trying to put in a cctv drinkers in public places in a major town. The judge system which needs an overlap over two financial felt that that was not the subject of an ASBO. But by years. So there will not be expenditure until the last now, of course, guidance has developed and quarter and the first quarter. It leads to this issue. If thinking in terms of ASBOs has developed, so we had flexibility on that it would be a help. The perhaps that occasion will not occur again. With second thing is that we are funding posts out of our regard to the mechanism, the responsibility for budget. We are funding posts in terms of a domestic training for magistrates and the judiciary rests with violence abuse coordinator, an ASBO oYcer, an the DCA . oYcer in the YOT and with short-term funding it Mrs Williams: Thank you. gives little certainty of the continuation of that work when we know that it is going to continue. Facts tell us that that is going to be a permanent requirement, Q597 Julie Morgan: To go on to funding, how does as the targets will suggest. To have to rely on short- the funding cycle of Community Safety Partnerships termism on funding is an obstacle, as Ian says. That impact upon your ability to have long-term is our experience. strategies? Julie Morgan: Thank you. Mr Miller: It impedes them, I think would be the Chairman: Thank you very much for your answer, Chairman. attendance this afternoon. It has been very useful. Welsh Affairs Committee: Evidence Ev 137
Tuesday 20 January 2005 [Bridges Community Centre, Monmouth]
Members present:
Mr Martyn Jones (in the Chair) Hywel Williams Mr Martin Caton
Written evidence from Nacro Cymru is printed on Page Ev 372
Witness: Mr Kevin Wong, Assistant Director, Nacro Cymru, examined.
Q599 Chairman: Welcome this afternoon to this define what the activities are that constitute anti- session of the Welsh AVairs Committee. We are social behaviour, and that would give a better looking at policing and anti-social behaviour in measure at that level. Wales, and would obviously like your views. Can you introduce yourself, please? Q602 Chairman: In your written evidence you Mr Wong: I am Kevin Wong, the Assistant Director mentioned that there are considerable geographical for Crime Reduction at Nacro Cymru. variations throughout Wales. Mr Wong: Yes. Q600 Chairman: In a statement made last year in October, Chris Stanley, Head of Youth Crime at Q603 Chairman: Can you give any examples of that? Nacro, said: “There is little research available on the Mr Wong: If I look at my papers here, the eVectiveness of ASBOs in tackling young people’s Government figures are that between January 2004 behaviour, yet the Government seems intent on and June 2004 in the Greater Manchester area there encouraging local authorities to dish out more by were something like 155 ASBOs that were made. A competing in ASBO league tables, regardless of the comparable neighbour to Greater Manchester is Merseyside, which only had 27 ASBOs. That is quite long-term results.” Do you think the high numbers V of ASBOs reflect success or failure of strategy in a significant di erence—six times the number of tackling anti-social behaviour? ASBOs. They both share common areas of problems Mr Wong: The problem we have at the moment in in crime and deprivation. The number of ASBOs some ways with anti-social behaviour is that as those does not necessarily show that problems are being seem to be the only kind of measure that the dealt with; all it shows is that you have 155 ASBOs. Government is relying on as some kind of progress I was talking to the anti-social behaviour co- in tackling anti-social behaviour, I guess from our ordinator for Liverpool, who is responsible for that, point of view, in terms of working in disadvantaged and their take on anti-social behaviour orders is that communities and working with oVenders and young they should be a measure of last resort, and that oVenders, ASBOs have become a proxy measure. If having loads of ASBOs is not a measure of success you look at a piece of work that was done by the at all. In fact, conversely, their view was that it was West Midlands crime reduction team, they trawled a measure of failure, and that all the other through the diVerent safety policies in their areas to interventions that could be put into play have not identify what activities would be covered by anti- worked. social behaviour under the umbrella. They came up Chairman: That coincides with some of the evidence with 26 diVerent types of activity ranging from drug- we have had from police forces in Wales, and seems dealing to messy gardens, to litter on the streets, to a sensible way forward. criminal damage. The problem with all of this is that maybe the Government needs to re-think what that Q604 Hywel Williams: Good afternoon. In the applies to so that we have clearer measures; instead statement in October, Chris Stanley said, “the of using ASBOs as a kind of proxy measure, to look naming and shaming” of young people does not V at real things you are dealing with and the real crime address “serious underlying youth o ending”. Why reduction outcomes that you are looking at. do you think that naming and shaming is not successful? Mr Wong: The first thing about anti-social Q601 Chairman: Has Nacro thought about any behaviour orders and the naming and shaming thing definition of anti-social behaviour? Would defining is that for many young oVenders, they almost treat an incident or number of incidents be better than the that as a badge of honour, to be named and shamed. number of ASBOs? It almost reinforces the negative perceptions of Mr Wong: We have not actually come up with a themselves. The reality is that generally within the definition. There obviously is not one within the community most community members know the Crime and Disorder Act 1998, and there seem to be kind of people they are in any case, so it does not three diVerent definitions knocking around anti- necessarily do anything about that. It plays in a kind social behaviour. Most social landlords have a of populist way to it, but it does not necessarily deal definition for ASB. What I come back to is that with the history of problems that that young person probably the Government should more clearly may have. What Chris Stanley was trying to say is Ev 138 Welsh Affairs Committee: Evidence
20 January 2005 Nacro Cymro that we need to think about identifying a more criminal oVences linked to them, so in some ways sensible way of dealing with anti-social behaviour, you have already got an oVence linked to that not just in terms of enforcement, which is where activity, and therefore, if you prosecute, you ASBOs come in—and we do not disagree that there prosecute only that oVence and you do not prosecute needs to be enforcement—but we should also look at for anti-social behaviour as such. We are almost the measures put in place for prevention and dumbing down the whole issue of crime by branding rehabilitation so that you are covering the ground a whole range of crimes as anti-social behaviour. It across the whole range of activity of that person’s may be something that people can more easily involvement. understand, but it therefore fuels that sense of concern about crime because you are lumping so Q605 Hywel Williams: In the broader sense, apart many things together. As I said before, if the from what happens to the individual who has an Government is trying to make sure that agencies ASBO and might take that as a badge of honour, as have an impact on anti-social behaviour, they you were saying, are you worried by stigmatisation should break it down and say what those things are of groups of young people? so that it is reducing the number of young people Mr Wong: Yes. causing annoyance and it is reducing the amount of drug-dealing on the streets and reducing the level of Q606 Hywel Williams: That would be a concern. graYti, because those are tangible things you can Mr Wong: Yes. It makes it more diYcult for those lock on to. If you ask anyone what anti-social young people to feel—our experience of working behaviour is, diVerent members of the public will with young oVenders is that the critical thing is to try define it diVerently—from kicking a ball in the street and find as many ways as possible to integrate young to dealing in drugs. people who are oVending or who are at risk of oVending back into the community and mainstream society. Naming and shaming just highlights who Q610 Hywel Williams: I have some elderly people they are, stigmatises them and makes it more living near my constituency oYce who complained diYcult to make the transition back to about people leaving the pub at night, which is anti- normalisation of behaviour and being part of social behaviour just as kicking a ball is. What can society. the Government, the police and other agencies do to address these issues of problems of anti-social Q607 Hywel Williams: A very long time ago now behaviour? It is a tall order. there was a study of youth culture in the sixties which Mr Wong: Yes. In most places there are services and proposed the amplification of the theory that if you interventions that are being used to address that name people and draw attention to their behaviour, range of activities. We have promoted an approach that then encourages others to join in because there of looking at a whole range of interventions which is a notoriety that is attractive to young people. address those sorts of things. It looks at addressing Mr Wong: Yes. vulnerable groups, specifically high-risk groups, and the kind of activity and behaviour of individuals, but Q608 Hywel Williams: Do you see that sort of by looking at interventions in relation to prevention developing in respect of ASBOs? and enforcement, and also in relation to Mr Wong: I think it does. I said before that in rehabilitation. There is quite a good study by the communities where perhaps there is little provision, government oYce in West Midlands which tries to where young people may find it diYcult to have self- pull those things together. It looks at how a range of esteem or feel good about themselves, the thing that measures can work across that kind of matrix with happens is that they fall into delinquency, and by young people. having an ASBO it is a badge of honour because it is some kind of achievement, however negative. It is not an achievement for the rest of society, but it is for Q611 Hywel Williams: In the evidence you have them. It does not necessarily do anything to address concerns about breaches of ASBOs resulting in the long-term consequences of their behaviour. custodial sentences for young people. Can you expand on that? Q609 Hywel Williams: Thinking broadly about Mr Wong: Again coming from government figures, ASBOs, do you see elements of what is sometimes in 2001 there were 114 persons in breach of the called “model panic”; that in the papers people are courts following imposition of an ASBO. There were concerned with looking at league tables and that that 322 ASBOs that were breached in that year. In 2002, is slightly divorced from what is going on on the 212 people were imprisoned out of 403 ASBOs that ground? were breached, so just over 50% of individuals who Mr Wong: The interesting thing about anti-social breached their ASBO were in prison. Our concerns behaviour is that it has almost become a kind of one- are that ASBOs were made in the first place, many stop crime for a whole range of things. I do not know of them, not in relation to criminal oVences; but the whether it is about trying to simplify a range of penalty for breaching an ASBO is imprisonment or diVerent oVences but, as I said before, the range of a fine. There is a sense in which it is almost a things that anti-social behaviour covered at one criminalisation of that activity which was not stage was about 26 diVerent activities. All those criminal in the first place. Our other concern is that diVerent activities detailed within that study have something like 65% of ASBOs are taken out against Welsh Affairs Committee: Evidence Ev 139
20 January 2005 Nacro Cymro young people. I do not know the exact figures but if done in terms of developing a staged approach to we look at the breaches I suggest that quite a high working on anti-social behaviour, where there is an proportion of those breaches are by young people. escalation of activity according to seriousness and according to where people have fallen down, but Q612 Hywel Williams: I am sure people have also what follows from that is a de-escalation of concerns about people who are fined for things like activity as well; so where things are working well, not having a TV licence and are imprisoned you carry on in the same way. ASBOs are made for because of non-payment of fines. You are a minimum of two years. I do not know how many suggesting that there is something similar going on have been reviewed to see whether behaviour has here, criminalisation of behaviour that would not changed, because then the ASBO could be revoked, otherwise lead to imprisonment. or you could down-tariV the infringement, but we Mr Wong: Yes, I would say that. It is interesting; do not have enough resources to do that. It would a recent study produced by the National be interesting to look at that. Association for Probation OYcers made a list of case study examples. One of the examples cited was Q616 Hywel Williams: Social workers tended to an 18-year old youth who was subject to an ASBO, revoke people’s supervision orders as a positive I think in Manchester, where one of the conditions step. of the ASBO was that he was not to congregate Mr Wong: Yes. with three or more other youths. He was subsequently arrested for breach of the order Q617 Hywel Williams: You say in your evidence because he entered the local youth club. The that you would like to see more use of division of grounds on which he was arrested were that there education as part of the breach. Can you give was a congregation of three or more youths on the examples of existing practice? premises. In fact, it was a youth club that had a Mr Wong: Yes, the things we would advocate as good reputation for working with young people, prevention is trying to find ways of identifying and on that evening there was a session scheduled those people that are most at risk of oVending or for working with young people and how to deal causing anti-social behaviour, and finding ways to with anti-social behaviour. That is one example of engage them and divert them from that activity; but a number that suggest the breach is also, importantly, to re-direct them back into V disproportionate to the o ence or activity engaged mainstream services. The Crime Survey suggests in. Another example in the same study was of an that a young male who is disengaged from a 87-year old man who, amongst other things, had mainstream service like education and is excluded been forbidden in an ASBO to be sarcastic to his from school is twice as likely to be an oVender than neighbours since July 2003. He was found guilty of someone who is not, and similarly young women breaking the terms of his order on three separate are four times as likely to oVend if they are occasions, and is currently awaiting sentencing by disengaged from services. We feel that it is critical the judge. I would suggest that this person may to identify the risk factors which encourage that have mental health problems, but that does not kind of vulnerability and behaviour and look at seem to have been picked up or dealt with. These developing protective mechanisms to avoid that are examples where the use of ASBOs is somewhat and, where possible, to find ways to re-direct people indiscriminate, but, more importantly, breach of and get them back into mainstream services. There that is a very severe penalty. has certainly been an increase in school exclusions over the last few years and it would be interesting Q613 Hywel Williams: It is shades of Monty to track that against increasing activity and see if Python—get out of— there is some correlation. Anecdotally it seems that Mr Wong: I guess we would be keen to ask the there may well be a correlation. If they do not Government to review the use of ASBOs and also engage with services, they are more likely to be at the breaching of them, in more detail. risk of oVending.
Q614 Hywel Williams: Probation oYcers, I know, Q618 Mr Caton: Moving on to the reassurance would not consider breaching someone on a agenda, on page 2 of your submission you probation order without a great deal of emphasise the necessity for consultation and aforethought. engagement with young people and other hard-to- Mr Wong: Yes. reach groups. Does Nacro reach and engage with those groups and, if so, can you give us some Q615 Hywel Williams: Are you suggesting people examples of how you go about it? are breached for ASBOs after less serious Mr Wong: We run a number of youth diversion consideration? and youth inclusion projects. Where possible, we Mr Wong: It seems to be, yes. Some of these cases identify at-risk young people. We do our best to seem to suggest that. What we would advocate, in tailor our services to young people and engage in terms of how to deal with anti-social behaviour and a dialogue about the kind of services they want and over-use of ASBOs in enforcement, is to undertake the activities that would suit them. We then try to a more gradual or staged approach to dealing with deliver those services and cost and review the that problem. An example we cited in our written process. In our service delivery we do what we can evidence was work that Devon and Cornwall have to ensure user participation in the design of services Ev 140 Welsh Affairs Committee: Evidence
20 January 2005 Nacro Cymro as a way of making them more appropriate to impact of services delivered by police and local young people’s needs. Similarly we would do that authorities, rather than looking at that emotional with oVenders and BME communities, black and response. ethnic minority communities. Q620 Mr Caton: Has Nacro engaged with the Q619 Mr Caton: You also mention concerns over people who produce the British Crime Survey to the use of fear of crime surveys, and in particular make these points to them? their potential to further increase fear of crime. Mr Wong: Last year we ran a seminar where we You have called for clearer guidelines. What tried to look at broaching the whole idea of fear guidelines would you like to see introduced and of crime. We had a discussion about that and had who should be producing them? somebody from the Home OYce there. We also Mr Wong: At the moment the Government has, as had a couple of academics who have done research one of its public service targets for the next three into this area there as well. We would like to look years, reducing fear of crime. They intend to use the at working with the Home OYce and others to British Crime Survey—the crime questions within develop these more positive measures, which in that—as a way of showing that measure of some ways reassure the public much better than reduction through reduction in crime. From the saying, “we have reduced fear of crime by X per academic research on fear of crime, if you track the cent”. It is a much more tangible thing, so that responses to the British Crime Survey over the last people feel more able to go out. We have not had twenty years about fear of crime, the level is not the resources to do that, although this is something significantly up or down over the period, regardless that we feel is important. of how high the levels of reported crime are. Fear of crime, you could argue, was invented in about Q621 Mr Caton: Basically, the guidelines should be 1980, which was the first year when the fear of produced by the Home OYce but with co- crime was in the British Crime Survey. Our operation of other agencies. concerns are that measuring of fear of crime may Mr Wong: Yes. Our concern is that the have methodological flaws. One of the questions in Government or Home OYce might be on a hiding the British Crime Survey was: “How safe would to nothing if they are going to try and reduce the you feel being out alone in your neighbourhood fear of crime, but if the methodology is flawed. As after dark?” First, it is a hypothetical question— I said, if you track back, looking at British Crime “how safe would you feel?” That is important Survey fear of crime questions over the last twenty because it is not asking you about your experience years, there has been no significant change in how of being outside in your neighbourhood after dark. people feel about whether crime is going up or Then you have this kind of generic thing and one down. person’s idea of it may vary from another’s. The question does not actually ask about crime at all. It does not ask how likely it is they feel they will Q622 Mr Caton: You welcome in your submission be a victim of crime in their neighbourhood after the important role played by the All Wales dark. “After dark” is rather vague because it could Community Safety Forum as a means of co- be four o’clock on a January afternoon or eleven ordination and strategic development across the 22 o’clock in the summer. There are methodological Community Safety Partnerships in Wales. First, on problems with it, I guess. While accepting that a point of clarification, is this the same as the All Wales Crime and Disorder Forum established by there needs to be some way of measuring that, our Keri Lewis of Bridgend County Council? concerns are that the current measure is Mr Wong: It is. I think it has been re-named but methodologically flawed. The other thing we learn it is the same body. from academic research is that what you are measuring there is an emotional response from the person, which is quite diYcult to gauge. The Q623 Mr Caton: Unfortunately in his evidence to emotional response may not actually reflect what this Committee Mr Lewis informed us that this someone feels about crime all the time but may just forum is no longer operational as a result of lack reflect what someone feels about it at that moment of funding. What is the case for re-establishing it? in time. We would advocate a more positive way Mr Wong: We think the forum would be able to of approaching reducing fear of crime by looking take a multilateral, multi-agency view about policy at behaviour, which is something you can measure on criminal justice and safety across Wales. It could more easily. You can ask people to reflect on that look at co-ordinating innovation within Wales but in a much more reliable way than asking them also we would be able to co-ordinate responses about emotion. The measure of impact on reducing about how community safety is being delivered and fear of crime could be that more people go out at therefore try and influence UK Government policy night; that more people will go to the local shop but also have that same role with the Welsh and buy more goods. It is about quality of life and Assembly. It is a way of funnelling information about people able to do things they feel they were together and also developing policy ideas and not able to do last year. That is a much more innovation, and co-ordinating that across the positive and more robust way of measuring change whole of Wales. Sadly, as Keri Lewis has indicated, and the impact of Government policies and the there has not been any funding to support that and Welsh Affairs Committee: Evidence Ev 141
20 January 2005 Nacro Cymro make it happen, but we would be keen if possible voluntary sector is not necessarily engaged in that. to find ways of getting something together to I am suggesting a kind of solid parallel body within support that. the voluntary community sector that can feed information in. There may need to be a Q624 Mr Caton: You identified the need to rationalisation of the plethora of partnerships strengthen the relationship between voluntary because you often find the same people sitting on and community groups and community safety diVerent partnerships. For example, you have the partnerships. How could this be achieved and are same people on the drug action partnerships that there examples of better practice in some of the are on the community safety partnerships, and CPSs than in others in Wales? often they are running from one meeting to the next Mr Wong: Our experience of working with them is and you see the same faces there. There are ways that not in all cases but in many cases the voluntary in which that can be rationalised. The agendas community sector will not necessarily engage as could be organised in such a way that people are part of a strategic partnership of community safety brought in when they are needed, and you therefore partnerships, whereas they are often engaged in do not have to have so many bodies. delivery and may be operational, but they do not seem to have a voice at the top table, as it were. Q627 Mr Caton: We can probably seek written The benefits of having that are communicating with evidence from Manchester as part of this inquiry. communities and hard-to-reach groups, which the In your written evidence you refer to section 17 of VCS sector has a closer relationship with. We have the Crime and Disorder Act 1988 and state that the been working with Manchester local authority, implementation had been variable because of the where we set up the Manchester Community Safety perceived lack of teeth. Do you think it is necessary Network, which eVectively have diVerent tiers to to strengthen further the enforcement mechanism them, but there was a seat at that strategic table for of the statutory requirement for partnership, for the VCS sector. There was a network and resources example along the lines outlined in the Civil were put into co-ordinating and acting as a conduit Contingencies Bill? for passing information and ideas from that Mr Wong: I have to be honest with you that I am strategic group to a whole range of community not too clear what the provisions are of that Bill. sector agencies and voluntary sector agencies in Manchester. There is an ability there to have that Q628 Mr Caton: It is basically financial two-way dialogue of communication. Whenever consequences if agencies—if partners do not act as the strategic partnership wants to consult on partners. something, that particular forum spreads the Mr Wong: The problem often with section 17, information out and pulls it back in again so that looking purely at local authorities, which are responses come back to the strategic group. Every subject to section 17, is that in some places there is quarter they run a forum where voluntary and a perception that the section 17 responsibility lies community sectors can get together and engage just within the community safety part of the local with the key statutory players from the strategic authority, and that the role of social services partnership and be consulted on a range of issues, and education—that their contribution is not but also they suggest ideas as well. That is the kind particularly well met. At the moment there are not of model that we feel would be appropriate. any sanctions as far as I am aware. If you do not Obviously, it would be proportionate with the size do it properly, no-one is going to say “you have of the area and the level of local activity, but some not done it properly”. The only possible sanction kind of mechanism for allowing consultation and is through the performance assessment of local engagement to happen would seem to be sensible. authorities. The Home Secretary does not ask for how local authorities are performing in relation to Q625 Mr Caton: Are there any community safety section 17. One thing that could be done to support partnerships within Wales that are even moving in the section 17 work a bit better may lie in the that direction? obligations on responsible authorities. Currently, Mr Wong: We are not aware of that kind of under the Crime and Disorder Act 1988 the local network arrangement. I could be wrong, but as far authority is the responsible authority, and they as we know there is not. have to form partnerships and be a major player in dealing with crime and disorder. However, in terms Q626 Mr Caton: One local authority chief executive of their responsibility for partnership, they do not who we took evidence from last week pointed out specify within that legislation that they have to to us that there is an increasing plethora of have social services, education and housing there. partnerships, which potentially pose a problem in Often it is left just to the community safety part of terms of staV capacity and resources. Do you think the local authority to do that, and it is often there is a real danger of creating another forum diYcult for them to get that message across, across along the lines of what you are talking about in the whole of the rest of the local authority. Another Manchester? thing to do is to look at the kind of legislation Mr Wong: Hopefully not. In relation to the kind which covers other activities within local of partnerships that perhaps the chief executive was authorities, like environmental health and talking about our experience is that most of them planning, because it almost seems to be a diametric have members at the statutory centre, so the opposition in section 17 between planning Ev 142 Welsh Affairs Committee: Evidence
20 January 2005 Nacro Cymro regulations, so when planners make decisions about Q633 Hywel Williams: I live in a slightly dodgy area whether to grant permission to build a nightclub or of South London when I am in London, and I feel pub somewhere, currently their obligations to slightly uneasy about going out at night, since I consider that application do not take into account have a slight fear of crime; but when I get back the community safety implications of that, and they from the House at seven I go to the 24-hour shop would actually be wrong in applying legislation to to fetch a loaf, and I might feel a few prickles on do that. my back. They do not seem to coincide, do they— the actual behaviour and— Q629 Mr Caton: I can see that we could improve Mr Wong: Not always, no. things by identifying the various departments in local authorities that should have a part to play in Q634 Hywel Williams: What would be a this, but do you think if any of those departments, quantitative measure—“how often do you go out or the local authority as a whole, fails to comply, and would you feel worried about going out?” that there should be some form of sanction? Would that be a suitable proxy for this thing we Mr Wong: I think there needs to be some form of are trying to measure and trying to reduce? sanction. I am not too sure what it would be, but Mr Wong: We would say that it would be, or it there needs to be some sanction. At the moment, could be a proxy measure. Coming back to the as I said, there is not— whole notion of reassurance, you can celebrate the fact that the local shop is getting more customers Q630 Mr Caton: The worry is that once you because people feel they can go there at night, for introduce sanctions then the relationship between example. What seems to be clear from the survey partners could be compromised. evidence is that it does not matter what you do Mr Wong: One notable example when that did about crime itself. At the moment we are living in happen a couple of years ago was that the planning a situation where we have the lowest levels of most part of a local authority in England gave crimes for 10 years, and yet people do not feel any permission for a club to open for longer hours or safer—or the fear of crime measure has not got something like that, and the police took out a court better. There needs to be a slightly wider and injunction against the local authority on the ground broader thinking brought to bear. It may be a of section 17. There was an intention there simple thing, but the whole notion of fear of crime obviously between those partners in the same was imported from America and surveys done partnership, but at the moment there is not enough there, because in some ways social policy-makers clarity about sanctions and roles to enable that felt they could not do anything to reduce crime and kind of proper working. said, “let us reduce fear of crime instead”. That is even harder to do as a tangible outcome. Are we Q631 Hywel Williams: I have been reflecting on therefore not putting the resources into what really what you were saying about fear of crime. It is such needs to be done instead of chasing something that a subjective thing, an individualistic thing. we never can properly address? Mr Wong: Yes. Q635 Hywel Williams: I can imagine that fear of Q632 Hywel Williams: Is there any value to us at crime could be quite useful if there is a lot of crime all in your opinion in having a measure of some about—the fear might keep you away from it, like things? you have a fear of crossing the M1 on foot! Mr Wong: From our point of view we are not sure Mr Wong: Being concerned about crime means— whether there is a value necessarily. One example why should you not be concerned about crime? that you might want to ruminate on is that it is odd You ought to be because that means that you that we have a performance measure linked to therefore take the proper measures to protect something that we cannot properly measure, so we yourself so that you do not go to dodgy areas at have a performance of a target to reduce the fear night. In fact, it is quite a simple thing—if we did of crime. If you look at other areas of social policy, not fear being knocked over and we just walked we do not, for example, have any kind of policy or blithely across the road. In some ways it is a curious measures about reducing the fear of being ill or the measure. Our concern is that there is too much fear of being run over by a car—yet we do have the emphasis laid on that. If we set as a public target fear of crime. It is worth thinking about that and the need to reduce fear of crime, are we actually therefore asking if it is logical to spend a lot of time increasing the public’s perception of the fear of and eVort on something that we cannot properly crime by saying that we need to do something measure, and should we not be thinking about fear about it? In some ways the Government may be of crime but about the quality of life and the ability making a rod for its own back. of people to have a freer life and more choices. That Hywel Williams: That is a very interesting, goes back to what I said before about having challenging view of the accepted wisdom. Thank positive measures that can track improvements in you very much. people’s lives through their behaviour and the Chairman: Thank you, Mr Wong. It has been a things they are able to do. very useful session. Welsh Affairs Committee: Evidence Ev 143
Written evidence from Victim Support Wales is printed on Page Ev 375
Witness: Mr Jon Trew, National OYcer for Wales, Victim Support Wales, examined.
Q636 Chairman: Welcome, Mr Trew. We have met Mr Trew: We do have an advantage in Wales in before, but for the record can you introduce that we have the Assembly. The majority of the yourself and explain your role? work we do initially would seem to be driven by Mr Trew: My name is Jon Trew. I am the National the Home OYce, but in fact being a victim of crime OYcer for Victim Support Wales, which is the aVects a large area of your life. It can aVect your umbrella organisation for the Victim Support health, your education or your housing—and those charities in Wales. I have been in post now for two are all devolved issues. That is the advantage that years. Our umbrella organisation is set up with we have in Wales, basically. We can liaise closely support from the Welsh Assembly, though most of with the Assembly, as well as working with the the services that we deliver in Wales are funded Home OYce, in terms of national initiatives. The with a significant grant from the Home OYce. priorities that I have written in the report are the priorities for Victim Support Wales, as the Q637 Chairman: Your aims in your written umbrella organisation, rather than listing each of statement are apparently promoting the our local charities and their priorities. At the development of strong and safe communities; moment, my particular priority is to increase the reducing the fear of crime; and encouraging level and amount of training courses that we have confidence in the criminal justice system in Wales. available—serious crime training courses—for our Can you provide some practical examples of how volunteers in Wales. We are particularly looking to you go about that? increase the number of volunteers that are trained Mr Trew: We can do this in several ways. Victim to support people bereaved by homicide. Although Support Wales does that by supporting each of the homicide, thankfully, remains a small number of people killed in Wales every year, the needs of those local services that deliver services. If you were V burgled, if you were attacked or a victim of crime, people bereaved are much larger than the e ects of other crimes. For example, recently there was a when you report that to the police then you are V oVered the opportunity of support from Victim young man in Cardi who drove a car at another Support, which is delivered through volunteers. young man coming out of a nightclub, and he The other area of service that we oVer is the witness knocked him over and killed him. There were about 15 witnesses—various friends and the two service, where in every court in Wales there are V volunteers, who are managed by a co-ordinator in young people involved in it. We o ered support to those young people and their families. That was that court, who will look after you basically, and Y encourage you and ensure that you do not end up quite di cult because there was a large number of them at one time, and it was not really appropriate sitting in the same room as maybe the defendant’s V family and friends; that you know where to find the to have the same person o ering support to people toilet; that if you want to go home early, you will on both sides. Although there is a small number, be able to know what the verdict is. We also do pre- the actual requirements, the number of volunteers court visits—if somebody is nervous about going to and number of trained volunteers can be quite court we explain where the judge and jury sit, who large. There will perhaps be no work for them at will be talking and that kind of thing. The witness all for months on end; and then suddenly there will service has been rated very highly in terms of be a lot of work. customer satisfaction in surveys. Those are the two services that Victim Support oVers generally. There Q639 Mr Caton: In the section of your report about are some specialist schemes, but those are the two Victim Support in Gwent, you mentioned that the major areas: the victim service and the witness National Audit OYce report on Victim Support service. Each of those is delivered through local identified the need to reach those who do not report oYces, which are then organised around local crime, those who are reluctant to attend police criminal justice areas. There is Victim Support stations, those from diverse sections of the South Wales, Victim Support Gwent, Victim community, and those who are unwilling to be Support Dyfed/Powys, and Victim Support North seen. Was this report based on the situation in Wales. Each of those is a separate charity in its own Gwent, or is relevant to the whole of Wales or right, with its own management committee. Victim indeed the UK? Y Support Wales, which I am the National O cer Mr Trew: I believe it is relevant to the whole of the for, is the umbrella body. We seek to co-ordinate UK. If we look at the British Crime Survey 2000, and promote good practice between each of those there are 13 million crimes recorded and only half groups and organise Wales-wide training, promote of those reported to the police. Even when you the rights and voices of victims and witnesses consider that a large number of those were families Wales-wide, and get money at the end of the day, and cars and small minor stuV, there are still major to raise funding—Wales-wide bids and that kind crimes that are being committed that are not being of thing. reported to the police. As a result, it becomes diYcult for those people to access support from Q638 Chairman: In your written evidence you Victim Support because our usual method has suggest several future priorities. Can you say what traditionally been through the police, by giving us they are and whether they have been driven by a the victims’ home details where we are able to national or a local agenda? contact them. Ev 144 Welsh Affairs Committee: Evidence
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Q640 Mr Caton: Gwent Victim Support is unfortunately the hardware we have does not allow addressing this, clearly, by raising their profile and that throughout Wales, although we can do it in opening new branches. What about the other certain areas like Dyfed/Powys, but in areas of Victim Support groups that you mentioned? Do South Wales that is not as immediately possible. they recognise this as a priority, and are they addressing them? Q643 Mr Caton: I wondered if accommodation was Mr Trew: One of the problems, and an advantage, something that local authorities could directly of Victim Support is that many of our oYces are provide almost on the same basis that the police do located in police stations. This is a two-edged now, but do you think that there might b similar sword. It means that the members of staV there resistance to a local authority’s connection with develop good working relationships with the police, you as there is with the police? which is essential. Often, police oYcers will pop in Mr Trew: I would guess not so much. Ideally, we and say that it would be helpful if they could would like shop-front high-street accommodation, contact a particular person straight away, and that so that people can drop in and sit down. We have kind of close working relationship. What it does set up various outreach places where we have gone mean is that those people who are not confident into community centres once a week, but what about our criminal justice system, who do not have tends to happen is that when somebody is a victim the same level of confidence in the police, are less of crime they want to go and see somebody then likely to access our services if they are located in and there, not make an appointment to see the police station. For us, as a voluntary somebody in a week’s time. If they have a need to organisation, most of the oYces located in police talk to somebody, it needs to be then and stations we get for free or at very minimum rents. immediate. That is the problem that we have in I think in some of the police stations we get free terms of accessing local authority accommodation, use of the telephone or the photocopier, and if you which has usually meant a room in a community are talking about a not very rich voluntary centre one or two days a week, rather than a organisation like ours, having to spend an extra permanent location. The other issue we have with £4,000 a year for rent for an oYce premises and on that is, obviously, the records we have, on which top of that heating and lighting, buying a the names and details of witnesses and victims are photocopier, getting the phones in and paying for very sensitive. There are issues about shared those—it is beyond our means for lots of areas. It buildings with other groups that may not make it is a medium-term aim of the organisation to get all as secure. of our Victim Support branches out into amenity shop-front type accommodation, as we have done Q644 Hywel Williams: You refer in your written in Abergavenny where we have just opened a new evidence to the scheme that you have in Dyfed and drop-in branch. It does have cash implications for Powys around people who are bereaved because of us, which we simply do not have the money for at road traYc accidents. the moment. Mr Trew: We call it a road death scheme.
Q641 Mr Caton: Are you undertaking or intending Q645 Hywel Williams: Can you tell us more to undertake any evaluation of the steps that the about that? various areas take to reach the harder-to-reach Mr Trew: Yes, certainly. One of the issues we people? started oV with is that the police would refer people Mr Trew: One of the problems with getting those who were bereaved as a result of their relative or people is how we do it. In Gwent we are comparing loved one being killed in a road traYc incident. We the number of what we call self-referrals that they were set up to support victims of crime, and in had when based in the police station. At the end of many of those cases it was not certain whether the the day, it does not matter how much evidence we death was as a result of a crime or not; one of the have; if we do not have the money to move into police oYcers we spoke to said he believed we are new premises, then it remains useful and talking about 85% of fatalities involving some sort interesting. of illegal act. Sometimes, charges are not pressed and sometimes it may take several weeks for the Q642 Mr Caton: Have you discussed the possibility police to decide whether they will press charges, or of help from local authorities? whether any crime had occurred, because they need Mr Trew: Many local authorities do help us, some to look forensically at the site. It seemed not the a lot more than others. Even taking that into right thing to do then not to oVer support to those consideration, it is very diYcult when you have a people who were bereaved until we discovered resource that is free, and from an organisation such whether a crime had occurred or not. One of the as the police, which we have good working other reasons that we set the project up in Dyfed/ relationships with generally, to go and spend that Powys is that there were people who we had trained money on something diVerent, on a resource, when to support people bereaved as a result of homicide, you could spend it on extra staV and new and fortunately Dyfed/Powys is not a high-crime computers, where there are a lot of other competing area and has a low homicide rate. It is a bit like demands for our resources, in terms of IT fire engines; you have to have them there, in infrastructure. We are at the moment looking to readiness for an event, but often they are not used. access the secure e-mail from the police, but One of the ideas of setting up the Road Death Welsh Affairs Committee: Evidence Ev 145
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Scheme was that those volunteers could use the family live abroad, and it was just her and her skills that they had developed and learnt and keep husband; her husband died and there was nobody them in readiness, so that when there was a else for her to talk to. I think that 150 is not a huge homicide they would be ready and able to use them. number for us. If we were to take on, as has been The money for running the scheme comes from the suggested, people involved in life-changing injury, Home OYce, and it is a pilot. We do have plans then we would be talking about an amount of work and would like to expand the service to being that we would possibly having problems dealing Wales-wide. The other reason for it being done in with. It may not be 158 cases; it may be only half Dyfed/Powys is because of the high proportion of of them require support from Victim Support. road fatalities compared to the population, and that has a lot to do with motorbikes and narrow, Q649 Hywel Williams: Canwegoontothe windy roads, ice and that kind of thing. We do have relationship with the police and other partners: proposals to convince the other chief constables in how do you work with the police in Wales? Does Wales to go to the National Assembly and Home this relationship diVer from one force to another? OYce and ask for further funding to expand the Mr Trew: We work very closely with the police. We scheme Wales-wide, because we do think it is very are probably one of the closest agencies that they important. There does not seem to be anybody else work with. Many of our branch oYces are located oVering that service. in police stations. Some of our members of staV are former police oYcers. We have police Q646 Hywel Williams: That is what I was going to representatives on our management committees. ask you. There are organisations that support We get on quite well with them. However, there people when they are bereaved, like CRUS. does have to be a certain amount of distance Mr Trew: Absolutely. Our job is not to compete between us because there are some victims and with CRUS at all. Our job would be to refer people witnesses who have had a bad experience of the on to CRUS. One of the things CRUS say is that police, and we have to demonstrate to them that they are not really set up to support immediately we are a separate organisation and independent. If after a road death; their group is a long-term self- they have a complaint against the police, we will help group about coming to terms with being a advise and support them in taking that forward. widow or a widower. We would refer people on to The way that we are set up is to mirror the structure them. They readily agree that they are not set up of the police. We have moved from a structure to provide an emergency service in the way that where we were based around local authorities, to Victim Support does. We also work with some of being based around police authorities. There is the groups that have a more campaigning role, for Dyfed, Dyfed/Powys, North Wales, South Wales instance Brake, the charity for road deaths. We and Gwent. That indicates how important it is. have worked closely with them and supported their campaigning role. We work in partnership with Q650 Mr Caton: Clearly, you do mirror the police them. What I would say is that when somebody forces in Wales, except in Dyfed and Powys, which dies on the road, there may be other issues that they are separate. Is there a reason why you have not need support over, and Victim Support is a way of gone for a Dyfed/Powys area? referring them on to appropriate organisations. It Mr Trew: Yes, because it is huge. Dyfed/Powys is may well be that there is a young child whose father physically such a large area that the amount of—we or mother is dying, and we would look for looked at whether it was possible to have an area organisations such as Wish, or something like that, manager covering the whole of Dyfed/Powys, and which would be able to support a child or young the amount of money that it would cost us in terms person. They might have, for instance, financial of travel and the time it takes them to travel from problems as a result of losing the breadwinner in one oYce to another was not feasible for us. It was their family, so we would look to identify people cheaper to keep them separate, although they do that could give them money or budgeting advice. work together in terms of when they have meetings That is the idea behind it. We do not aim to be a with Dyfed/Powys police. There are also schemes specialist agency, but to refer people on to more like the Road Death Scheme where they work specialist agencies. together, but it simply because of the size.
Q647 Hywel Williams: How many people are killed Q651 Mr Caton: They pride themselves on having on the roads in Wales, do you think? a lower crime rate in the Dyfed/Powys area. Mr Trew: It is 158, I think. Mr Trew: Yes. You are right, that it is one of the safest places in Britain to live. Another advantage Q648 Hywel Williams: I am thinking of the is that it is big and there are not any motorways in implications if you expanded it through Wales. It it either. would make quite a workload, would it not? Mr Trew: It depends. One of the things is that lots Q652 Hywel Williams: Are there ways in which you of people have close, caring family units, and they could improve your relationship with the police? do not really need Victim Support; that is what Mr Trew: I would say the biggest problem we have their family does. Their family comes round and to do with the police is in relation to the Data oVers the support that we would do. On the other Protection Act and referrals. Our original hand, I can think of another young woman whose agreement with the Home OYce was that all Ev 146 Welsh Affairs Committee: Evidence
20 January 2005 Victim Support victims of crime would be automatically referred to one of the things we have done is having meetings Victim Support apart from people bereaved by with Women’s Aid for instance, where we will homicide, rape and sexual assault cases and make an agreement that when we come into contact domestic violence. In those cases, those people with victims of domestic violence we will make would have to give prior agreement for their them aware of the services that Women’s Aid information to be passed on to Victim Support. oVers. We are not talking about being competitors; What would happen then is that Victim Support we are working in partnership and recognising the would contact those people and say, “would you speciality and expertise of other organisations. For like support?” It is not that they will get it; we instance, one of the things we have agreed with would gain permission. However, with the Women’s Aid is that every woman that comes into introduction of the Data Protection Act, there was contact with us who is a victim of domestic violence a lot of confusion about what information could be we will make aware of the service of Women’s Aid, passed on to Victim Support. There were significant and in return, if the women are going to make a diVerences in terms of police authorities. Some criminal injuries compensation claim, they will carried on and passed on details to Victim Support refer those women to us, because we are more of all victims of crime, apart from the three that I expert and skilled in that area; or that if they go to mentioned earlier. Others, for instance in Gwent, court they ring the witness service and then we can said, “we are only giving you the whole of the work together and provide a better service to details and addresses of victims of crime only with victims of domestic violence. In terms of their prior permission”. That does not sound too community safety partnerships, each of our local diYcult, but it caused a huge drop in the number of services meets with those and has relationships with referrals, particularly in Gwent, of victims’ details those. We are also working closely with the CIJBs, being passed on to Victim Support. Inevitably, that the local criminal justice boards for each area, who meant that the police oYcer who was called out to will certainly have a bigger input into the way a crime would forget and when it came to filling in Victim Support works in the future, because there the form would say, “do they want Victim Support are plans that the funding that Victim Support got now? If I say ‘no’ there is no come-back.” I believe through the Home OYce and our national oYce that that happened in quite a significant number of will be devolved to each of those local criminal cases. The other issue is to do with when, if you are justice boards, and they will be able to fund work asked—if you are a victim of crime and you report on the witness service individually, so there may be back to the police and they ask you if you want diVerent levels of support from diVerent areas, Victim Support, do you say, “no, I want you to which is a challenge for us. catch the person”? It is a bit like going into hospital with your leg hanging oV and they say, “would you like physiotherapy?” It is not appropriate at that Q654 Chairman: You have just mentioned the time. It may well be that in a couple of weeks’ time problems of referrals since the 1998 Act, which is or a week’s time when you are feeling down or obviously a problem for you with data protection; but you did say that certain police forces are uncertain, or as in my own circumstances when we V were burgled recently—my daughter would not go treating it in di erent ways. You could describe to bed on her own, and my son became quite that as confusion amongst the police forces. Can obsessed about checking that the back door was you tell us a little bit more about that and how we locked—it is only at that point that you think can possibly get best practice throughout the forces perhaps you do want somebody to talk about it. At on that issue? the initial point, when you are angry, if you are Mr Trew: There are moves by the Metropolitan asked whether you want victim support, it is not Police with Victim Support in London to do bulk the best time. The number of referrals, particularly referrals, which is where their computers are in Gwent, have fallen oV dramatically. The other connected directly to Victim Support’s computers diVerence is that where there was no response, for via a secure e-mail system; and they refer all victims instance the police oYcer forgot or anything like of crime to Victim Support, apart from a handful that, some police authorities passed their names which they would not, for security purposes such and addresses on to Victim Support, and others in as prevention of terrorism. That would include South Wales did not. There is a wide variety in the virtually every victim of crime. The theory behind range of responses. They even vary within each it is that if you buy a fridge from Comet, for police authority, depending on the relationship example, and it does not break the data Protection with the local oYce and station. It depends on Act for comet to give your home details to the whether we get those referrals or not. carrier, to TNT parcels to deliver the fridge, why should Victim Support, which is meeting the Government’s responsibilities under the Victims’ Q653 Hywel Williams: Can I ask you about your Charter, not be considered in the same way? It relationship with other partners working in crime started at Christmas but in the Metropolitan Police prevention and the criminal justice area. What are they are referring all victims of crime directly to your relationships like with these? Victim Support, and then in cases of victims where Mr Trew: In terms of other voluntary organisations domestic violence is an issue or rape and sexual one of the things I am trying to do as the umbrella assault or people bereaved by homicide, Victim organisation is develop recognition agreements Support would then get in touch with the local with other voluntary organisations. For instance, police station to find out whether there are any Welsh Affairs Committee: Evidence Ev 147
20 January 2005 Victim Support particular sensitivities about contacting those basis to promote and get that information out; victims, such as if it is a case of domestic violence whereas when it was done on a UK-wide basis and the perpetrator might still be living in the people did not get the information and people house. We would be advised by the police about could not just ring up for a chat to find out whether the best method of contact with the victim in those that particular course suited them, or where it was. circumstances. We do not know of the outcome yet When I first started this job, there were serious of whether or not that is successful. To be fair to crime training courses that we were running, which the police, on a senior level that seems to be were being cancelled. As a result of our work in supported, but I think there may be some resistance Wales, we are streets ahead of England. We are also among lower ranks, and basically a lack of working and collaborating with the National understanding of what data protection actually Assembly on the domestic violence strategy. We are means and an understanding of the principles of working with the Welsh Assembly’s forum on data protection, in terms of it being for the benefit domestic violence quite closely. of the individual, rather than a list of regulations that have to be followed by rote. Q657 Hywel Williams: As a matter of interest, do you do any work on the Assembly’s language Q655 Chairman: I understand there are discussions policy Iaith Pawb? Do you provide a service for going on between yourselves and ACPO and people in Welsh at all? various other bodies, including the Home OYce, as Mr Trew: I will be absolutely honest with you that to how it is interpreted generally. Have there been when I first started there was not any. In fact, any results of that discussion? because of the problem of having an oYce in Mr Trew: A circular was sent round to the chief England that does not understand the fact that police oYcers which said that people should have within Wales Welsh should have equal status with to opt out rather than opt in, that police oYcers English—they seemed to feel it was on the same should be saying to victims of crime that police pass level as maybe producing stuV in Punjabi or Urdu, on your information to Victim Support—“do you as a minority language—we had a volunteer in have any objections to that?” In practice, that tends North Wales translating leaflets herself and to be rather cumbersome to a police oYcer—“do producing them herself. Obviously, it was not you want victim support, then?” That turn of satisfactory. One of the things I have done is to phrase and the subtleties involved in that are not make sure that we have a bilingual logo, for a start. what happens after an emotionally stressful crime We did not even agree on what “Victim Support” incident. There is also a letter from the Data was in Welsh; I think each individual area had their Protection Commissioner who says that he does own version of it. That took some time, to agree a not believe that information being passed on to standard Welsh translation for lots of the names of Victim Support, people’s details, in order for them services that we oVer. We have, as a result of that, to oVer support, breaks the Act. and with help from the Welsh Language Board, developed a Welsh language policy, and with Q656 Hywel Williams: Are there any diVerent funding from the Diana Fund we have translated aspects of your work in Wales, as compared to the three of our worksheets that are targeted at young work in England as a result of devolution of powers victims of crime. One of the things you have to do to the National Assembly? as a voluntary organisation is—we cannot suddenly Mr Trew: Yes, definitely. Welsh areas work a lot change all our leaflets all at once, and we decided closer together than victim support areas do in that the most important thing was the stuV we did England. We meet at the Wales Managers’ Forum, for children and old people, with the advice of the on a bi-monthly basis, and we are in regular Welsh Language Board. We first produced the contact with one another. We share good practice worksheets for children who are victims of crime and I believe we are streets ahead than victim bilingually, so the children can choose to do it in support in England in terms of sharing good English, in Welsh or both, which is what happens practice. If somebody develops a particular health to lots of children. Children of friends of mine and safety policy or comes out with a new initiative, speak to their parents in English but their written we tend to help one another more because we meet work is more fluent in Welsh. With the help of more often, and we are co-ordinated through Ysgol Bro Mynydd just across the road from us in Victim Support Wales. We have a national training CardiV, which has trialled it and done it as a test, oYcer for Wales, and as a result the take-up of we have been able to implement that in Wales. That training among Victim Support volunteers in Wales is one of the initiatives we are looking at, and we has increased dramatically; every single one of the will continue to do so. Again, that is down to courses now that we have for our volunteers who funding. I have to get the money for that is delivering the service has a waiting list, and that specifically for Wales. is because of our ability to work on a Wales-wide Chairman: Thank you very much, Mr Trew. Ev 148 Welsh Affairs Committee: Evidence
Witness: Chief Constable Mike Tonge, Gwent Police Force, examined.
Q658 Chairman: Welcome to the Committee. I am is that because funding of PCSOs is short-term sorry we had to break oV last time to vote in the funding, that has an impact on the quality of House of Commons. Once again, can you give your people who put themselves forward, because if they name and title for the record? do not have job certainty, some will be reluctant to Chief Constable Tonge: I am Michael Tonge; I am apply to join. We have to be clear how we use the Chief Constable for Gwent Police. PCSOs. If you want someone to take arrests and make professional judgments on more serious things, it has to be a fully-trained and equipped Q659 Chairman: When we finished before, we were Y about to start on the reassurance agenda. You police o cer. We have to reinforce with the public mentioned that you have the support of relatively the distinction between the two. few community oYcers in Gwent. Can you tell us what use you make of the extended policy family Q661 Chairman: Have you detected yet any change in Gwent—community oYcers, CDMs and that in the fear of crime since you started using PCSOs kind of thing? particularly? Chief Constable Tonge: I certainly can. I can talk Chief Constable Tonge: Yes. I looked with interest about what we currently do and talk about the when I applied for the job here in Wales, because stage of planning for next year and where we intend if you look at the crime levels in Gwent and then to go with that because it is a critical piece of work you look at the fear of crime in Gwent, the fear of to the police service, and it is certainly crucial to my crime is quite low considering the levels of crime in future vision of policing in Wales. As we presently some of the areas. That is the starting-point. I think speak, I have 50 community support oYcers, which we have to look at the reporting. We do get some are funded through the first two tranches of the sensational reporting of things, not just in Gwent scheme. I have just been given permission to recruit but in general, by the media. In our service on fear another 36, which will take my total PCSOs up to of crime at the moment we have seen a 3% 86 for Gwent. Just to remind you, I have 134 wards reduction so far this year, but we surveyed in Gwent. In addition to that, there are 13 members of the public and our own staV in relation neighbourhood wardens employed by Newport to the impact of our PCSOs, and I am pleased to Council. I have 187 special constables and say that the PCSOs have won over even some of the volunteers that support my ward oYcers. We sceptical staV within our own organisation, because talked last time about me having 66 ward oYcers, they see the value of them. They do provide that is police constables dedicated to various wards visibility and they do relieve our very busy police across Gwent. What I want to do for the future is oYcers of some of the mundane more routine types to build up my uniformed involvement with local of work. The fear of crime is falling in Gwent, even communities and partners in local communities to though the levels were lower than one might expect try to make a diVerence to safety, crime reduction compared with other areas. With the reassurance and long-term problem-solving. From next year I strategy and the neighbourhood policing strategy will have in the region of 150 constables based in that I want to implement from April next year, we the local communities, in wards, working in should make some further progress still. support of policing in those areas. Each one of those will have special constables, PCSOs and Q662 Mr Caton: Moving on to the community volunteers attached to them, to make use of safety partnerships, you emphasise the importance certainly volunteers’ resources at no extra cost to of partnerships throughout your paper. Can you help support the ward constables in their work. tell us what level of influence the local partnerships have in setting priorities at basic command unit Q660 Chairman: What would you say is the value level and for the force as a whole? of these new forms of policing at all the various Chief Constable Tonge: That is an interesting levels of the extended police family—as it has been discussion topic because we are seeking some called—and are there any downsides to it? clarity from the Government on this at the Chief Constable Tonge: There are. There is a lot of moment. Regional government oYces have been confusion, I think, in the public’s eyes regarding asked to look at the aggregation of targets that are what a PCSO can do and what a police oYcer can set at local level. I think it is very important for do. My force is one of those forces that trialled the community safety partnerships to work closely with powers of detention for PCSOs. People have to police and other partners to look at specific understand that a police community support oYcer problems in their area. Having assessed the scale of is there really to provide reassurance, visibility and their problems and having to be clear in terms of to deal with low-level nuisance and disorder, and who is responsible to try and address some of those nothing more than that. If we used them in a wider issues that aVect that problem, they can thereby set role, two things would happen. First, their very local targets. If we look at the level of crime in strength, which is that visibility, we would take Newport, for example, and the wherewithal of all away because they would end up in court processes those partners, then the targets set in Newport are and will be abstracted to do other things. They do likely to be more searching and stretching than they not have the training for that, neither are they would be here in Monmouthshire, where the levels necessarily skilled to take that role on, which will of crime are lower. It is important to allow my local lead to letting the standards down. We have to be commanders to work closely with local authorities very clear how we use PCSOs. The other shortfall to understand the real nature of their problems and Welsh Affairs Committee: Evidence Ev 149
20 January 2005 Gwent Police how they can address them. The only issue there is Q665 Mr Caton: What if you turned that question how they will all aggregate over the force level and around and asked your partners what they would the national level in terms of long-term crime like to be getting from the police in the partnership reduction targets. I think we can be more relaxed, which they are not currently getting? and the Government should be more relaxed, as to Chief Constable Tonge: One of them is that they how we achieve say a 15% reduction in crime over would certainly expect a lot more than we are able three years, rather than trying to be specific about to deliver. That is always a frustration for me. It is what categories of crime each local area addresses. like a military general: if only I had some more troops and an extra battalion, by God could I make an impact! There is always frustration there. If you Q663 Mr Caton: Which of the partners in Gwent look at the Licensing Act, it is fine and there are a pull their weight in the partnership and which do lot more new powers, but I need police oYcers to not? exercise those powers. Capacity is certainly one of Chief Constable Tonge: There is a review going on those things. In other areas, if we get competing to look at this at governmental level, and your objectives, then there is some diYculty. One might Committee is looking at it. In my view, in the short be for instance the eVectiveness of, say, a Crown time I have been in Gwent, we have some pretty court. If a judge has an eVective trial before him, eVective partnerships. I mentioned last time and we may end up with six sets of witnesses and police since our last meeting together the greater oYcers waiting to get on. I would like to see the improvement in trying to bring the strategic group oYces out there being operational. The judge might together on a pan-Gwent basis to look at how we want them all there to make sure the business is tackle some of the problems. In the past, from my done. Sometimes therefore there are competing reading of the situation, health has not been the priorities. The major frustration would be where most thrusting department, and there is a renewed you have competing priorities and our capacity to commitment within the Welsh Assembly deliver against other people’s agendas. Government and within the local health wards to try and address some of those concerns. For Q666 Mr Caton: We will probably be coming back example, so far this year we have seen some to licensing later, so I will concentrate on the improvements in drug referral and drug treatment community safety partnerships. Thinking about availability in Gwent, but health I believe could do their role, are there any structures or procedures more. As far as the individual community safety that could be improved to facilitate good working partnerships are concerned, it is fair to say that relationships between tiers of government, the some of them are excellent in some areas and some police and other agencies in delivering successful are weaker. They all move at diVerent rates. I have partnership initiatives? appointed someone to work with me at Chief Constable Tonge: Other than the ones I have headquarters now to report into this pan-Gwent mentioned, which are about ensuring true joined- meeting to try and highlight best practice. If up government with shared objectives across the Blaenau Gwent are particularly good in one area, board—and we have seen some improvements in how can that help Torfaen, Caerphilly, Newport that, I have to say, but there is some way to go, and Monmouthshire, and vice versa? That is critical particularly with health—the sharing of best in terms of sharing best practice. practice across areas and a commitment by people at strategic level to joint activity. If I think of emergency planning or things that go on at a Q664 Mr Caton: What would you like to get from strategic level across the whole of the Gwent Force the partnership that you are currently not getting? area, the chief executives need to be on board and Chief Constable Tonge: I said at the last hearing signed up to that. That is not quite the case yet. that for me partnerships will only work if you have commitment from the partners at the strategic level Q667 Mr Caton: At the moment, the police have and an agreement in terms of targets and who will certain targets, and the community safety deliver what. Only then, can you have true partnerships have other targets. One suggestion for accountability for delivering against that. If you improved partnership working is that the look at some of the partnerships since the Morgan Government sets common or complementary report, very often people have nodded and said, targets across the agencies. Do you think that that “yes, we agree with this”, but unless you are hard- is desirable or feasible? edged and hold people to account in relation to Chief Constable Tonge: I think it will improve achieving the target, then very often all we get is things. One of the stumbling blocks at the moment talking shops rather than committing resources and is some of the micro-management, and I can give achieving targets. We have to become more robust two specific examples. Going back to crime on that, particularly when it comes to people like reduction, if the Government just said, “look, chief health and engaging them. Targets have to all work constable, I want to see Gwent achieve an 18.5% together collectively to improve the quality of life reduction in crime over three years, I could go in an area. Sometimes our departmental plans from ahead and deliver that with my CSPs by then ODPM or Health drive people in diVerent ways targeting specifically the problems they have in and give conflicting targets, so anything that can their area. What is happening currently is that bring that together can help. CSPs are asked to list against 10 crimes specific Ev 150 Welsh Affairs Committee: Evidence
20 January 2005 Gwent Police targets, for example stealing pedal cycles. In certain Q671 Mr Caton: Have you been able to measure areas in my force that is not a problem, but setting concrete benefits either in the Communities First a specific target to achieve that in my view is not the initiative or any other communities you are best way forward. We have a national intelligence working in? For example, have police relations model and we should be intelligence-led. We test improved? Has there been a measurable impact on and co-ordinate our resources to address specific crime levels? problems. If we are given more leeway to allow us Chief Constable Tonge: Again, it is a bit patchy, to to exercise our professionalism and tackle those be honest, in terms of how that money is being used things, that would be more helpful. on those local authority areas. We have our crime statistics broken down into our local sector levels Q668 Mr Caton: Earlier on in our inquiry we spent so that we can look at the impact in those areas. a day in CardiV looking at how police were We can also assess the impact of the joint initiatives working there, and we saw how South Wales that we have. It would be wrong to say that the dedicated police resources to the Communities Communities First areas, in every instance, have First areas. Do you do the same thing in Gwent? shown substantial increase commensurate to the Chief Constable Tonge: We do more than that. I budget local authorities put in. have 43 Communities First areas across diVerent categories. What I want to do is see dedicated Q672 Hywel Williams: I would like to ask you resources to all our wards and all our areas. about the division of powers between the National Communities First areas have got some money Assembly and central UK Government. What is there; it is chief executive led and local authority the main diVerence between the chief constable of led, to improve quality of life in dealing with those a force in Wales and one in England? areas—but I want to do that across the whole of Chief Constable Tonge: There are a number of Gwent. That is a decision that was made, and we subtle diVerences. First of all, obviously, when you have 66 there at the moment. That will help the are looking at partnership activity and trying to use whole of the population, rather than just those in police resources to tackle things in a holistic way, the Communities First areas. I have to say that a lot of those partners are now controlled and run Gwent Communities First areas exist, and there are by the Welsh Assembly Government, so necessarily some good practices going on in Gwent. They have become very much engaged with the police in I have to work with them. It is another body that I looking at how they can make a diVerence in those have to relate to. I have to say, as a chief constable communities. I would cite that as best practice. Not coming to Wales, I have been very impressed at a every local authority area in my force with number of things, first the identity of Wales, the Communities First areas approach it in that way. country and region, where four chief constables Some of them take a more single-minded view, and police authorities work very, very closely using the local authority initiatives in that area together. We have a plan on collaboration and rather than embracing a much wider partnership activity of collaboration that I have not witnessed audience. in any region in England. We are well ahead of the game on that front. The other positive thing is the relationship you are able to have with the Welsh Q669 Mr Caton: Is not the whole idea of Assembly Government. It is more accessible. I just Communities First to target resources on think of yesterday as an example. It is just pure communities that most need it? coincidence, but I spent an hour and a half with Chief Constable Tonge: Yes. Edwina Hart, the Minister for Social Justice and Regeneration, and an hour with Sue Essex, the Q670 Mr Caton: It sounds as though you have a Finance Minister. That is not something I would more blanket approach. Is that not going to dilute be accustomed to as a chief constable in England what you can put into those particular communities going to the House of Westminster. The that are most in need? relationships are a lot closer; you can get to the top; Chief Constable Tonge: No. I think I am a stage leadership is less remote—but it is an extra hurdle. ahead of South Wales, which has given dedicated There are some frustrations with it. Most of my resources to Communities First areas. I have given strings are pulled by Westminster but if I am going dedicated resources to all areas, and those areas to be impactive as a chief constable I have to work that have specific problems from next year will have with the Welsh Assembly in areas such as fire, not just one ward oYcer working in that area but health and other issues. will have more; we are going to put the number of people needed commensurate to their crime levels, deprivation and demand. You will find the busier Q673 Hywel Williams: It is interesting that you say wards in Blaenau Gwent and the busier wards in you can essentially pop down the road and see Newport having perhaps five constables and a them, which is what other witnesses have also said. sergeant in one of those wards rather than one Chief Constable Tonge: Not just seeing them to covering a ward in Monmouthshire. We do have frank discussions with them, but relate to priorities, depending on demand. I am pleased to things in matters they understand. If you look at say it is not just the Communities First areas that the thrust of the Home OYce strategy for policing, will reap the benefits of that; it is the whole of this idea of forming relationships at the local level the force. and addressing problems—the people at the Welsh Welsh Affairs Committee: Evidence Ev 151
20 January 2005 Gwent Police
Assembly Government that I speak to tend to Chief Constable Tonge: Yes, I think there would be. understand the issues that pertain to Wales, in a way that is not always the case at the Home OYce. Q678 Hywel Williams: Should who is calling the tune be paying the piper? Q674 Hywel Williams: You would say that your Chief Constable Tonge: Yes. I am concerned now dealings with the Welsh Assembly Government as a chief constable in Wales about how we are have had a direct eVect on the way the force works aVected by the funding formula and the recent and on actual policing. settlement. At the moment, we are trying to settle Chief Constable Tonge: Yes. Whilst there is not a our budgets for next year. Wales has had a 3.75% direct accountability such as for policing, there is settlement in terms of funding increase from central an accountability because we do not exist in a government in grant. England has averaged 4.86%, vacuum and have to work with these people. If you so we are a good percentage point behind there. If look at the funding and support we have had you look at the council tax issue here in Wales, traditionally in the past from the Welsh Assembly there are some concerns about the Welsh Assembly Government, which continues today—things like Government’s ability to try and fund some of the Tarian—the drugs strategy—we have got to work shortfall in funding. With all the things that we are with education and we have got to work with trying to achieve, with the raised public health, so there are lots of pluses there. expectation, with me wanting to do more on visibility and reassurance, it is diYcult to achieve all that with limited budgets. The sorts of things we Q675 Hywel Williams: With whom do you are trying to do on reassurance include visibility, communicate in the Welsh Assembly who has the accessibility, and putting people back on the influence? What is the focus of that relationship? streets, has huge cost implications because the Chief Constable Tonge: In terms of my major pillar, public still expect you to answer all the 999 calls it would be Edwina Hart, in terms of taking the and mobile phones. We have had a thrust to try lead on these issues. I have regular meetings with and improve that, but to have that without any her, and she has regular meetings with the Police budget is a very, very diYcult thing. Federation, with the Police Authority Wales members. There is a good dynamic there. Clearly we have to work with the Transport Minister, the Q679 Hywel Williams: Would you say that the Y Environment Minister, the Finance Minister, on all Home O ce’s revenue spent in Wales or the sorts of initiatives. Recently within the last two Funding Formula requires review? months I have shared platforms with the Chief Constable Tonge: Yes. I am not so naı¨ve as Environment Minister and I have worked with the to think there is a perfect funding formula because Transport Minister, in terms of road safety issues; there is not. There is not a lot wrong with the so there is a very good dynamic across the whole current funding formula. You could argue that spectrum of the Welsh Assembly Government. there should be more for rurality and less for urban areas, but if you look at the pressures on the Government in terms of delivering funds to public Q676 Hywel Williams: Do you see a diVerence services, there has to be a formula that helps the between the emphasis from the Home OYce on distribution of funds. My tack would be that there crime reduction and the National Assembly’s focus is not enough money being spread around within on welfare enhancements? that funding formula. It is the total amount of Chief Constable Tonge: There have been some money that needs to be increased. I am going to diVerences, if you look back a couple of years; there find it hard to deliver all that I want to do in Gwent were certainly substantial diVerences between the next year with the funding settlement I have got, thrust and emphasis that was placed on things, but and the funding formula can be blamed for that, there has been a coming-together. If you look at but actually there is not enough money in the the Together strategy that the Home OYce has, system for policing. together with the partnership strategy that the Welsh Assembly Government now has, there is a Q680 Hywel Williams: It is a global issue. The coming together and they are trying to tackle local South Wales Police expressed concerns about the issues, so there is less of a tension than there was impact of short-term and centralised funding, before. Going back to the point that your colleague which it argued was inadequate to deal with the made, if you look at dealing with local issues and Force’s local and long-term problem-solving aggregating them on a Welsh basis, then we have requirements. Do you agree with this? probably got a lot more in common with the thrust Chief Constable Tonge: Wholeheartedly. There is of the Welsh Assembly Government than we have nothing worse than not knowing from one year to with Westminster. the next whether you have funding available, particularly if 83% of all our budgets are on people. Q677 Hywel Williams: In relation to funding, there If you are employing people and they do not know is an increased focus on community issues and on 1 February whether they will have a job on 1 services: does this increased focus imply additional April, that is no way to deal with people. The other financial responsibility for the National Assembly thing to watch is that it makes it very diYcult of Wales—additional funding from the National for long-term planning. There are not many Assembly? organisations that employ the amount of people Ev 152 Welsh Affairs Committee: Evidence
20 January 2005 Gwent Police that we do and are responsible for delivering a Chief Constable Tonge: You have to examine what public service like we are, that wakes almost at the you are trying to achieve. I think the strength of eleventh hour every year to see how much they will the current strategy and future strategy of have next year and make long-term plans. It makes government is to ensure local people are held to it diYcult to recruit quality people, if you are not account for service delivery. Now, you could argue able to give that certainty. Another trend we have that we are designing the map of policing—or in seen recently with direct grant funding or red-circle fact designing the map of anything in 2005—the funding from the Government has been—and maps developed over the years might not be the PCSOs are a good example—the funding is given best structure. However, if you look at the present 100% in year one, then 75% at some later stage, position, the four police forces in Wales—the chief then 50%, going down to nothing. Again, that puts constables are accountable to their local direct pressures on you, and you cannot recruit communities and not remote; they are accessible in people—it is tough. Chatting to the Finance the way the Welsh Assembly Government is. The Minister of the Welsh Assembly Government quality of service they deliver is generally better yesterday, she certainly gave a commitment that the than that delivered by police services in England. In Welsh Assembly would never do that; if they were my experience, if you start to tinker with structures, going to ask you for something, they would fund everybody’s energy goes into those structures, the that in full, and retain that funding there. I wish changes; and what happens in the short term is that that was true across the board, because that makes all the quality of the service to the public, i.e., the my job very diYcult if that is not the case. public service side of it, starts to go by the wayside. You only have to go back to before I joined the job, the amalgamations around the early seventies. Q681 Hywel Williams: Another investigation this It took until the mid eighties to get people to start Committee has undertaken is on the diYculties of thinking outside “I used to be with this police short-term funding and the tailing oV, tapering oV. force”; people’s energies and eVorts go into the That has been identified not only by the police by amalgamation. If there is no clear requirement to most other public servants. How do you think that change what is already working very eVectively, I this should be addressed for the record? would simply resist changing the current structure Chief Constable Tonge: Again, I go back to the of the police forces to map on to the finance service point of target-setting. Education is a good or the ambulance service, or whatever it might be, example here. If I were given a budget and held to without a clear business case for doing that. I am account for performance, with some large-scale reluctant to tinker with structures that are currently V performance indicators like an overall reduction in working quite e ectively. If you went to one force crime and increase in satisfaction and confidence— for Wales, that chief constable would certainly be Y let me manage that budget. At the moment, I have remote and find it very di cult to relate to the chief no capacity to vary the nature of the people I executives, the local people, and be accountable. employ. If I reduce the numbers of police oYcers What we are doing is collaborate on lots of areas where we can make cost savings, on back oYce I will lose money pound for pound for direct grant, stuV, on training, on looking at cross-border crime, so I have no flexibility. There are lots of roles I like Tarian. In improving those areas, I think Wales could look at to ensure I have more uniformed is well set to continue to deliver a much better police oYcers with their powers outside in public, service than our colleagues in England do. With by looking at some of the roles that at the moment Y that as a backcloth and an opportunity for the police o cers are engaged in who do not use their future, I would not see any reason to tinker with powers in that job; and I could employ someone what works at the moment. else long-term to build you the professionalism to do that job. I would like to see, if the Government wants account on policing that the account should Q683 Mr Caton: I take your point about the single be the number of operational staV that I employ as police force for Wales, and that is reinforced by police oYcers—and I have no problems with that. most of the evidence we have taken, but we have In education, giving authority budgets back to the also taken evidence that suggests Gwent is the people you hold to account and given the things anomaly being a smaller police force, and that it could easily be amalgamated into the South Wales you want to hold them to account for, is the best Police Force. way of managing it—with the micro-management Chief Constable Tonge: I do not think the Chief we have at the moment and in eVect sometimes not Constables for South Wales or myself agree with managing my organisation and other people doing that. it for me.
Q684 Mr Caton: That is confirmed by our evidence. Q682 Mr Caton: Looking at structure, you Chief Constable Tonge: Yes. I think one chief mentioned financial pressures. One way of releasing constable did mention something along those lines. more money for front-line policing might be to You only have to go—it is a pity you do not have look to cutting the number of chief constables and the opportunity to go on patrol in the Rumney senior management in police forces by Valley and speak to the people who experience amalgamating forces. What is the case for keeping being policed by South Wales Police not too long a separate force for Gwent? ago about the quality and the local reassurance that Welsh Affairs Committee: Evidence Ev 153
20 January 2005 Gwent Police they now get that has been increased by Gwent. Chief Constable Tonge: Again, I ask the question: The diYculty would be for the Gwent population, why change what was only changed not too long if you amalgamated with South Wales that, clearly ago and which is starting to work very eVectively? I Swansea and CardiV would be the major sources have had the pleasure of experiencing working with of policing need, and it would be a concern for the three police authorities, and I have to say that the people of Monmouthshire and the outlying areas injection of independent members who come from of Gwent if resources were sucked in to address the business and diVerent professions has improved the problems in the cities. I would certainly not support contributions of policing, of police authorities. In it and I know Barbara Wilding, Chief Constable terms of the wider criminal justice system, we are for South Wales, would not support it. I think the trying to improve the productivity and eYciency of Chief Constable for North Wales also agrees that the system and the way it is held to account by the the present position is the best position. public. The magistracy have provided, in my view, quite a positive input into police authorities. I have some concerns about moving to directly elected Q685 Mr Caton: Can you not see any benefits in bodies for a number of reasons. You only have to reducing the number of police forces across the go back in history to look at some of the reasons whole of England and Wales then? why police authorities were changed in the first Chief Constable Tonge: Yes, I can see some place; it was because relationships because political; instances where that might be the case, but you relationships with the police sometimes became a have to evidence why it is. There is an opportunity, little too close. There needs to be an independence which the police service has at its grasp at this and a skill and experience to hold the police service moment in time, to look at collaborative to account, and I think that is best served by a mix arrangements. There is no doubt that local policing of independent magistrates and elected bodies. The structures, the BCU structures that we have at the V first chief constable who gave evidence to the moment, are very e ective and work. We need to Committee I think mentioned the days of rotten look at the tier above that. For instance, if you boroughs. I have to say I am too young to have a large-scale public order incident or you are remember that, but it is why they were changed in policing a football match, we need mounted the first place. resources; we need specialist resources. How do we do that? If you look at the three southern forces in Wales, we are already looking at joint helicopter Q688 Chairman: You are open-minded about support. We have joint training initiatives; we have whether the National Assembly should have a role. Tarian working across the M4 corridor. There are Chief Constable Tonge: Yes. lots of opportunities to collaborate and minimise costs, to re-invest then in frontline local services, Q689 Chairman: What is called 24-hour licensing is and that is what we are doing here in Wales in a the ability of local authorities to decide what the way that no other region in England is doing at licensing should be in a particular area. What is the moment. your view on that? Chief Constable Tonge: If we get on to the topic Q686 Mr Caton: Do you think responsibility for from the media’s angle, there are some positives. the police service in Wales should be transferred to Let us start with the positives that are in the Act. the National Assembly? They are bringing local authorities into decisions Chief Constable Tonge: I could give a comment on regarding the conduct of licensed premises in their that, but I think it highly unlikely that that would area, and they are the people who are accountable happen at this moment in time. I think there would to the local community on these issues. If they find be some benefits, but also we would have to watch a local landlord, or a pub or a club that is not being for some of the pitfalls that would accrue from run in the way that it should be, the local authority, that. At the end of the day, if you look at the the elected people are there to try and deal with the situation in Scotland, the geography is slightly quality of life in that area. That is a positive. I have diVerent. I cannot exist on a day-to-day basis a number of concerns about what that means for without support from maybe Somerset and me. At this present moment in time, I am able to Gloucestershire; our boundary is the Severn Bridge plan daily, weekly, monthly or yearly in terms of and link us very carefully. If there was any move when I have my resources on duty. That is because to policing being run by the Welsh Assembly I know when the licensed premises, in the main, will Government, we would have to look very, very cease to serve liquor both at the throwing-out times carefully at the arrangements we have with support round pub closing times and the same with clubs— and policing in England. With that as a caveat, my so between ten-thirty and midnight I will have a lot mind is open. of uniform visibility in my towns and city centres to try and reassure the public and impact on behaviour and crime, and to intervene and make Q687 Chairman: Last July the Government arrests when necessary. Moving that to a much brought out a white paper on accountability of more varied situation will cause me to have to have police forces—Building Safer Communities the flexibility to have resources on hand at times Together. It proposed that perhaps there should be when I need not have them. For instance, now, locally elected boards for police authorities. What between three in the morning and seven, I can is your view on that? police Gwent with very few resources, because the Ev 154 Welsh Affairs Committee: Evidence
20 January 2005 Gwent Police demand is not there. If I cannot predict that, that a resident in that area, and I am sure you would. means I am going to have to put more resources It is full of promotions at the moment, and if you on there. I can only move them from somewhere look at the culture inside pubs and clubs, it is binge else in a 24-hour clock, so it probably means in the drinking—“let us drink as many vodka shots as we short term I will have fewer resources available can”. I think we have got to put some responsibility during the day. In terms of the conduct of licensed on the licensing trade to get their act in order. They premises and the culture we have in Great Britain should have their own inspectorate like football now, I think we need to learn the lessons that we grounds have, and they should set the standards. learned from football policing, if we cast our minds Licensees need to know their responsibilities and back to the seventies and eighties and the football carry them out themselves, and where the evidence grounds. If you look at the regulations that were shows it, the principle of “the polluter pays” should brought to bear on that, where we put a be brought to bear on some of the major city and responsibility on football clubs for policing inside town centres. They should have some responsibility the grounds and the immediate environs of the for picking up the costs of the problems in their football ground, initially that meant they paid for area. We are not a cafe´ culture like in Tuscany or the policing costs. However, I have to say that the Paris where we do not see shop-keepers going into clubs started to get their act together. They work on a Monday morning and finding vomit or employed stewards and trained them. They looked urine or whatever it might be in their shop at what they had inside the football grounds. They doorways. That is the reality, and that is the reality put in seating in and made proper areas. They my staV face every Friday and Saturday night. changed the environment in which fans were in the Policing gets sucked in to deal with the problems football ground. Instead of standing in large that revolve around licences. I think we need a numbers, they changed the environment. They put joined-up approach to try and shape the culture of in CCTV and they had the responsibility. responsibility for licensed premises, look at the Essentially, football violence is a very small costs that will put the responsibility for their place problem inside football grounds. It is still a in the way that football grounds do, and try and problem elsewhere. If we look at a lot of our get responsibility for educating young people about promotions at the moment and a lot of the the risks of alcohol and binge drinking. You just attitudes of the licensing trade, the brewers, the have to look at accident and emergency marketing and media campaigns, it is to pack departments and the long-term liver damage and people into clubs, sell them cheap alcohol and the sort of problems there. As a country we need promote cheap alcohol—you only have to look at to get a hold of the culture we see on our streets Bacardi advert—the railway station at a quiet in 2004 and 2005. time—the train goes, get out the ice, pour out the Chairman: Thank you very much indeed. That is vodka and have a celebration. I would hate to be the end of the session. Welsh Affairs Committee: Evidence Ev 155
Wednesday 9 February 2005
Members present:
Mr Martyn Jones, in the Chair
Mr Martin Caton Julie Morgan Mr Huw Edwards Mrs Betty Williams Dr Hywel Francis Mr Roger Williams
Written evidence from the Home OYce is printed on Page EV 308
Witnesses: Ms Hazel Blears, a Member of the House, Minister of State for Crime Reduction, Policing, Community Safety, Counter-Terrorism and Resilience Issues, Home OYce, Mr John Bader, Director, Social Justice and Regeneration Department, and Ms Joanna Jordan, Acting Director of the Community Safety Unit, Welsh Assembly Government, examined.
Q690 Chairman: Welcome to the committee this now we have got five priorities ranging from afternoon. It is a pleasure to see Assembly oYcials tackling serious crime all the way through to and a Minister from the House of Commons here. tackling anti-social behaviour. I personally am For the sake of the record could I ask you to delighted that anti-social behaviour is now a strong introduce yourselves? feature in the National Policing Plan because for Ms Blears: Good afternoon, Mr Jones, members of every single one of us as Members of Parliament the committee. I am delighted to be here and I am our communities always highlight anti-social particularly pleased that you have chosen these behaviour as a real threat to them. The National subjects for investigation. My name is Hazel Blears. Policing Plan is there to address serious crime. We I am Minister of State at the Home OYce also highlight volume crime. We particularly responsible for Community Safety, Crime highlight meeting the challenge of drugs, which Reduction, Policing and Counter-Terrorism. again is as much of an issue in Wales as it is in the Mr Bader: Good afternoon. My name is John rest of the country, and, as I say, going all the way Bader. I am Director of the Social Justice through to anti-social behaviour. The other key Regeneration Department responsible for housing, part for me of the National Policing Plan is that it community safety, community regeneration, is not simply about what the police can do and that equality policy and the voluntary sector, and I have is why I am delighted today to have oYcials from recently been given the responsibility for transfer of the Social Justice and Regeneration Department the CAFCASS (Cymru) to the Assembly. because increasingly it is the case that making sure Ms Jordan: I am Joanna Jordan. I am the acting that partnerships work well, of the police with local Director of the Community Safety Unit. I am government, with businesses, with the voluntary responsible for substance misuse, youth justice, sector and with local people themselves is the way domestic abuse issues, and I am also on a that we will tackle crime. I have tried to give a temporary basis covering the Home OYce Crime flavour in this year’s National Policing Plan of a Director’s post in Wales. bigger emphasis on developing those partnerships. Those are the two things I highlight: national Q691 Chairman: We will start with the National priorities and emphasis on partnership working. Policing Plan which covers England and Wales. Can I ask the Minister what are the key drivers of Q692 Chairman: One of the problems that you have current policing policy? touched on is getting the balance right between Ms Blears: This is the third version of the National low-level crime, which is a real problem for our Policing Plan that we have had. It is fair to say that constituencies, as you rightly point out; this is why the policing plans have developed over the last few we are looking at it, and serious crime which years from initially being described as a very long impinges very rarely upon the individual in society. wish list, a shopping list with about 50 priorities in It is probably an almost impossible question to it, which was an attempt to describe the whole answer but I will ask it anyway. How would you policing landscape. What I have tried to do with get the balance right between those two extremes? this latest version of the policing plan is to provide Ms Blears: These are absolutely the diYcult issues a more focused, streamlined document that really that we all grapple with. It will always be a matter does try and highlight what are the priorities of striking a balance. I am not anxious to disagree nationally that we are asking the police to address, with you this early on in giving you my evidence but also within that this year I hope to provide a but I would just make a distinction that these are greater degree of local flexibility so that not entirely separate levels of crime that we are communities themselves are able to populate their dealing with. Quite often the police will have an local plans with things which are perhaps more analysis that we have level one crime, which is, if relevant to local areas and neighbourhoods. That you like, the very local, anti-social behaviour and is always the tension when you produce a national the everyday incidents that happen in a basic plan, how it plays out locally. In the national plan command unit area, very local, neighbourhood Ev 156 Welsh Affairs Committee: Evidence
9 February 2005 Hazel Blears MP and Welsh Assembly Government Officials crime. Then they go on to describe level two crime provide that local flexibility. In the past the kinds as perhaps the things that happen cross-border, the of targets we set were around specific crime types— more serious organised crime, the drug dealing, the you must reduce burglary by so much, you must money laundering that goes on, where you need reduce vehicle crime, you must reduce robbery. If inter-force co-operation. Then they have level three you are in an area where robbery, for example, is crime which can be national and international not a big problem,—and robbery tends to be crime. That tends to be the broad delineation. concentrated in those big urban areas; probably the What I have always emphasised is that I think there ten top street crime areas account for about 80% is a golden thread that runs through those three of the robberies—having a specific target for levels of crime because, although, as you said, Mr robbery does not really meet your needs. What I Jones, it is quite often the case that serious crime have done now in developing the latest set of PSA does not impinge on communities, it may not do targets is to say that there will be a target of so directly but it absolutely does impact on them. reducing overall crime by 15%, higher in high crime If you think about drugs, that can be a level two areas (and rightly so) but overall 15%. Within that crime, it can even be a level three crime in terms of 15% it is a matter for local negotiation what the national and international but the fact that 70% of make-up is of that 15%. Some of it will involve acquisitive crime, robbery, burglary, is driven by youth crime, inevitably, some of it will be burglary, people’s drug addiction has a huge impact at the and rightly so because every community is local neighbourhood level. What I always try and concerned about burglary, urban or rural, but what emphasise is that this is not about discrete policing. it does allow is at the edges for there to be some We do not simply do one kind of crime. I suppose local flexibility. It might be that in a particular rural the golden thread for me now is the national area you may have problems with attacks on farm intelligence model, which is the way in which we premises, certainly a number of robberies of farm join up all of our policing activity. Maybe we will equipment and machinery which have been come on to develop the national intelligence model highlighted to me, and if that is a problem in your a little bit later, but that is a process of dealing with area there is now suYcient flexibility within our the intelligence that is coming in—where are your PSA targets to enable you to do it. I think this is hotspots, where are your oVenders, where are the important in terms of police planning but it is also crimes you are trying to tackle—and then making hugely important in terms of public confidence. If sure that your police oYcers are tasked in you are not able to address the things that local accordance with that intelligence so that you are people are telling you are important then, no directing your resources at the things that really matter how well you do on the other targets, they matter. One of the interesting things (and where I will have no sense that the police are responding to think Wales is a bit ahead of the field, dare I say) what it is they want them to do. I hope that the is developing those cascade mechanisms, not just new target setting regime, which is being brokered within the police but increasingly now using the by regional oYces working together with the Welsh same business model with their local authorities so Assembly in combining those targets, will be a that they are getting local authority information in much more flexible regime to give that a local from housing, education, about hotspots, about flavour as it comes through. targeting, and then tasking together using that joined-up information which makes it an incredibly powerful tool to make sure all those levels of crime Q694 Chairman: You will be pleased to know that are addressed at the same time. several witnesses have welcomed the National Policing Plan 2005–08 and its increased emphasis on local priorities. A Home OYce oYcial, Stephen Q693 Chairman: I do not consider myself to be Rimmer, has told us, “There is a question that the disagreeing with you, and perhaps I put it wrongly, plan cannot answer: what is the capacity that forces but in terms of the individual eVects and our have to deliver local priorities over and above the individual constituents perhaps do not see the big national priorities?”. How would you respond to issues but they are aVected indirectly, as you said. that? One of the issues that we have come across, though, Ms Blears: Again, Mr Jones, this is about striking in this National Policing Plan is that there is a the balance for the police forces. They have got a feeling that maybe the policing plan is a little bit certain amount of capacity. They will always have urban in its outlook, dealing with inner city areas to balance that. It is recognised that no police force and that kind of crime, and that setting the targets is ever going to meet 100% of the public demand based on that kind of crime is having an adverse 100% of the time in the way in which people want eVect on policing in rural areas. them to do. Our task is to maximise the occasions Ms Blears: Inevitably when we are looking at how on which we meet the legitimate expectations of the best to use our resources we are going to direct public and hopefully on some occasions to surpass them into the places where crime is the biggest the expectations of the public, but these will always problem. It is right that when the police operational be diYcult operational decisions for commanders commanders decide to deploy their resources they to make on the ground. What I do feel very will look at where the most serious problems are strongly about is that there should be a proper and try and direct their resources into those areas. discussion at local level between the police, the Again, what I have tried to do this year is a big local authorities and the public about what our shift from where we were previously, which is to priorities should be. In the White Paper that we Welsh Affairs Committee: Evidence Ev 157
9 February 2005 Hazel Blears MP and Welsh Assembly Government Officials issued in November last year, Building the crack house closures, some places have not. I Communities, Beating Crime, we set out a vision of notice from Swansea, I think it is, that they have policing for the future which is about local got a four-point intervention programme, so they communities coming together, having a hard do much more early intervention, which is a good discussion sometimes about what are the resources thing. If you can nip anti-social behaviour in the we have got, what are the problems we are facing, bud that is great. However, I am concerned if the how can we best meet them, are the police better early intervention becomes so cumbersome that placed to meet some of them, is there some other you have a four-point process and by the time you agency that can help us do this job? Some of the get to your fourth point the community that is problems, as I say, are not necessarily police suVering gets increasingly impatient at the lack of problems. It might be about boarding up empty action being taken. I do not regard the numbers of houses to stop them being taken over by drug ASBOs as a determination of success or failure. It dealers, which is clearly a problem for either the should be about using ASBOs to get the disposal housing department or the housing association or powers, the early intervention, the fixed penalty whatever. You have that dialogue at local level and notices, the powers against graYti. I just say action, you agree to have certain priorities. We have now action, action: use it and make a diVerence. got a number of areas up and down the country. One springs to mind, which I think is in Preston, Q696 Mrs Williams: As you say, the tools are there where they have a monthly tasking group which is for us to use. What do you think are the main chaired by the local residents’ leader who helps to reasons for the low number of ASBOs, not just in task the police on what the priorities are for that Wales but throughout the UK? Do you think it is a community in the next month. They come back reluctance on the part of magistrates to grant these four weeks later and they say, “We have managed orders or could it be that there is a lack of to tackle those two drug dealers that we identified willingness on the part of witnesses to come as a community. We did not get the other two and forward? next month we will be getting them”. You are not Ms Blears: I think those two issues are important. going to be able to do everything but you do tackle In the early days of anti-social behaviour policy the things that people tell you matter, and there was a lack of awareness amongst many increasingly that is a new model for policing, which parties, not just the courts, about what they could is a bit of a culture change, to say the least, but do to make a diVerence. I think the courts were a where it has been adopted the results are pretty particular issue because sometimes they are less impressive. engaged with local machinery than other parts of the criminal justice system. What we did first of all Q695 Mrs Williams: I would like to turn to tackling was to ensure that all magistrates now have to have anti-social behaviour. Do you think that the high three hours of face-to-face training on the anti- numbers of ASBOs reflect success or failure of social behaviour powers. We have got a number of strategy in tackling anti-social behaviour? anti-social behaviour response courts; I think there Ms Blears: I am aware that 114 anti-social are over 110 specialist anti-social behaviour courts behaviour orders have been issued in Wales, which in the country. CardiV I think is a particular I certainly do not regard as a high number. First example of good practice of anti-social behaviour of all, we are not in a game of league tables. I have response courts. That is where you have specific made it very clear that I do not regard the number magistrates who are trained, and who are dealing of ASBOs as a kind of macho badge of how good with these issues on a regular basis and are familiar you are at tackling anti-social behaviour, because with what needs to be done. The third thing, which it is a complex problem which needs a range of I think is again a bit of a culture change, is a responses. We have only issued just over 3,000 anti- specialist anti-social behaviour prosecutor in the social behaviour orders across the country in five Crown Prosecution Service in every region, years, which again I do not regard as a high including Wales. That means you have got number. I think the original take-up of ASBOs was somebody inside the judicial system who is on a bit far too slow. They were cumbersome, they were of a mission to make sure that the whole criminal diYcult, they were bureaucratic, it was diYcult to justice system takes anti-social behaviour more present evidence. Personally, I am delighted by the seriously. There is now beginning to be more increased uptake we have seen in the last year. Now consistency amongst the courts about how they it is clear to me that the police, local authorities are approach not just making the orders but also at long last, may I say, listening to the legitimate breaches of orders, but we have still more to do in demands of communities, using the powers that we this regard. I think in Wales there is no magistrates have put on the statute book and really making a court that has refused an application for a stand- diVerence in some of those areas. I would urge alone anti-social behaviour order, so I am authorities in Wales, as I do wherever I go in the encouraged by the thought that they are taking this country: listen to those communities. We have matter seriously. given you the powers. Use those powers to make a diVerence. You have got now three action areas in Q697 Mrs Williams: You may be aware that the CardiV, Swansea and Newport. They have all got Children’s Society said in evidence to the Home diVerent approaches. Some places have used the AVairs Committee that, “Every ASBO is a failure ASBOs more than others. Some places have used of the council to meet a young person’s needs”. Ev 158 Welsh Affairs Committee: Evidence
9 February 2005 Hazel Blears MP and Welsh Assembly Government Officials
However, in their evidence to this committee a communities. We also had the gated programme Home OYce oYcial stated, “I actually think the and there was some concern expressed from the growth in the number of ASBOs is incredibly Welsh OYce about how joined-up we were on the heartening”. Which of these positions do you alley-gating programme and there we were able to agree with? reassure Wales that we were seeking to support Ms Blears: I certainly do not agree that every anti- communities again right across England and Wales social behaviour order is a sign of a failure to meet in getting access to the funds for alley-gating children’s needs. What I do think is that we have programmes. We very much wanted to be joined tried to have a twin-track approach with anti-social up. I do think that because in Wales you have got behaviour. I have said that on virtually every this connection between the community safety occasion I have had the chance to say it. That is agenda and the regeneration agenda that is tough enforcement where it is necessary but something that is quite special. We have been trying support for people who want to change the way in to develop more of that through the Home OYce which they live their lives. ASBOs are not always working with ODPM in England because on young people. There is a range of ASBOs that inevitably these issues are inextricably linked with are on older people as well. In many cases young the quality of the environment as well as tackling people are as much the victims of anti-social crime itself. behaviour as they are the perpetrators. I have Mr Bader: Obviously, we agree with the principle always tried to say that where people are willing that tackling anti-social behaviour in itself is not not to engage in anti-social behaviour then I think the solution; it is part of the solution. What we seek we should give them the maximum support we can to do is tackle the causes rather than just the to divert them from anti-social behaviour and symptoms. The Minister has just indicated how we crime. We have got the Positive Futures in Wales are looking at this both in the short term programme, which gets youngsters doing other and in the long term. If I could concentrate briefly things—sport, art, drama, all of that. We have got on the longer term issues, one of the three key the On Track programme, which again diverts values the Assembly established and they still them from crime. I have met individuals who have maintain today is tackling inequality of had orders and have said, “It is the best thing that opportunity, ensuring that people in Wales are happened to me because it made me take stock of included, two, sustainability and, three, they must V my life and now it is di erent”. I do not regard it all fit together. We have tried to do that by tackling as a failure in those terms, but neither do I regard disadvantage in what is now called a holistic way. the number of ASBOs as some kind of badge of It reflects the principles that you are seeking to success. What we should be doing is enforcing achieve. Tackling disadvantage has a long term against the anti-social behaviour that goes on but impact on the cause of much, if not all, anti-social also moving upstream into prevention and stopping behaviour. It will not eliminate it entirely but it will the problems getting that bad in the first place. If make a major impact. That is why we set up you meet people, and I am sure you do, Mrs Communities First, which is a long term Williams—in fact, I know you do—from your own programme for regeneration. Regeneration is not constituency who have been the victims of anti- just about improving the physical and social fabric social behaviour, often for years, not months, their of our disadvantaged communities in Wales. It is lives have been made an absolute misery, so I think also about tackling some of the fundamental issues we all have a responsibility to use the powers that in a sustainable way. There are two fundamental are now available. You have some people in your issues which must go side by side with any physical constituency who have been incredibly brave in improvements in regeneration, and those are standing up against anti-social behaviour and being providing economic opportunities for the prepared to go to court and give evidence. It takes disadvantaged communities so that they can huge courage to be able to do that and I think we participate in that economic regeneration and have a responsibility to support them. making the places where they live free from crime or the fear of crime. Unless those two elements can Q698 Mrs Williams: How do the Home OYce and be incorporated into regeneration all we will be the National Assembly for Wales work together to doing is eVectively sticking plasters over the provide an integrated response to anti-social problems and we will not achieve sustainability. behaviour in Wales? What we are seeking to do in the long term is create Ms Blears: Can I deal with that first and then John environments which we can be satisfied will be can come in? I think it is absolutely important that sustainable, where people will be economically we have this policy right across England and Wales, active and will actually like to live there, they are that it is a national policy for us. That is why we not afraid to live there because of the problems of have been working with the community safety crime. That needs to be seen in the context of partnerships as well as our own crime and disorder tackling anti-social behaviour in the longer term. reduction partnerships in England, to try and make Clearly, in the shorter term there are diVerent sure that this is on the agenda. That is why we have issues, and I am sure that we subscribe to some of got three action areas in Wales—six areas applied the issues that the Minister has mentioned, about and we were able to support three at this stage— individuals suVering from harassment or whatever because I think that these issues are just as relevant it may be, with one caveat, and I think it is an to Welsh communities as they are to any other important caveat that my Minister has frequently Welsh Affairs Committee: Evidence Ev 159
9 February 2005 Hazel Blears MP and Welsh Assembly Government Officials indicated, that we must be very cautious about not do these things then you will not be guilty of demonising young people. There are dangers that any criminal oVence, you will not breach it and no if it is seen as the only solution to the problem it further sanction will be taken”. It is a very diVerent will have an adverse eVect on people’s attitudes way of using the law. There are a number of towards young people. That is something that my definitions in the British Crime Survey, which has Minister feels particularly strongly about. seven diVerent strands. It highlights people’s Ms Jordan: The only thing I would add to that is perceptions of anti-social behaviour and it is that that certainly my unit has been very keen to which is measured in the British Crime Survey. encourage community safety partnerships and the About 18 months ago there was something like agencies that form part of them to develop quite 21% of people in England and Wales that felt anti- detailed protocols about how they deal with anti- social behaviour as defined by those seven strands social behaviour. The low number of ASBOs that was a significant problem for them aVecting their have been served in Wales is perhaps a reflection quality of life. That is now down to 16%, so in the of success before it has got to that stage. They have last 18 months that has come down by five tried to intervene with young people or whoever is percentage points, which says to me that our the perpetrator to do something about it at an early policies are making an impact and are working. We stage. If you were to look at the Anti-Social have also done some work in the Home OYce. Behaviour Unit’s referral rate in relation to the They have got a framework now that describes four numbers who have ended up with orders in place types of anti-social behaviour: misuse of public on people, you would see that as quite a success. space (drug dealing, abandoned cars), disregard for Our aim is the fewer ASBOs the better. The idea the community or personal wellbeing (noise, rowdy is to intervene at an earlier stage and do everything behaviour, gangs hanging around, that kind of you can before it gets to the stage where you have intimidation), acts directed at people (verbal got to enforce an ASBO on a person. threats and groups making threats), and environmental damage (graYti, vandalism, fly- tipping, fly-posting). None of those definitions Q699 Dr Francis: If we could move on to definition includes in particular young people perpetrating and measurement, in its written submission to the them. We are saying that it is the alarm, distress V Home A airs Committee the Association of Chief and harassment that is caused to the victim and it Y Police O cers noted that there was a lack of clear could be in any number of these strands. That is definition of anti-social behaviour and that this was why I was at pains to say that very many young hindering progress in tackling it. It listed a number people are victims of anti-social behaviour. They of problems that they had, for example, it is cannot go out and use the local park because of Y di cult to have a joined-up strategic approach. gangs taking it over. They cannot go out and play What steps are being taken to produce a with their friends. I have actually met the Youth meaningful definition of anti-social behaviour? It Parliament myself and they have expressed to me occurs to me from the responses from the Welsh that in many cases they feel that they are the Assembly a moment ago that there is an apparent victims of anti-social behaviour. I just say to the assumption that there is an association between Director here that we are not in the business of young people and anti-social behaviour. I wonder demonising young people. What we have here is a whether in clarifying these definitions you could real, significant problem of anti-social behaviour put that to bed? and that is why we have put on the statute book Ms Blears: First of all, what we have tried to do the measures to tackle it and that is why we are in the anti-social behaviour legislation is something so intensely focused on saying to police and local V that is quite di erent in defining a set of behaviour. authorities, “Look: you have got the powers and V Normally you would have a criminal o ence which you must use them on behalf of the decent law- has very clear requirements within it. What we have abiding majority of citizens”. This is not about tried to do with anti-social behaviour is to define demonising young people; it is about taking action it almost from the perspective of the victim. It is against something that is damaging communities quite a shift and it is behaviour likely to cause very badly. harassment, alarm or distress to another person Mr Bader: I was not suggesting that there was an who is not a member of the same household. It is a intent to demonise at all. It is one of the potential victim-centred definition because we recognise that consequences particularly of media coverage locally anti-social behaviour can cover a whole spectrum on anti-social behaviour. There is a tendency for V of di erent behaviours. That will be controversial this to be perceived as simply a young person’s in some quarters but I think it is the right thing thing. I agree with the Minister entirely. This is not to do, that is to say, if this behaviour is causing solely an issue of young people even if the harassment, alarm and distress then clearly it is proportion of young people served with ASBOs is something that should not happen. This is because higher than for the general population. We again we are not defining a criminal oVence here. What acknowledge this working definition. We have not we are defining is a set of behaviours that we then got any evidence to suggest that that needs to be want to use an anti-social behaviour order to changed. prevent that happening, which is a civil order rather than a criminal prosecution. We are in a diVerent Q700 Dr Francis: Can I ask the Minister, in relation legal position here. Once we get an anti-social to your reference to a misuse of public space, at the behaviour order we are saying, “As long as you do risk of being a bit contentious there is a feeling in Ev 160 Welsh Affairs Committee: Evidence
9 February 2005 Hazel Blears MP and Welsh Assembly Government Officials the public, and it is corrected by the police, that have a one-day count in October 2003, which young people hanging around is defined as a misuse showed us that in that one day there were 66,000 of public space, which is a very dangerous incidents of anti-social behaviour. It was quite a allegation when you consider how important the good response rate but in Wales the response rate right of assembly is to our fundamental democratic was particularly low. It is always going to be a rights. Do you think there needs to be a lot more snapshot rather than the possibility of being able public education about this, that simply because to measure every single incident of this kind that young people are hanging around it does not mean occurs. Once we develop a national incident that they are engaging in anti-social behaviour? recording system as well as our crime recording Ms Blears: I agree that that is not an automatic system we may well be able to get some better data, presumption, that because you have got three or but that is in the early stage of development at the four young people on a street corner chatting and moment. At the moment we are not able to count doing the things that we have all done as young every single one of these incidents that occurs. I people that automatically is anti-social behaviour. think the proxy of people’s perception of anti-social It clearly is not. That is why it is important, again, behaviour is very useful for us because often anti- to look at it from the point of view of the victim. social behaviour is the thing that makes people Are they being alarmed, distressed and harassed by frightened of crime. It builds that atmosphere in whatever behaviour is going on? However, when which people are fearful of crime, and even though you have a gathering of 50 young people—and this crime has gone down quite dramatically in the last happens—because they have then got that group few years there is still a big perception gap in that dynamic so that whenever a person goes past them people do not necessarily feel safer in their to use the shop, to use the telephone, they are communities. I think the anti-social behaviour part subjected to spitting, to harassment, to verbal of that is a big contributor to the perception abuse, which does happen, then clearly that is in an V measured in the British Crime Survey, which is the entirely di erent category. I am thinking of a visit biggest survey that we do and very helpful for us, I made to Bristol. There they had a really lovely and I think we will be able to develop some harder green open square in the middle of a council estate. data once we get some better incident recording Across the green was a toddlers’ play area and a systems. community centre. For about a year that community centre and toddlers’ play area had been unused and stood idle because every time anybody Q702 Mr Edwards: Minister, can I ask you to attempted to cross the green and go and use the consider a problem that happens in market towns facilities there was a group of people on bicycles, where in my experience in my constituency it is not on foot, with hoods, threatening and intimidating characterised by gangs; it is groups of young people them. They then used the dispersal power that we who really have nowhere to go, who are not brought in under legislation and over the last six intending to cause oVence to anybody but, because, months and residents came out to see me to say for example, where they congregate, they might be that their lives had changed dramatically. The drinking, it may be there are no toilets, they may takings in the shops on the edges of the square have forced to find themselves urinating in public spaces, gone up because people are coming to use the shops it causes oVence to the community and yet there is V and life is dramatically di erent. It is a matter of a view that the police would prefer to know where being clear that where people are not causing harm they are in a particular location rather than have and distress they should be able to get on with their them in other areas? It is a particular issue in my everyday lives, but where they are doing this it is own constituency. I just wonder if we could ask the about putting the power back in the hands of the local authority sometimes to keep public toilets decent people in that community, and in some open later in the evenings, to have their cleansing communities (and it is hard to say this) that power services work on a Saturday morning when there had been ceded to the people who were doing the is likely to have been some debris left around, and damage. It is right and proper that the balance of on a Sunday morning rather than just on the power is back in the hands of the decent majority. weekdays, some rather simple things which I think could help the local environment. Q701 Dr Francis: I think you may have already Ms Blears: First of all I would say that those sound answered this, and certainly you have made to me like excellent recommendations and that is reference to the British Crime Survey which shows really what the community safety partnerships or a decline in the perception of anti-social behaviour the CDRPs should be doing. That is why we are as a problem in the UK. Would it be more bringing together local government, health, the meaningful to measure the actual occurrences of police, to say, “What is the problem in our incidents rather than the perception of occurrences community? How can we best solve it?”, and then of anti-social behaviour in order to evaluate to task the appropriate authority to take that whether the government’s policy is working? action. It is not always the police. As you said, Mr Ms Blears: That is a fairly impossible task for us Edwards, it is other people who can do these things. to do when you think about the breadth of things That is happening increasingly in managing the that are covered under anti-social behaviour, from night time economy and there are some good graYti, vandalism, fly-tipping, fly-posting all the examples in CardiV, Swansea and elsewhere of that. way through to drug dealing on the streets. We did The example you have given about some very Welsh Affairs Committee: Evidence Ev 161
9 February 2005 Hazel Blears MP and Welsh Assembly Government Officials simple, fairly cost eVective measures which can it in the cemetery or on the street corner, and reduce the harm to that community would be very therefore you have to have an enforcement police welcome indeed. that says that that is illegal. If they have got alcohol under 18 it is illegal. They now have Q703 Mr Edwards: My impression from evidence powers to confiscate alcohol, which they did not that we took in Holland and Belgium last week was have before. They have powers to issue fixed that there was more agency co-operation at the penalty notices. They have powers to have a lower level. My impression is that we have chief drinking in public places order with designations constables talking to chief executives at a high level that they are not allowed to drink in public places. in our area but not people working in the same sort They have got a whole range of powers to use. It of collaborative way as in the examples we saw in is the same as the anti-social behaviour agenda. We Holland last week at the lower level. have given them a menu of tools to use to address Ms Blears: I think it is absolutely spot on and that not just the things that go on in pubs but also the is why in developing the police report proposals I things that go on on the street. That is why the have been working very closely indeed with the community safety partnership has to be the place OYce of the Deputy Prime Minister and also with where all of this gets discussed and then you come the Welsh authorities because I think that the up with some proposals to solve the problems. emerging model of neighbourhood governance which will help us to bring together our services at Q705 Mr Edwards: In evidence we have received that local neighbourhood level, where we have a from the four Chief Constables in Wales as part of neighbourhood manager who is then responsible this inquiry they are satisfied that the government for sorting out the cleansing, the local policing, all has given them the tools. I suppose our concern has the services that local people want I think can help been whether those tools are being enforced and to address those issues. We have talked, for utilised at the local level. There is a considerable example, about every community having a number of new oVences and of new procedures that neighbourhood policing team by 2008 with named can be taken but I wonder whether they are being oYcers that they know they can contact. They have enforced at the local level. their mobile phone numbers and they are tasked Ms Blears: That is an important point. In CardiV together with other public servants to deliver the on 9 March there is going to be an anti-social services that local people want, but also the local behaviour academy which has been our way of community have to play their part in terms of either making sure that all the practitioners are fully keeping their children under control or having a versed in what the powers are and how to use them. community clean-up day and making some We have trained something like 4,000 practitioners contribution. That is exactly the model that we are so far through the academy process so that there trying to develop between policing and the rest of is, if you like, no excuse for not using the powers. local government. I am sure other partners have a We also have the anti-social behaviour action line, role to play as well. which is a telephone line staVed by expert practitioners where people can ring up and say, Q704 Mr Edwards: Has any evaluation been done “Look: I have got a problem with drug dealers in of the success of Pub Watch schemes? Again, I can my area. How do I use the new powers to close a only give you my impressionistic evidence. In my crack house?”. The action line will talk you through own community I have noticed that because of the step by step. They will give you the documentation. success of Pub Watch in keeping people under the They will help you got to court and get the warrant age of 18 out of pubs there has been necessity for and they will make sure you get the order. There them perhaps to be drinking alcohol in open are a lot of tools in place now for people to be able spaces, causing particular problems which they to use the powers that we have put in place. Getting might not have caused had they perhaps been in a the academy process up and running in Wales in pub enjoying themselves most of the evening doing this way will mean that we get the powers being what after all, as you said earlier, some of us were used. doing when we were younger when Pub Watch did Mr Edwards: I am sure those two initiatives are not exist. something which I and other members of the Ms Blears: First of all, I am not aware of any committee were not aware of and we are grateful formal evaluation of Pub Watch. It is something I to hear of them. am very keen to encourage but it also has to be part of a wider approach to managing the night time Q706 Julie Morgan: I have had a lot of problems, economy. We have all got significant concerns now as we all have, with big groups of (inevitably) about binge drinking by young people, about the young people, the problems of under-age drinking problems that are caused, and again that is not just and generally people getting very upset and in inner city areas or town centres. It could be in distressed. One of the main problems that I come market towns, it could be in rural areas, it could across is people not knowing how to get hold of be in villages as well. What I am concerned to do is anybody who can help them deal with the matter to make sure we do not just work with the licensed very quickly. I know you are proposing that mobile premises, which is Pub Watch, but also with oV phone numbers of police oYcers are given out. licences because much of this drink is obtained Would you talk a bit more about how that would from oV licences and then youngsters go and drink work because a lot of the problems that I receive Ev 162 Welsh Affairs Committee: Evidence
9 February 2005 Hazel Blears MP and Welsh Assembly Government Officials are about being able to get hold of somebody ensure that they do what they say they are going to quickly who can come down and solve a lot of these do in terms of public expectation. There is a whole problems before they escalate. When I have stream of work going on at the moment trying to discussed this with the police they have expressed address the important issues that you have some concern about it because of the lack of back- highlighted. up and the fact that there is a shift system and how you would provide cover for a serious situation when someone is trying to deal with it over a Q707 Mr Williams: When we were visiting the mobile phone. Netherlands and Belgium we were given evidence Ms Blears: There are two things to highlight. One that for young people who exhibit this problematic is that we have given a commitment in the White behaviour, as well as being told what they should Paper that by 2008 every neighbourhood will have not do they were required to do positive things like a neighbourhood team. That neighbourhood team attending a youth club or sports club on so many will look diVerent in diVerent places. In a place evenings a week. Are there any proposals from any where you have got serious hard-edged crime you of your organisations that that be added to the V might have more police oYcers in your team. In an arsenal, so to speak, so that as well as laying o area where it is low-level, anti-social behaviour you what should not be done encouragement is given might have more community support oYcers and to positive behaviour? wardens in your team, but everywhere will have a Ms Blears: Initially, obviously, because this is a team. With regard to the issue about the mobile preventative order the orders were couched in phone numbers, a huge amount was made of this terms of prohibitions, “You shall not do this, you in the press when we launched the White Paper. shall not do the other”, and if you breach that you They came to North Wales and I went out to look are brought back for a criminal oVence. I think it at the force there and they showed me the website is developing in terms of the individual support that they have. If you key in your postcode then orders that we have now put in place which can try up pops not just a photograph of your beat oYcer and address the causes of some of the anti-social but quite literally their mobile phone number and behaviour and where there is a problem with drug you can get hold of them, which I thought was a misuse or alcohol abuse how we can get some kind great innovation. There were huge fears at first that of treatment facilities connected to the anti-social people would be swamped with a whole lot of behaviour order. That is the kind of thing that we irrelevant calls. That has not happened and public are looking at developing to see again if we can get satisfaction has gone up enormously. However, you to the causes as well as the symptoms that are there. make the important point about how do you It is sometimes a more complex legal issue to get manage immediate calls for action with the rest of people to have to do positive things rather than your policing? We now have a project being run by simply preventing them from doing negative things Matt Baggott, who is the Chief Constable of and we hope we can link some of the treatment and Leicestershire, on developing our neighbourhood support issues, particularly for youngsters who are policing model. It is absolutely as you said, that under ten, who unfortunately are the cause of a fair you need to get the immediate response right degree of anti-social behaviour even when they are together with more serious crime being dealt with six, seven, eight years old, and try to get them and the community neighbourhood team being support within their families. It is hugely able to operate as well. That is a pretty complex important. This is not just about the individuals piece of policing. You have to be able to make here; it is about the whole family. That is why as those decisions about your shift patterns, your well as anti-social behaviour enforcement we have rostering: how do we get rostering to coincide more got parenting orders. A lot of parents will say to closely with the peaks and troughs in demand in you when they get a parenting order, “We wish this our communities? At the moment you have a shift had happened years ago. It is the best thing that system that does not relate to the demand. We has happened and now I am in a position to try know that on a Friday and Saturday night in any and help my family”. You do need to look in a town centre there is going to be a bigger demand more holistic way at doing that and our thinking for policing because of the entertainment economy. is developing along those lines. We need to make sure our shift system keys into that and is properly organised through that rostering. We have just done quite a big piece of Q708 Mr Caton: Moving on to looking at more work on the rostering to see if we can get better serious organised crime, and I would be grateful for value out of the shift system we have. We are the Home OYce and Welsh Assembly Government developing these ways of working. As you say, perspectives on this, we have heard during this immediate response can often nip problems in the inquiry some very positive evidence from the police bud. If you have your neighbourhood team, which forces in Wales about the success of Tarian and might be community support oYcers managed by Tarian!, the all Wales Regional Task Force which a police constable, then again you ought to be able was set up to combat the threat of class A drugs to get a swift response. We have said that by the and organised crime. What are the long term end of 2006 every force will have minimum planning arrangements for Operation Tarian and standards of responsiveness about how they what role does the Assembly Government have in respond to calls for service and how they will funding it? Welsh Affairs Committee: Evidence Ev 163
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Ms Jordan: In relation to the Home OYce funding, issues. Our experience from Tarian should help the Home OYce made a contribution towards the enormously in informing some of the work of the funding for the first three years of Operation Serious and Organised Crime Agency too. Tarian. The first two years were very much the set- up phase so it was not really operational at that Q709 Mr Caton: Ms Jordan, you mentioned the Y stage, but the Home O ce funding comes to an end taking oV of the Home OYce funding and it would on 31 March with a very small amount of funding probably be fair to say we do not know what is carried over into next year. As far as I am aware happening with in the Welsh Assembly the police have not made any representations to the Government. Has any funding transferred or is any Y Home O ce for continuation of that funding. The funding likely to transfer from the rehabilitation funding from the Welsh Assembly Government and education side of things with the Assembly continues until the end of the next financial year, putting money from there towards enforcement? the end of March 2006. We have not made any Ms Jordan: I am not going to say that there is going decisions on what will happen to the Assembly’s to be a shift. The Assembly’s strategy for tackling contribution. Obviously, that will be subject to substance misuse, both drugs and alcohol are review with the Minister’s decision some time later covered in that strategy, has four strands to it. One this summer, I think. In relation to its impact, it is of the strands is around education and we have put always very diYcult to say what would happen if money into a programme that is led by the police the operation had not been there, but certainly the in Wales. It started oV in the Gwent area it is now fear that was ever-present when the Tarian concept being rolled out across the whole of Wales. It is was first set up was that the organised gangs that delivered in schools as part of the PSE (personal were operating in the Bristol area would move into social education) curriculum. There is training the South Wales area. That has not materialised around abusing substances, alcohol, etc. That and so we can assume that Tarian is working in funding is already there and is ongoing. The Tarian that respect. It has been very successful in taking operation is funded under the fourth strand of the out some quite important drug rings and organised strategy which is about lessening the availability of drug gangs in the area. We would see that part of the drug market but we are also putting extra the Tarian operation as being very successful, and money into the prevention and treatment side of it. the co-operation particularly between the three It is not so much about shifting. We see all those South Wales forces but with North Wales as well things having priority and we are putting significant is working extremely well and we are encouraging extra money into tackling all four strands of the them to collaborate on other things as well. Also, strategy at the moment. the fact that they have other government agencies sited with the Tarian headquarters in South Wales Q710 Mr Caton: Minister, do you see things like is proving extremely eVective in that they have tax Tarian and the other examples you have mentioned oYces and Customs and Excise located with them of cooperative policing evolving into Regional and that has been extremely powerful as well. As Crime Squads? to the future, it is to be decided. Ms Blears: No, because I think it is important that Ms Blears: I will just add two things. One is that the Forces actually keep some accountability for I am very pleased that the Welsh Assembly has the work that is being done. We have been into the decided to put more money into drug treatment territory of Regional Crime Squads in the past and because when you do disrupt drug markets it is some diYcult things have emerged from there. If absolutely essential that people who may well be we are going to have regional collaboration then denied their usual drugs are met as quickly as we also need to be very clear about in whose name possible with a whole range of drug treatment the work is being done, what the accountability facilities. That has been hugely important in order mechanisms are, who sets the strategy, who sets the to get some consistency in Wales around that issue. priorities. So I think regional collaboration is not The second thing is that we are doing a lot of work just a good idea, but it is increasingly happening on trying to get forces to collaborate together. A almost because that is how Forces want to do their report is being done by HMIC looking at the business. I do not think we are going to be into the structures of forces for the future. I am not keen realms of a Regional Crime Squad that does to have a wholesale reorganisation but I am very everything at that regional level; I think it will be keen where forces can come together and if they targeted operations. Again, using the National can get added value and share their facilities and Intelligence Model, looking at how we properly their knowledge and their intelligence then they task our resources to meet the intelligence product should do exactly that. Operation Tarian is a very that is coming in, if you have that kind of rigorous good example of that kind of collaboration. It may process rather than simply a broad brush, “We will well be that the forces decide that is how they want have a Regional Squad,” then you actually get to do their business in future. We are also about to better results. You say, “What is the problem, what establish the Serious and Organised Crime Agency is our intelligence coming in? Are we better with eVect from April next year, and clearly organised to meet this problem by collaboration Operation Tarian will have important links to the rather than doing it four separate ways, and if we Serious and Organised Crime Agency which will be are then let us do that work.” But I think you need dealing with the priorities of people traYcking, to be quite tight about what your accountability is class A drugs, those kinds of big organised crime for that type of work. Ev 164 Welsh Affairs Committee: Evidence
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Q711 Chairman: Last week, Minister, as you heard Q712 Mr Williams: I thought that one of the real from my colleague, we visited Holland and Belgium problems was that if an oYcer was seconded that and when we visited Holland we visited Europol, that Force may actually lose resources. Not only which I am sure you are aware of, and in fact I that, but when that oYcer returned again, at a personally visited it because it is part of the Police relatively senior level, it might be diYcult to Parliamentary Scheme. We were very impressed accommodate that oYcer into a senior with it and think it is very interesting work. But one management level structure, and just that the Police issue that was raised with us, that I thought we Force has found it quite diYcult to more at an ought to raise with yourself, is that whilst liaison administrative level. oYcers from our Police Forces have no problem Ms Blears: I am sure that may well be right in over there—they are seconded to the Police Force operational terms, and these are matters of and they have all their pensions, entitlements and operation for the Chief Constable. In any everything else continued—if a serving police organisation, if you are managing your resources oYcer were to join the Secretariat of Europol and then there will be issues about what is the right become part of that and employed by Europol they place, what is the right time and the Chief are not able to do that, and we all thought that it Constable would have to make a decision, as with would be a good idea if that could be looked at and the Police Authority, “Is this a good investment possibly changed. I do not know if you have a view from our organisation out of our resources?” about that? Clearly I would not substitute my judgment for Ms Blears: I am grateful for a little bit of advance theirs; they will have to weigh up. I do not know notice—just about 30 minutes, I think—that this whether they could get some secondments the other issue would be raised. I am very pleased that the way, which might help them to enhance their Committee has been out to Holland to look at facilities too. neighbourhood policing there. I have been trying Chairman: Mrs Williams. to get there for the last few months. I know they have an excellent system that has informed much Q713 Mrs Williams: I am wondering how we can of our thinking. On the Europol issue my get round this and how individuals can lead. Could understanding is that most of the oYcers are there be two reasons for this? Are the Chief actually seconded to NCIS, so they do retain their Constables aware of what you have just told us, or conditions. But if they want to work directly with are they aware but rather reluctant to explain to the Europol that is where the problem arises. I am told oYcers who are perhaps looking for secondment? that Section 26 of the Police Act 1996 does not If so, how can you overcome those two? preclude secondment, so they could be seconded— Ms Blears: I am loath, Mrs Williams, to speculate there does not appear to be a legal bar on their on what the reasons might be because I genuinely secondment—but it is a matter for the discretion of do not know. Certainly we can make clear the legal the individual Chief Constable and the Police position, that if people are under a Authority as to whether or not they want to misapprehension that there is a legal bar then support that secondment. So that is an interesting clearly we need to make that very clear. But it will piece of advice there, that they could be seconded be an operational matter for the Chief Constable of but obviously it is a matter for the Police Authority the Police Authority. We have similar issues when and the Chief Constable to decide whether or not people volunteer to go and help out across the they are prepared for that to happen. Interestingly world, and many of our police oYcers do a in the case of the Serious and Organised Crime fantastic job. The ones who have been out in Iraq Agency we are asking police oYcers there to come training the Iraqi Security Services, you cannot to SOCA and they will not then be police oYcers imagine anything more brave and courageous than once they are in SOCA but they will be able to police oYcers being prepared to go out there in suspend their police oYcer status and will be able those circumstances and train the very young to go back into their Forces and to take all the Security Services that are out there. Again, that is experience that they have from SOCA, which an issue for Chief Constables to take on board should enhance their Forces. And again you are because they will be losing, temporarily, part of right, Mr Chairman, that if you go into Europol their resource. But when those oYcers come back there are things there that I am sure that oYcers into the Force the kind of leadership skills that they would learn about that would actually enhance will have learned by almost punching above their their operation back in their Forces. So they ought weight in those kind of international situations I to see this as an opportunity to get that kind of think are of great value. But these are matters for exchange. On a general point, in terms of the Police the Chiefs and the Authorities to resolve. Reform Programme, I am very keen to see exchanges, secondments in other parts of the public Q714 Mrs Williams: Minister, do you think there sector so that people are really learning from other is room for a letter to go out to all Forces from ways of modern public sector management in order yourself highlighting this, so that we do not come to get ideas into our Police Service. So that may across this problem again? We have been told over well be worth exploring further. But there is no to Europol and have been told that the problem legal bar. exists, and it seems to me that we need to clarify Chairman: So you will be encouraging Police and to make sure that this message gets out to the Forces to do that, Mr Williams. various Forces. Welsh Affairs Committee: Evidence Ev 165
9 February 2005 Hazel Blears MP and Welsh Assembly Government Officials
Ms Blears: I will certainly take that issue back and necessarily be the ones that the Home OYce will see what is the most appropriate way for that set, but they would obviously be complementary message to go out through our communication and would give us an indication of what the Home systems and make sure that Forces are aware of it. OYce indicators are when we are looking at our Chairman: Mr Caton. own. I do not know if that helps you?
Q715 Mr Caton: Can we transfer quickly from Q716 Mr Caton: That is very helpful indeed. Europol to the Community Safety Partnerships in Ms Blears: If I could just add that part of what we Wales? In their evidence to this Committee Home are doing in trying to get the Community Safety OYce oYcials told us that the National Assembly Partnerships to agree what contribution they can will not have a role in setting targets/priorities for make to the national overall target is unashamedly the Community Safety Partnerships in Wales, as to try to harden up the Partnership working. We crime and disorder are not devolved. However, it started oV with Partnerships under the Crime is our understanding—and I think it is confirmed Disorder Act, and if you look at them the way in by your presence here today Ms Jordan—that which they perform varies quite dramatically. Some Community Safety Partnerships in Wales are are very well organised, they have their strategy, they definitely a responsibility of the National have their audit, they have their targets, they are Assembly. Can you therefore between you clarify driven by performance and they are delivering; and the division of powers, and in particular how some, quite frankly, are still in the realms of having targets are set for Community Safety Partnerships a discussion about what the problem is but not in Wales? necessarily setting that hard performance Ms Jordan: The targets that the former witnesses management rating that enables them to tackle the V have talked to you about are the Public Service problems and make a di erence. We have been Agreement targets that are for the Home OYce. undertaking a review of the Crime and Disorder They are agreed between the Home OYce and the Reduction Partnerships and the Community Safety Treasury. So in that regard they are Home OYce Partnerships as well, which is about to report to me targets, they are not Welsh Assembly Government very shortly, about how we can get the same targets. However, part of my team and part of my performance culture that we now undoubtedly have role on covering the Home OYce Director’s role is in the Police Service into those CDRPs as well, to negotiate the agreement of those targets within because if we are going to deliver on this 15% total Community Safety Partnerships, and as a number reduction in crime and higher and high crime areas, of the agencies who are part of those Community then all of those partners have to be similarly Safety Partnerships are actually bodies that are energised on what contribution they can make, responsible to the Assembly rather than to the whether it is education, housing—particularly Home OYce, then obviously there is an health around substance misuse—and some of the overlapping role there. But in relation to the 15% alcohol situations that we are facing. So what we at crime reduction target that we have talked about, trying to do is really make the Partnership more of a let me be clear that that is a Home OYce target and reality rather than the kind of virtual organisation not an Assembly Government target. That does not that we have had to a large extent so far. But I would mean to say that the Assembly does not have an not take away from the fact that many of the interest in the Community Safety Partnerships in Partnerships are very good, but some of them clearly Wales achieving that target, and we are anxious to need some help in getting more focused on meeting do what we can to assist. Certainly my role and the the targets that they set for themselves. role of my team has been to promote the idea that these are Partnership targets. The police make a Q717 Mr Caton: That leads me on, Minister, to my very big contribution to the achievement of those next question because of the point you made about targets, but it is for the whole of the Community getting police performance targets reflected in Safety Partnership and the relative agencies to Partnerships, because from evidence we have had it contribute to it. So for the first time while they are has been suggested that one means of improving setting targets, rather than just focusing on national Partnership working would be to set common or priorities, they are looking at the things that are complementary targets for all the Agencies involved important to their constituents and they are in Partnership working. Again, for all of you, is this agreeing within the Partnership what contribution achievable in Wales? the various agencies can make to the achievement Ms Blears: I am not going to answer specifically for of that target. As we go on through the three years the Welsh. I think it is achievable and one of the when we are reviewing whether or not they are reasons that we are moving to something called achieving their targets, where they are not then it Local Area Agreements, where we are working with will be for the whole Partnership to consider which the OYce of the Deputy Prime Minister—we have 21 agency perhaps could do more to achieve those pilots now I think across the country—where we targets. So the Assembly definitely has a role in it actually say to a whole community, “What it is that and an interest in it, but they are Home OYce you are prepared to deliver? Here is your one targets and they are not Welsh Assembly targets. funding stream coming in, these are the outcomes However, in the arena of substance misuse then the that we want you to deliver,” and then there is one Assembly will be setting its own targets and its own reporting mechanism going out. That is a kind of performance indicators and they will not nirvana to most places who currently have 32 Ev 166 Welsh Affairs Committee: Evidence
9 February 2005 Hazel Blears MP and Welsh Assembly Government Officials funding streams just for community safety. If we can the technology and the central things that are going make that work I think that would have a huge on in policing, but they also have a very close advantage, in that you would have all Agencies relationship with their local communities, partly facing together on the same agenda, with the same because of their geography, partly because of the targets, with the same inspection regime and with the way that they are organised, and they also have a same accountability mechanisms. We are a way relationship with the Assembly as well, which keeps from that yet but we are certainly starting to go them in touch with that broader community safety down that path because I am sure that all of us as agenda, as well as purely their policing work. I constituency Members in our own communities are would make a couple of points that are important to faced with public servants who say to us, “We are all me. First of all, I think that policing should remain trying to do the same thing but we are inspected for England and Wales, and that is driven separately, we have separate targets, occasionally particularly by the fact that we have a common some of them are contradictory.” I think it is criminal justice system—I think it is diVerent from incumbent on us as government to find a way the Scottish position where they have a diVerent through that labyrinth for those public servants to legal system—we share our criminal justice system. be able to concentrate on doing the job, which is What is becoming more and more apparent to me is about meeting those outcomes and getting safer that the whole of the criminal justice system needs to communities. So I think we can do that and I am work together if it is going to be eVective. That does urging the police, and particularly the other Partners not just mean the policing, it means the CPS, it of the Community Safety Partnership, to look at means the courts, it means resettlement of oVenders, your targets, try to make sure that they are not V the whole of that system needs to work well. I think contradictory, that they do not pull in di erent the advantages of the police being part of an directions, and that way I think we will get better England and Wales system, if I just go through a results. very brief list of them, are enormous. In fact the Mr Bader: I think the answer is that, yes, it is police in Wales have access to the Airwave System, achievable, but not necessarily that easy because I which is now rolled out much better; radio system; think we are still generally in the early stage of the possibility of mobile data. Again, I have seen in cooperative working. But, as you know, the First North Wales their projects with handheld Minister has in particular launched a direction for computers, getting into mobile data. We have the public services in Wales, “Making the Connections” biggest DNA database I think in the world—nearly is about collaboration, more eYcient working with three million entries on the DNA database; we have all public agencies within Wales, and I think that is the way forward. That must include those agencies the NAFIS system for live scan of fingerprints—198 that are not within the direct responsibility of the NAFIS systems operating and the Welsh police have Welsh Assembly Government, and that is a matter full access to those databases to enable them to of negotiation and good liaison between ourselves identify possible criminals. We have video and the UK government, which I am sure is the way identification that has been brought in which is forward. So I think it can be achieved and it will be revolutionising the identification process. ID quicker in some localities than others, undoubtedly. parades now are done in a matter of days rather than Chairman: Mrs Williams. weeks and in some cases done in hours because we have access to that. The other issue for me are the changes that are going to be brought about as a Q718 Mrs Williams: I would like to move on to the result of the Bichard Report and the Bichard Division of Powers and the working relationship recommendations. That is about having a central between the UK Government and the National intelligence system of all of our Forces in England Assembly for Wales. Minister, from the Home OYce and Wales so that you can flag up when people who point of view how has the concept for and delivery are at risk may well be in some of these very delicate of Police Services in Wales changed since the positions. So I think all the aspect to the IMPACT creation of the National Assembly for Wales in and IT system, the local PLX system through 1999? Bichard is key, and also Welsh police benefit from Ms Blears: First of all, I think there has been a the regional organisation of some of our training as change in that now there is close collaboration and provided as well, and they are going to have a key working between the governments, certainly role in a single non-emergency number. So I think working between myself and with Mrs Hart in terms there are a range of benefits to the policing being of her responsibilities for regeneration and carried out across England and Wales and I think V community safety. So there is a di erent element to the system is delivering pretty well and the police are the whole relationship now. I would like to performing pretty eVectively in Wales, although characterise it as although policing is not a devolved there is always more that can be done in terms of service to Wales, I think that there is a huge amount performance. of added value to be gained from having policing in England and Wales, and sometimes it is expressed to me as to whether or not there is a tension here. From my own experience in the last 18 months I have been Q719 Mrs Williams: You made your views quite doing this job, when I have visited Police Forces in clear about the possible future devolution of Wales I actually see that they in some ways have the policing functions from the Home OYce to the best of both worlds, because they have access to all National Assembly for Wales. However, do you see Welsh Affairs Committee: Evidence Ev 167
9 February 2005 Hazel Blears MP and Welsh Assembly Government Officials any benefit in the devolution of specific—shall we Mr Bader: Yes. say isolated—functions and, for example, in the area Ms Jordan: I think we have come a long way into of Partnership? community safety and what the Assembly has done Ms Blears: I do not really know what you mean, Mrs in the last few years. It is only a couple of years ago Williams, “in the area of Partnership” because the that the Assembly was putting money directly into Partnerships are Community Safety Partnerships so tackling substance misuse and it had no contact to that extent they are largely devolved because the really, or was not funding the police in any way and police are working with their local partners, from was not putting money into the previously called health, from education, from housing, from local Crime Reduction Partnerships. But we are doing government. So that is largely a devolved part of the that and within the powers we have been able to do system which is, as I said, the added benefit from that; we have been able to fund Operation Tarian. being part of that regeneration programme, as well We are doing a project in partnership with the Prison as the policing system. and Probation Services in Wales and we have been able to do that—there is nothing within the devolution settlement to stop us doing that. And we Q720 Mrs Williams: Do you foresee further are funding Community Safety Partnerships devolution along those lines? Perhaps your directly—in fact, we are putting in considerable colleagues from the National Assembly of Wales resources directly to those partnerships now. So I would like to comment? think we have already made great strides in the last Mr Bader: I agree with the Minister that it is diYcult few years with the powers we already have but the to see because the majority of the Partners, with the future is obviously a matter for other Ministers. exception of the police, are devolved; the Fire Service is now devolved to the Assembly and therefore they are one of the Partners in the Q722 Mr Caton: If we can look at funding. Concerns Community Safety Partnerships. I think the key have been expressed to us during this inquiry by Chief Police OYcers and Police Authorities about issue is not so much the responsibility but the way in problems created by short-term funding in which they work together. If I could just add that the addressing policing needs, ring fenced budgets and liaison with the four Police Forces in Wales is really confusion around funding streams. What are you very good. Just some examples, if I could give them, doing to ensure that these concerns are adequately in terms of their relationship with the Welsh addressed? Assembly Government. The Chief Constables and Ms Blears: First of all to say that I think generally the Authorities meet regularly with the Minister for the police settlement this year was a good settlement; Social Justice, and I think that is very helpful in them it was better than most Forces expected. It is never being involved in our areas of responsibility. In enough because they always want more resources. Communities First, in particular, two of the Police But just to make the point that in order to give the Forces have very close relationships with the four Welsh Forces the 3.75% floor increase we have Communities First Partnerships in fact. South had to put nearly £14 million extra into the pot Wales has set up a very specific group which works because there are no floors and ceilings in Wales within Communities First areas and works very because we only have four Forces, and I have written closely with the Community First Partnerships, and to the Minister indicating that we will need to discuss that is making a significant impact into the problems this issue because we have been doing that for the within those areas. We have very good liaison last three years now and the sum has been going up relationships on a practical level. I have a police regularly, so we are going to have to have a look at oYcer seconded from WACPO to me; he works with that. We have to put the £14 million in this year into me and he works with the Community Safety Unit the settlement. We have tried to slim down the and he is actually permanently within the Assembly. amount that goes into ring fenced grants because the That helps relationships between the police in Wales whole of government is trying to do that, to and the Assembly enormously as a conduit for maximise the general grant that at this stage is communication. And we have two secondments available for people to spend. Equally, at the same from the police, one dealing with business crime and time, the biggest part of the ring fenced funding is the one dealing with general crime activities. So I think Crime Fighting Fund, and it is through that fund we have a very good relationship and that liaison I that we have been able to get record police numbers. think is benefiting considerably the way in which we Without the Crime Fighting Fund I have no doubt are tackling community safety in general. that we would not have the record numbers of police oYcers that we have now. So I make no apology for driving that particular issue because I think Q721 Mrs Williams: In discussing the relationship everybody is very pleased that we have record police between the Home OYce and the National numbers, and the CSOs that we have as well. There Assembly for Wales an oYcial commented, “In a is always pressure to maximise a general grant, as I way the National Assembly for Wales need to decide say, but we have a £30 million rural policing fund how much they want to do,” and went on to say, and I think that Forces in Wales have a share of the “They are making some of their own choices in their rural policing fund because of sparsity issues, and we own way.” In your view does the devolution would not be keen to see that fund disappear from settlement as it now stands allow you to do what you being a specific grant. So, as I explained before, Mr want to do? Caton, what we are trying to do at local levels Ev 168 Welsh Affairs Committee: Evidence
9 February 2005 Hazel Blears MP and Welsh Assembly Government Officials through local area agreements is to get rid of that I think it is Cambridge and SuVolk Forces, they are multiplicity of diVerent funding streams that come collaborating quite a lot, and I am currently in, so that people have one pot of money that they awaiting the report from HMIC who have done a can then spend on things that they think are review of this area, to look at capability, to see important, to deliver the outcomes that we set them whether or not we do then need to move to any to do. That is the direction in which we want to go. further structural change. We will seek again, in looking at the formula this year, in looking at the next year’s police settlement, Q724 Julie Morgan: Would you see any benefits in to minimise the number of ring fenced grants—that reducing the number of Police Forces in England is the direction that we want to go in—but there are and Wales? sometimes some very good reasons for having ring Ms Blears: I have not received the report from fenced grants. If I think about Airwave, those were HMIC as yet and clearly I am not in a position to central costs for bringing in a massive new radio comment on that. But what I am interested in—and system and it was right that that was a specific grant this is connected to the eYciency agenda that is in the to make sure that that was implemented across all 43 funding settlement—we are talking about 3% Forces in England and Wales. Without it having eYciencies every year for the next few years. Half of been a ring fenced grant I think it might have been Y Y those e ciency savings have to be cashable and that di cult to get that kind of consistency across the inevitably means looking at your back oYce board. One of the things that I think challenges us services, looking at your call centres, your call when we look at policing in England and Wales is to V handling, looking at personnel management, say what are the things that can be di erent? But looking at financial management, and if there are actually there is a core of things which should be ways in which the Forces could collaborate in terms done in the same way across all Forces and the thing of squeezing out some better value for money in that drives me mad sometimes is when I go to one bringing their services together, then I think that Force and they are doing something wonderful and would be a very good thing. I am sure they do some next door they are not doing it, simply because “it of it now but I think across the Police Service there was not invented here”. I think we are moving on is still some scope for better joint procurement, for from that but there is an issue about getting example, which can give us better value for money. consistency across the Police Forces in the essential Chairman: Mr Edwards. things, particularly around managing intelligence. Chairman: Mrs Morgan. Q725 Mr Edwards: Can I ask about the Home OYce Directorate for Wales? How will the division of Q723 Julie Morgan: Just two quick questions about responsibility between the Home OYce Director for the structure. I wondered if you could update the Wales and the new Community Safety Director Committee about plans for the structure of policing? work in practice? I think it was in the White Paper last November and Mr Bader: It does not at the moment because we do it set out a timetable. not have a Crime Reduction Director for Wales at Ms Blears: In the White Paper we said that we this point in time. Can I just go back and explain wanted to make sure that the Police Service was fit how the situation developed, to put it in context? to meet the challenges of the 21st century and that When the original Crime Reduction Director was there is a recognition from most people in the field appointed it was at a very early stage in the that if we were starting with a blank sheet of paper Assembly’s development and some of the issues we would not necessarily end up with the kind of around community safety had not been configuration of 43 Forces that we have now. They determined—certain things like the significant vary quite dramatically in size, in capability and Substance Misuse Programme had not come into some of the challenges from serious and organised being, the Domestic Violence Agenda had not come crime are diYcult sometimes for small Forces to into being, and all of these issues have developed meet. But, equally, when you look at some of the over the last four or five years. As you were aware, performance figures it is not a direct correlation, because I think it was mentioned before, David sometimes the smaller Forces perform extremely A’Herne, the first and only Crime Reduction well and sometimes the bigger Forces do not Director in Wales, retired last July and we have been necessarily. So there is not a direct read across that in discussion about the future. He had assumed a lot big is beautiful. So what I have made clear is that I of those responsibilities but at the same time was am not interested in huge structural change for its actually a Home OYce employee, and whilst this in own sake, because that means that sometimes people practice gave us no particular problem, because of take their eye oV the ball, they are thinking about the individual and the way in which that had who is going to be the next Chief Executive or Chief developed, it could give considerable diYculties if Constable of the new organisation rather than that was to be replicated in that there are issues focusing on performance. But if there are issues about responsibility to the Minister within the about capability to meet the threat that is out there Welsh Assembly Government and responsibilities of then we would want to look at that. I have line management as well within the Assembly. So emphasised the possibility of lead Forces; you might when that happened I had discussions with have a Force that has a particular expertise in one colleagues in the Home OYce and we agreed that it area, they should be taking the lead on that. I have would be more appropriate to split the function, talked about collaboration. In the East of England, recognising, however, that if we split that function it Welsh Affairs Committee: Evidence Ev 169
9 February 2005 Hazel Blears MP and Welsh Assembly Government Officials is absolutely essential that there is a very close Ms Jordan: To some extent I live with that on a daily relationship which is maintained. As I understand it, basis at the moment and we work very closely with the replacement is being advertised very shortly. We Home OYce colleagues in development policies that will be involved, with the agreement of the Home will have some implications for Wales. For example, OYce, with the appointment of the individual. the introduction of the Drugs Intervention Because of its importance within the Assembly the Programme in Wales, what was formerly called person will be situated within the Assembly and will Criminal Justice Intervention Programme, the be responsible for the Home OYce activities within Home OYce recognised that this was something that the Assembly but working very closely with the they wanted to roll out under their criminal justice other element of community safety, which is headed agenda, but because of the diVerent responsibilities by Ms Jordan. I do not think there will be a problem in Wales they actually passed the responsibility to because of that close proximity because they will the Assembly and my team to take that forward. I do eVectively be in the adjacent oYce, so there should not think that splitting the two will make any be no diYculty about communication and liaison. diVerence for that. We need to keep in close contact So that is the principle that we are now pursuing. and we need to keep in discussion with our Home OYce colleagues and the Home OYce appointment Q726 Mr Edwards: Do you envisage any diVerence, enables us to have that direct linking. for the Welsh Director for Wales being diVerent from the Director in England? Q728 Chairman: We have more or less finished the Mr Bader: In which sense diVerent? questions but there are a few which, if you do not Ms Jordan: He will have a diVerent set of mind, Minister, we will send you in written form, responsibilities, in that the Home OYce Directors in and that will enable you to go now. We are very England have responsibility, I think all of them, for grateful to you for coming and giving the time, and the Substance Misuse Agenda in their areas, particularly to the Assembly oYcials for coming all certainly the drugs agenda, but obviously that the way to London for our benefit. responsibility will rest with me. So that will be one Ms Blears: Thank you very much, Mr Jones. Could significant part that will make a diVerence between I perhaps place on record that I think the working that Director and other Directors. But other between the Home OYce, certainly at the oYcial and Directors within England have diVerent ministerial level, with the Welsh Assembly is responsibilities; they do not all have exactly the same excellent and has developed as we have all grappled job descriptions. with some of these serious and complex issues. I think the relationships have really flourished and I Q727 Chairman: Will there be some diVerence in the hope that that can continue both at oYcial level and accountability between the Home OYce Directorate ministerial level too. I have been particularly within Wales? Because of the devolution aspects and delighted to answer your questions and I am the fact that certainly things like drugs, for delighted to follow up anything else in writing, and example—and you have mentioned the drugs my Parliamentary Private Secretary did say to me issue—but there are other issues, and as an example that perhaps I should mention the rugby! Perhaps I some multi-factual things are always aVected by should have done that at the beginning of the Welsh Assembly policies rather than UK session! Government policies. Do you envisage any Chairman: As an English Member of Parliament I diVerence in accountability or is it accountability am very glad to hear that, Minister! Thank you direct to the Home OYce? very much. Ev 170 Welsh Affairs Committee: Evidence Written evidence
1. Written evidence from the chairman of ACPO oYcers in Wales I have had the opportunity to discuss the Welsh AVairs Committee Inquiry with my colleagues from the four police forces in Wales. As the Chairman of the Association of Chief Police OYcers in Wales, I have been asked to seek some clarification from the Committee as to its stated Terms of Reference. We all wish to be as helpful to the Committee as possible and feel that in order to do so we should raise these issues at an early stage. The Terms of Reference appear to us more a set of subjects from discussions rather than a clear and tightly described Inquiry. For instance, the National Policing Plan is a document produced by the Home Secretary and laid before Parliament, to which all Police Authorities and Chief Constables must have regard in setting out their policing plans for the year. The National Policing Plan sets out the national priorities, national key performance indicators and other matters by which the police service will be measured as to its performance. Within national frameworks and national or sub-national initiatives sponsored by the Home OYce, policing is delivered locally. The role of the Home Secretary, Police Authority and Chief Constable in setting national and local priorities and in managing outcomes is set out in law and presented via the National Policing Plan. We understand that a Government White Paper on reforming the police service will be presented in the Autumn and will feature major change in the current arrangements for accountability. We would seek some clarity on the issues within the National Policing Plan that the Committee would wish to discuss. Should the Committee wish to examine the resources deployed to the police service in Wales by Central Government, they are available via the Home OYce website and Police Authority Financial Advisers. The performance of each police force and each basic command unit within the separate forces such as in the case of Dyfed-Powys—Carmarthenshire, Ceredigion, Pembrokeshire and Powys—may be found on Home OYce websites or via Her Majesty’s Inspectorate of Constabulary. They are updated monthly and contain all available information on recorded crime and road incidents. Is it the Committee’s wish to examine the issue of resource availability at the global level or local level? Is it the allocation of resources via the Home OYce Grant, the ODPM grant and Council Tax revenues or the deployment of human and other resources across the separate police forces? In discussing the “Use and Availability of Resources”, does the Committee wish to discuss how resources are allocated according to demand, to prionty; to centrally driven initiatives or locally driven initiatives; to regional criminal activity or anti-terror activity; and to uniform patrol? Does the Committee wish to discuss absence management; does it wish to examine such issues at regional, force or more local levels? As I have already mentioned there is a plethora of data on performance and comparative performance held by the Home OYce, Her Majesty’s Inspectorate of Constabulary and the Police Standards Unit. Should the Committee have particular areas in mind I and we as a group could better assist you in your deliberations. The Committee will be aware that the Welsh Assembly Government has no oversight of policing, it is not a devolved matter. However, there is an Assembly Minister with responsibility for Social Justice and Community Safety in the wider sense. The Assembly Government has strategies for Substance Misuse (drugs and alcohol) and uses its Social Justice funds to support crime and antisocial behaviour reduction across Wales. The Home OYce Crime Reduction OYcer for Wales is housed at the Welsh Assembly. He may be able to assist you with their strategic approach. It is the case that the four Chief Constables meet regularly with the Minister for Social Justice and that the Welsh Assembly Government has provided specific funding to the police service for pan-South Wales anti-drugs activity and pan-Wales schools programmes. Local Government strategies on crime and anti-social behaviour are made operational via Crime and Disorder Reduction Partnerships and Community Safety Groups. There are 22 in Wales; each with its own Community Safety Plan, which is a constituent part of the local community plan. The Committee will know that the Crime and Disorder Reduction Partnership is in action and partnership between the Local Authority Chief Executive and the local police commander, usually a Chief Superintendent or Superintendent. The local community safety plans can be made available to the Committee. However, we would seek clarification on those aspects of the Welsh Assembly Government and Local Authority strategies the Committee wish to discuss. There are issues such as public violence, private violence (domestic violence and child abuse), drugs and alcohol and their consequences, the management of prolific oVenders, young oVenders, sex oVenders. The role of the Youth Justice Board, Social Services, Education and Housing Departments. Welsh Affairs Committee: Evidence Ev 171
It is a wide ranging and complex area and we would wish to do full justice to the Committee in its deliberations. We believe a little more focus on the discrete areas concerning the Committee would produce an Inquiry of greater benefit to the people of Wales and we would seek that clarity in the spirit of seeking to improve upon the service we deliver with our partners, whose role gains in importance and to deliver better outcomes. Terence Grange Chief Constable Dyfed-Powys Police 6 August 2004
2. Written evidence from Dyfed-Powys Police
INQUIRY INTO THE POLICE SERVICE, CRIME AND ANTI-SOCIAL BEHAVIOUR IN WALES
1. Introduction 1.1 This paper has been prepared for consideration by the Welsh AVairs Select Committee to assist in its inquiry into the police service, crime and anti-social behaviour in Wales. 1.2 This written submission will be supplemented by oral evidence to be given to the Committee by the Chief constable of Dyfed-Powys Police on 20 October, 2004. 1.3 Dyfed-Powys Police is pleased to participate in the Welsh AVairs Select Committee inquiry into this important area of business which is central to policing, partnership and community activity.
2. Contextual Background
2.1 General 2.1.1. Dyfed-Powys Police Force covers an area of 10,956 kilometres square, representing over 50% of the total area of Wales, and serves a population of 488,268. 2.1.2. The current total number of Police OYcers with the Force stands at 1,172, and the number of Police StaV at 509.1 2.1.3 The Force is divided into four Basic Command Units (BCUs). By far the largest in terms of area is Powys BCU (5,196 Km2), while the greatest population density is found within Carmarthenshire BCU— 72 people per square kilometre (compared with 69 per Km2 in Pembrokeshire BCU, 42 per Km2 in Ceredigion BCU and 24 per Km2 in Powys BCU). 2.1.4 Within Dyfed-Powys, the coalescence of BCU and Local Unitary Authority boundaries in 2001 has facilitated the establishment of Community Safety Partnerships (CSPs),2 which incorporate Force BCUs, local authorities (LAs) and other statutory and voluntary agencies, as directed through legislation contained in the Crime and Disorder Act 1998. 2.1.5 In developing strategies and actions to deal with Anti-Social Behaviour (ASB), Home OYce (HO) Guidance emphasises the need for Police Forces to work within local CSP frameworks. 2.1.6 Responses from public consultation carried out within the Force area reflect consistent levels of local concern regarding issues connected with ASB, and as such, reinforce the formal requirement set out within the National Policing Plan (NPP) 2004–07 that Police Forces establish tackling ASB as a key priority. 2.1.7 Within the Force, as nationally, ASB is nothing new; Historically, calls from members of the public reporting incidents of ASB were recorded upon the Force command and control system under a variety of classifications which did not indicate the specific nature of the incident involved—for example “Crime- Disturbance” and “Miscellaneous–Other”. Moreover, until the advent of the National Crime Recording Standards (NCRS) in April 2002, many ASB—related incidents were not recorded upon the Force Crime System at all, and the full extent of the problem was virtually impossible to quantify.
2.2 Definition of ASB 2.2.1 The definition generally adopted by Police Forces and Community Safety Partnership (CSP) nationally is that given in the Crime and Disorder Act 1998: 2.2.2 “[Acting] In a manner that caused or was likely to cause harassment, alarm or distress to one or more persons not of the same household [as the defendant]”.
1 Force Management Information Unit Quarterly Bulletin End of Year 2003–04. 2 Crime and Disorder Reduction Partnerships are termed “Community Safety Partnerships (CSPs)” in Wales, since the inclusion of local Drugs and Alcohol Teams (DATs) within partnerships, and will henceforth be referred to as such. Ev 172 Welsh Affairs Committee: Evidence
2.2.3 This widespread usage of what is essentially a non-specific description reflects the inherent diYculties which prevent the formulation of a comprehensive and consistent definition of what constitutes ASB,3 and also reflects the subjective nature of the way in which the problem is perceived by individual members of the public, depending upon their age, circumstances and disposition. 2.2.4 This is borne out by the multitude of definitions of ASB elicited from members of the public during consultation, both nationally and within the Force area—for example, a sample of responses from the Carmarthenshire Citizens’ Panel May 2004 Survey provided the following definitions:4 — “Any act or behaviour that impinges on another’s way of life, making them feel unsafe or fearful in their own community/area”. — Disruption to the community—behaviour that draws disgust and dissatisfaction from the majority of community residents. — People going out of their way to cause mayhem and disturbance. — Dangerous behaviour frightening others, causing disturbance or distress. — Someone who gives cause for concern ie drunk, intimidating behaviour, knocking on doors at night etc. — Behaviour creating tension and agitation to the public. — Something making you feel unsafe in your home. — Harassment at home by petty crooks and cheats. 2.2.5 Within National and local plans and guidance, ASB is commonly linked by definition with “Youth Nuisance”, “Disorder”, Violent Crime and “Drink-related Disorder”. Within Dyfed-Powys Police Force, 73% of the 15 Anti-Social Behaviour Orders (ASBOs) currently recorded have been issued for drink- related disorder. 2.2.6 For the purposes of recording incidents (from a policing perspective), most definitions of ASB involve some overlap with other categories of incident. For example, domestic violence will become anti- social when it is linked to noise nuisance which aVects the neighbours, while youths throwing stones through windows can be classed both as Criminal Damage and as “A (ASB)-Nuisance”. 2.2.7 This overlap is graphically represented within the Dyfed-Powys Force “Safer Communities” diagrammatic summary of policing priorities, which positions various elements of ASB within a range of groupings of core policing services, emphasising the fact that ASB cannot be viewed as a distinct entity, but encompasses a wide variety of behaviour types, and must therefore be regarded and treated accordingly.
2.3 Measures available to tackle ASB 2.3.1 The range of measures currently available to Police Forces and partnerships to tackle ASB represents a raft of deterrents and penalties which may be combined and tailored to suit the wide range of behaviour types which they seek to address. 2.3.2 Measures available to Police OYcers include: — Anti-Social Behaviour Orders (ASBOs) (Crime and Disorder Act 1998). These may be applied for either in isolation (“stand-alone”) in Magistrates Courts as a civil proceeding, in County Courts during related proceedings, or in Magistrates Court in conjunction with convictions for other oVences (“Fast-Track ASBOs”, or “Criminal ASBOs/CRASBOs”) — Acceptable Behaviour Contracts (ABCs). Voluntary contracts which are drawn up between the individual involved in ASB, parents/guardians, Police OYcers dealing with the case, members of the local Youth OVending Team (YOT) and other agencies involved in dealing with such behaviour, eg Local Authority/ Registered Social Landlords, Schools and health services. — Penalty Notices for Disorder (PNDs) (Sections 1–11 Criminal Justice and Police Act 2001). — Penalty Notices for Truancy (Section 23: Anti-Social Behaviour Act 2003). — Power to enforce restrictions against anti-social public drinking, following designation of an area by Senior Police OYcers in agreement with the LA for that purpose. (Sections 12–16 Criminal Justice and Police Act 2001). — Power to escort young people under 16 years to their homes after 21:00 hours, if they are seen acting in an anti-social manner in a public place where ASB is a recognised problem,5 and if they are not accompanied by an adult. (Section 30: Anti-social Behaviour Act 2003). — Power of closure of premises where drugs are being used (“Crack Houses”). (Sections 1–11: Anti- Social Behaviour Act 2003)
3 Refer to Appendix E for a list of ASB types issued by the HO. 4 Further reference will be made to the Citizens’ Panel responses during the Consultation stage of the review. 5 Following authorisation by a senior OYcer in conjunction with the Local Authority. Welsh Affairs Committee: Evidence Ev 173
— Power to arrest individuals carrying air weapons or imitation firearms in a public place. (Section 37: Anti-Social Behaviour Act 2003) — Power of seizure of vehicles driven in an anti-social manner (Section 59: Police Reform Act 2002). — Increased powers to disperse “rave” gatherings and remove trespassers (Sections 57 and 58 of the Anti-Social Behaviour Act 2003). 2.3.3 Thus, in individual cases, ABCs may be employed as a first response, to be followed if required by ASBOs. 2.3.4 Where ASB stems from larger groups congregating in a particular area, dispersal orders may be obtained, and individuals under the age of 16 may be escorted home by a police oYcer. In the case of alcohol- related disorder, PNDs may be issued and/or alcohol may be confiscated, following the designation of the area as an alcohol-free zone by the LA. 2.3.5 As is to be expected, in view of the pace with which the Government is driving the national campaign to tackle ASB, a concentration of new measures available to Police Forces and Partnerships in dealing with the problem have been introduced within a relatively short space of time, rendering it diYcult for them to be assimilated within Force Policy and Practice.
2.4 Dyfed-Powys Force: Measures Employed
Anti Social Behaviour Orders (ASBOs) 2.4.1 Data provided by the Force Management Information Unit (MIU) for the period April to June 20046 shows the number of ASBOs issued and breached by BCU to stand as follows:
BCU No ASBOs Issued No ASBOs Breached Carmarthenshire 3 0 Ceredigion 3 1 Pembrokeshire 9 3 Powys 1 0
Penalty Notices for Disorder (PNDs) 2.4.2 Information provided by the Central Ticket OYce within the Criminal Justice Unit indicates that since their introduction within the Force (01/07/2004) 66 PNDs have been issued within the Force to date (20/08/2004). 2.4.3 Due to a current national problem in respect of issuing PNDs on the street for a recordable oVence, which would require DNA and Fingerprints to be taken, PNDs for such oVences can only be issued to oVenders in custody. The Force is currently awaiting guidance from the Home OYce regarding this matter. 2.4.4 Figures for PNDs issued within Dyfed-Powys broken down by BCU, and by penalty tier—(£80 or £40 depending upon the oVence), stand as follows:
BCU Total PNDs £80 £40 Carmarthenshire 28 9 19 Ceredigion 4 3 1 Pembrokeshire 22 14 8 Powys 12 5 7
Acceptable Behaviour Contracts (ABCs) 2.4.5 The number of ABCs which have been drawn up within the Force is currently unknown but they have been used within all BCUs since 2003, often as a precursor to applying for ASBOs, with an apparent high initial success rate in preventing problem behaviour.7 2.4.6 Procedure which will be adopted within all BCUs with regard to collation of figures for ABCs stands as follows: once the ASB Co-ordinators are in place (see p. 9 for further details), it will be the responsibility of the OYcer in the case (OIC) involved in drawing up the contract in conjunction with partner agencies to provide details to the Co-ordinator within each BCU. Figures will be recorded by the Co-ordinators and shared with the Force MIU.
6 ASBO numbers have not been recorded by MIU prior to this. 7 OYcer reports re outcomes of ABCs drawn up with problem youths in Pembroke Dock (2003) Ev 174 Welsh Affairs Committee: Evidence
Current procedure stands as follows: 2.4.7 Carmarthenshire: Figures are collated by an Inspector within Llanelli Section, who has in fact initiated and drawn up most of the ABCs that currently exist within the BCU. This oYcer heads an embryonic ASB Unit within the BCU, which has been unable to develop due to lack of time and resources. There are currently approximately 16–18 ABCs within the BCU, most of them drawn up with individuals within Llanelli Section. 2.4.8 Ceredigion: Figures will be collated by the ASB Co-ordinator, from information taken from the OIC/partners, as described above. There are currently no ABCs within the BCU, as far as is known.8 2.4.9 Pembrokeshire: Figures should be recorded within the Community Safety Department and also by the BCU Crime Analyst. In addition, all stations should maintain files of local ABCs, although the BCU Crime Analyst reported that this was not always the case. The Analyst has recently collated figures of ABCs (and ASBOs currently within the BCU, but reported great diYculties in obtaining the information; the postholder had to go through each Section to find details. 2.4.10 There are 14 ABCs within the North Section of the BCU (Haverfordwest and Milford Haven)— current as at 21/07/2004. There are no ABCs within the South Section (Pembroke Dock). 2.4.11 Powys: There is currently no-one within the BCU tasked with collating figures for ABCs. OYcers questioned stated that they were aware of the existence of current ABCs within the BCU, but were unable to identify where information relating to these would be located. 2.4.12 Other examples of use of ASB measures include: — Section 59 of the Police Reform Act 2002—power of seizure of vehicles which are being driven in an anti-social manner has been used by oYcers—for example during Operation Grand Prix 2, devised to deal with groups of “boy racers” congregating in Tesco car park in Pembroke Dock. — Designation of an area as an alcohol-free zone, under Sections 12-16 of the Criminal Justice and police Act 2001, has been applied for in Aberystwyth Town Centre in order to tackle ASB problems associated with street drinking and vagrancy. OYcers will have the power to confiscate alcohol within this area.
3. Force Structures and Personnel Involved in Tackling ASB The Force approach to tackling ASB needs to be viewed in an holistic way which takes into account not only the work carried out at diVerent levels within the organisation, but also strategy development and action undertaken within the framework of CSP working, and the way in which tackling ASB is incorporated into and supported by the framework of the National Intelligence Model (NIM). The following sections will describe the position within Dyfed-Powys Police Force as a whole. Details specific to the four BCUs are contained within Appendices A-D, to which references will be made where relevant.
3.1 Dyfed-Powys Police Force 3.1.1 There is currently no ASB Unit within the Force; a Unit was started, run by a Section Inspector (Carmarthenshire), but was unable to be maintained and resourced due to other demands within the BCU. 3.1.2 Tackling ASB forms part of the portfolio of the Chief Inspector currently based within the Community Safety Department, Headquarters,9 who has recently taken on the role of ASB lead for Dyfed- Powys Police Force. The Community Safety Department, HQ includes among its responsibilities in relation to ASB: — Development of policies and procedures to ensure a corporate approach, — Identification and dissemination of National Best Practice, — Acting as a point of contact for the Welsh Assembly Government (WAG) and Anti-Social Behaviour Unit (ASBU) within the HO, and — Consultation with Community Safety Partners and other statutory and voluntary organisations in order to identify, develop and support eVective joint and individual initiatives. 3.1.3 Although directed operationally by the BCU Commanders, the Community Safety departments within the BCUs link in with Community Safety HQ as regards requesting guidance in relation to ASB legislation and practice, together with other issues connected with community safety. 3.1.4 In addition, it is intended, once the Superintendent Community Safety HQ is in place, to set up Force Community Safety OYcer Conferences, which would take place at least quarterly, and provide a forum in which OYcers from all BCUs could discuss ASB-related issues and share best practice.
8 Information provided unoYcially from Police OYcers and ASB Coordinators within each BCU. 9 Community Safety HQ will be headed by a Superintendent in September 2004; it is as yet undecided whether the post of Chief Inspector will be retained within the Department. Welsh Affairs Committee: Evidence Ev 175
3.1.5 The Force acts to tackle ASB through a range of measures which can be classified under the following headings: — Prevention eg Use of high visibility policing, including deployment of Special Constables and Police Community Support OYcers (PCSOs) on local beats as a deterrent, and targeted patrol. — Early Intervention eg Issue of Early Intervention Warnings, issue of, and monitoring of compliance with, ABCs. — Enforcement eg Taking the lead in applying for the issue of ASBOs and prosecuting breaches of Order conditions, issuing PNDs and confiscating alcohol within designated areas. 3.1.6 The extensive range of measures available Police OYcers in tackling ASB necessarily involves a corresponding breadth of involvement at all levels from within the Force. Examples include: — Senior Command Teams, in setting BCU Control Strategies relating to tackling ASB. — Chief Inspectors and Inspectors, in monitoring adherence with strategy, and acting as first points of contact with CSPs, both generally, and in cases where ASBOs are being sought. Inspectors also approve and co-ordinate applications for ASBOs which come from within the Force. — BCU Crime Analysts, in creating profiles of specific types of ASB to inform planning, and in producing Tactical Assessments, which include analysis of incidents and monitoring of performance in relation to local ASB problems. — Local Beat OYcers, in acting as a visible deterrent, and providing intelligence regarding levels of ASB and local “hotspots”, which they feed back to Tactical Tasking and Co-ordination Group (TT&CG) meetings at Section level, as per reporting structures introduced through the NIM. — BCU Licencing OYcers, who identify and monitor licenced premises where ASB is a problem, and work with CSPs to “designate” areas where alcohol-induced ASB is a particular problem. — Community Safety OYcers at BCU level, in working to secure funding via CSPs to support initiatives designed to tackle ASB. — School Liaison OYcers, in delivering the Dyfed-Powys Police Core Schools Liaison Programme, of which education regarding issues connected with ASB forms a key element. The Force Control Strategy specifies that utilising these oYcers to communicate with key age groups within the community will form a key prevention measure in tackling ASB. — Local Beat Managers (LBMs), in eVectively liaising with members of the public on their beat, in gathering intelligence, and in reassuring the local community that action is being taken to tackle ASB. — The Force Press OYce, based within the Community Safety Department HQ, who release information publicising measures carried out by the Force to tackle ASB to the local media. — The Force Legal Advisor, in providing legal guidance in support of Force applications for issue of ASBOs. 3.1.7 Some of the responsibilities listed will be performed in tandem with the ASB Co-ordinators who are currently being appointed by CSPs within each BCU—for example, the identification and dissemination of best practice, securing funding, and acting as a point of contact for WAG and the ASBU within the HO.
3.2.0 Partnership working 3.2.1 The Crime and Disorder Act 1998 contains the requirement for Police Forces to work in partnership with LAs and other agencies in setting and implementing strategies aimed at achieving reductions in crime and disorder. 3.2.2 To this end Dyfed-Powys Force works within a partnership framework which includes both local CSPs and other statutory and voluntary agencies. 3.2.3 Each BCU includes within its area a CSP comprised of what, under the Crime and Disorder Act 1998, are defined as “Responsible Authorities”. These are: — Dyfed-Powys Police Force. — Dyfed-Powys Police Authority. — Mid and West Wales Fire Service. — Local Authorities. — Local Health Groups. 3.2.4 In addition to this core membership, the Force works to tackle ASB in conjunction with a wide range of organisations and agencies, likewise defined as “Co-operating Bodies” and “Invitees to Participate”. Ev 176 Welsh Affairs Committee: Evidence
3.2.5 The scope and composition of local partnerships vary between each BCU,10 but membership typically includes the local YOT, the National Probation Service, the Crown Prosecution Service, Local Drug and Alcohol Action Teams and local Trading Standards departments. 3.2.6 In line with the HO recommendation that each CSP appoint a lead person accountable for ASB- related work, and with the provision of funding11 for each CSP for this purpose, Carmarthenshire and Ceredigion CSPs have appointed ASB Co-ordinators. At the time of writing, Pembrokeshire and Powys CSPs expect to have their Co-ordinators in place in the near future. 3.2.7 Ceredigion CSP is also due to appoint an ASB Project OYcer,12 who will based with the ASB Co- ordinator within the County Council, and whose duties will include enforcement of measures to tackle ASB. 3.2.8 Please refer to Annex G (p.69) for role profiles. 3.2.9 As members of these partnerships, Police OYcers within Dyfed-Powys Force regularly attend CSP meetings—for example, the main strategic CSP meetings, held quarterly or bi-monthly, which are attended by the BCU Commander, and smaller operational group meetings, which are attended by Inspectors who are involved with the respective operations, and Force Community Safety OYcers. 3.2.10 Meeting structures and typical OYcer attendance varies between BCUs—refer to Appendices A–D (5) for details relating to each CSP.
3.3.0 National Intelligence Model (NIM) 3.3.1 The NIM is used within Dyfed-Powys Police Force to support action against ASB at local level— ie Level 1—within the three-tier structure. In accordance with the dynamics of the model, action, intelligence and results relating to ASB are involved in a mutually informative process which feeds into every stage of the model, and includes involvement of oYcers and police staV at all levels. 3.3.2 Details of how action and intelligence relating to ASB is incorporated into the NIM structure are represented in Annex F (p 67).
4. Identification of Purposes of Tackling Anti-Social Behaviour The main purposes of tackling ASB by Dyfed-Powys Police Force are as follows:
4.1 Fulfillment of Government and Legislative Requirement 4.1.1 Under the terms of the Police Reform Act 2002, the Government is required to produce a National Policing Plan in which it sets out key strategic priorities for the Police Service over a rolling three-year period. Chief OYcers and Police Authorities are required by this same Act to have regard to these key priorities in preparing and issuing their Annual Policing Plans and local three-year Strategy Plans. 4.1.2 Contained in the NPP 2004–07 are five elements which are to constitute the key strategic priorities for each Force for the next three years: — Providing a citizen focused service to the public. — Tackling anti-social behaviour and disorder. — Reducing burglary, vehicle crime, robbery and drug-related crime. — Combating serious and organised crime. — Narrowing the justice gap by increasing the number of oVences brought to justice.
4.2 Dyfed-Powys Police Authority Annual Policing Plan 2004–05 4.2.1 In accordance with legislative requirement, the plan has set as one of its four priorities: “To continue to tackle anti-social behaviour in its various forms during 2004–05, closely monitoring the use of anti-social behaviour orders (ASBOs) and Acceptable Behaviour Contracts (ABCs) as part of this process.” It aims to do this through: — Identification of ASB “hotspots”. — Identification of accompanying trends in oVences of criminal damage. — Improvement of CCTV coverage and street lighting in problem areas. — Proactive use of ASBOs and ABCs. — Use of high visibility patrols in problem areas.
10 Refer to Annexes A-D (1) for details of partner agencies within each BCU. 11 Building Safer Communities Fund 2004–05 and 2005–06—£25,000 per annum for two years. 12 Funded through the Welsh Assembly Government (Section 126 of the Housing Act 1996). Welsh Affairs Committee: Evidence Ev 177
— Active enforcement of ASBO breaches. — Recording of numbers of ASBOs and ABCs secured during the year by the Force MIU.
4.3 Corporate Strategy 2003–05, “Safeguarding our Community” 4.3.1 This is jointly produced by Dyfed-Powys Police Force and Police Authority, and lists as a Priority Action: (The reduction of) . . . “levels of crime, public disorder and anti-social behaviour in conjunction with key strategic partners”.
4.4 The Community Safety Strategies 2002–05 4.4.1 (Also termed “Crime and Disorder Strategies”). These are produced jointly by Dyfed-Powys Police Force and Authority and the four Unitary Authorities within the Force area, and establish tackling ASB as a key aim, under the themes of “Reducing the Fear of Crime (Powys) Public Reassurance” (Pembrokeshire), “Reducing the Fear of Crime” and “Violent Crime” (Ceredigion), and “Quality of Life” (Carmarthenshire). Actions within these plans assigned to Dyfed-Powys Police Force are: 4.4.2 Carmarthenshire: carrying out customer satisfaction surveys and increasing foot and mobile patrols by five per cent in order to tackle high levels of perceived disorder). 4.4.3 Ceredigion: reduction of fear of crime by increasing the number of oYcers on patrol, introduction of a mobile police station, removal of graYti, use of CCTV and improvement of street lighting. Establishment of procedures for obtaining ASBOs. 4.4.4 Pembrokeshire: develop and extend use of removal procedures for graYti, abandoned cars and fly- tipping, to increase accessibility to Police services in rural areas and to increase the number of rural Police OYcers—in order to improve the environment and reduce the fear of crime. 4.4.5 Powys: target hotspots to reduce drink-related violence, improve management of licenced premises and reduce the number of assaults in licenced premises. Introduction of a protocol for the removal of graYti, greater access to Police to reduce the fear of crime. In relation to CCTV, evaluation of the impact in main towns within Powys, deployment of mobile CCTV systems and improvement of street lighting systems in conjunction with the Council Streetlighting Unit. In relation to autocrime, agree a protocol for the removal of abandoned vehicles with the local Authority.
4.5 The Force Control Strategy 2004–05
4.5.1 This is informed by the Force Strategic Assessment as per the NIM, and lists tackling ASB as a key priority in terms of Intelligence (identifying prolific oVenders, hotspots and links with other areas of criminality), Prevention (liaison with partners to identify hotspots, use of ASBOs and ABCs as deterrents and use of School Liaison OYcers to communicate with key age groups within the community) and Enforcement (high visibility patrolling, enforcement of ASBO/ABC breaches and utilisation of CCTV systems in hotspot areas).
4.6 The Divisional Plans 2004–05
4.6.1 These are drawn up in response to National and Police Authority priorities and informed by responses from local public consultation. These set tackling ASB as a local priority for each BCU (in conjunction with tackling violent crime in Powys and Pembrokeshire, and with tackling violent crime and domestic violence in Carmarthenshire).
4.7 The Basic Command Unit (BCU) Control Strategies
4.7.1 These are informed by bi-annual strategic assessments in compliance with NIM structures, and feed into the Divisional Plans (as above). The Control Strategies 2004–05 for the four BCUs set tackling ASB as a key aim, to be addressed in terms of Intelligence, Prevention and Enforcement priorities. 4.7.2 Control strategies for each BCU mirror the objectives contained within the Force Control Strategy, with ASB Priorities linked with those for Violent Crime in all BCUs except Ceredigion. Additional priorities include: Ev 178 Welsh Affairs Committee: Evidence
BCU Intelligence Prevention Enforcement
Carmarthenshire Monitoring large Maximising the use of public gatherings. the media to provide reassurance and to promote positive action in respect of violent crime and ASB. Ceredigion Monitoring Criminal Working in partnership Consideration given to Damage oVences. with the Wallich post-conviction CliVord Community ASBOs. (for homeless people). Use of high-visibility policing at key locations during peak periods. Liaison with the ASB Co-ordinator and LA regarding problem families. Pembrokeshire Multi-agency liaison regarding licensing issues and under-age drinking. Powys Monitoring large Utilisation of Local “Pub Watch” to be public gatherings. Authority and considered for BCU Registered Social launch Landlords and other housing agencies in the enforcement of tenancy agreements.
4.8 “Safer Counties” 4.8.1 Finally, all local and national policing priorities for the Force have been incorporated within “Safer Counties”, a summary of policing objectives for Dyfed-Powys Police Force, in which key priorities are categorised under one or more of six headings, and through which BCUs can take forward their Control Strategies. The issue of tackling ASB is addressed most specifically within the categories of “Safer Communities”, “Safer Streets” (tackling public disorder, alcohol-related crime, property damage and criminal damage) and “Safer Society” (Reversing the fear of crime, working with local partnerships), although, in accordance with the pervasive nature of this type of behaviour, aspects of the Force strategy to tackle it are included within all categories (Safer roads: tackling excess speed, and Safer Schools: public awareness and initiatives to address substance misuse, bullying and truancy).
4.9 Response to Public Concern 4.9.1 Consultation with the public and other key stakeholders forms a key element in the process of identifying and setting policing priorities for the Force and Police Authority as well as in informing CSP strategies. Consultation within Dyfed-Powys Police Force area is undertaken through (amongst others): — The Force External Survey.13 — Crime Audits to inform CSP Strategies. — Citizens’ Panel (while Carmarthenshire BCU has an established panel, these are soon to be set up within the other Force BCUs). — Police Authority Community Consultative Committee Meetings (annual). — Town/Community Council Meetings (usually held monthly and attended by the Section Inspector when policing matters figure on the agenda). — Postal surveys of town and community councils. — Consultation with Under-Represented Groups (URGs). — Virtual Focus Groups (to be set up in the near future).
13 This approach to consultation is due to alter during 2004–05 in favour of direct engagement with the public, in the form of face-to-face consultation. Welsh Affairs Committee: Evidence Ev 179
— Ad-hoc surveys regarding local problems carried out by Police OYcers. 4.9.2 Information at a local level is also drawn down from the annual British Crime Survey, undertaken by the HO, and the annually published report “Crime in England and Wales”, which combines data from the British Crime Survey with police recorded crime figures. 4.9.3 Responses from consultation within Dyfed-Powys have mirrored national trends in indicating local public concerns relating to issues surrounding ASB. For example, the External Survey conducted by the Force Corporate Services department in 2002 revealed that substantial levels of fear among respondents were induced by human and environmental factors such as run-down areas, groups of youths in the street, drunkenness and graYti, while many respondents felt that vandalism, drunkenness, bullying and intimidation had increased over the last twelve-month period, together with a corresponding decline in community spirit. 4.9.4 Local consultation was carried out recently in Aberystwyth by local oYcers as part a process of applying for areas of the town to be designated for the purposes of the restriction of anti-social drinking. Responses from members of the public, local traders and local organisations indicated unanimous support for the proposed action, reflecting the high levels of local concern regarding the problem.
5. Resources Allocated to the Service Area Due to the broad base from which the Force drive to tackle ASB derives, resources allocated to this area of activity are not used exclusively for this purpose—for example, CCTV camera systems and digital cameras are used to record activity of all types.
5.1 Funding 5.1.1 With regard to financial support, there is no specific provision within BCU budgets for the fiscal year 2004–05 covering initiatives designed to tackle ASB, following the withdrawal of the Community Safety Challenge Fund in the interests of achieving eYciency savings within the Force. Any financial resources obtained result from CSP funding obtained from the HO or WAG, or ad-hoc funding for specific WAG priority projects. 5.1.2 WAG funding for partnerships may be used to tackle ASB; and as such, must be directed in agreement between partners involved. Sources of funding available to the Force as members of CSP include: — The BCU Fund Programme (2003–06)—run through WAG and provides funding with the intention of helping Police Forces play a full and active role in the delivery of CSPs’ strategies. As such, BCU Commanders must agree their spending plans with their Community Safety Partners. — Communities First is a long-term programme by WAG. The aim of the programme is to improve opportunities and quality of life in the most disadvantaged communities in Wales as identified by the Welsh Index of Multiple Deprivation. Funding is provided partly by WAG, and partly through other sources (Lottery, European Funding etc). Areas identified as disadvantaged within Dyfed- Powys which will benefit from this funding during the present fiscal year are: Monkton and Llanion (Pembrokeshire), Pantyfynnon, Llwynhendy, Tyisha and Glanymor (Carmarthenshire) and Ystradgynlais (Powys). — The Building Safer Communities (BSC) Fund (2003–06) is a three-year programme of funding available to CSPs that is channelled directly to LAs, who act as the “Accountable Body” for partnerships. One of the conditions laid upon BCU Commanders in deciding their priorities for spending under the terms of this fund is that they take into account delivery at the local level of the policing priorities contained in the NPP, which include tackling ASB. Details of the funds allocated to each BCU are set out in Appendices A–D. Part of the BSC funding has been allocated for a two-year period to fund the creation of ASB Co-ordinator posts within each CSP. — Safer Communities Fund (2003–05) is a WAG fund aimed at supporting CSPs in working with local communities to address the underlying causes of crime and criminality. — Small Retailers in Deprived Areas. The aim of the project is to improve the security of small retailers in the 10% most deprived areas in England and Wales by providing a range of interventions to individual shops or groups of shops such as better locks and toughened glass or by making improvements to their immediate environment, such as better lighting. Funding runs until the end of the fiscal year 2003–04, with grants provided to the following schemes within Dyfed-Powys: — Ceredigion Partnership Security Scheme. — Brecon CCTV Scheme. — Pembrokeshire Small Retailers. Ev 180 Welsh Affairs Committee: Evidence
— The Substance Misuse Action Plan Fund (Formerly the Drug and Alcohol Action Fund). This funding supports Partnerships comprising CSPs (including Police Forces) and Local Substance Misuse action teams in tackling drug and alcohol-related problems within the local community, and in so doing supports action against ASB. 5.1.3 Further funding which will support the Force drive to tackle ASB is detailed within the newly published HO strategic Plan 2004–08—“Confident Communities in a Secure Britain”. These are: — The Neighbourhood Policing Fund, which will provide funding to support the recruitment of 20,000 PCSOs nationally, and aid the development of Neighbourhood Policing Teams within all forces (see below). Within Dyfed-Powys Police Force, BCU Commanders have been tasked by the Chief Constable to identify areas within their units which would most benefit from deployment of extra PCSOs. Details of funding allocation for each Force are not yet available (as at 04/08/04). — The Safer and Stronger Communities Fund (available from April 2005), which is available to CSPs in order to support measures intended to counter Crime and ASB, and to improve “liveability” within local areas. For details of funding secured by each BCU for the current fiscal year, refer to Appendices A–D (3).
5.2 Human Resourcing 5.2.1 Annex B of the NPP 2003–06 states that: “Chief OYcers should make full use of OYcers, Special Constables, Police Community Support OYcers (PCSOs) and other members of the extended police family as part of Forces’ response to anti-social behaviour”. 5.2.2 Thus in addition to OYcers and Police StaV listed in Section 3, action to tackle ASB within the Dyfed-Powys Police Force involves deployment of the following:
Police Community Support OYcers (PCSOs) 5.2.3 The Force currently employs eleven PCSOs, all of whom are based within Llanelli Section within Carmarthenshire BCU. Five oYcers are based in Llanelli Station, four in Morfa Station, and two in Llwynhendy. 5.2.4 There are currently no immediate plans for the other three BCUs within the Force to have PCSOs, however, provisions made within the newly introduced Home OYce Five-Year Strategic Plan to combat crime will result in funding being made available to Police Forces nationally for more PCSOs, in addition to introducing “Neighbourhood Policing Teams” which will be set up with the specific purpose of providing reassurance and tackling ASB at a local level, and which will typically be made up of Police OYcers and PCSOs.
Special Constables 5.2.5 The current position regarding Special Constables within the Force cannot be reliably quantified in terms of personnel available for deployment in tackling ASB due to the discrepancy between numbers of oYcers “on the books” and numbers who regularly attend for duty. 5.2.6 In addition to which, the current staYng situation within the Force Recruitment Section has necessitated the recruitment of Special Constables being put on hold. It is anticipated that will remain the case until Sept/Oct 2004. 5.2.7 Current numbers of Special Constables per BCU stand as follows:14
BCU No of Special Constables Carmarthenshire 25 Ceredigion 10 Pembrokeshire 44 Powys 36
Local Beat Managers 5.2.8 Local Beat Managers (LBMs) are police constables who have been taken oV core shift duties and given the flexibility to work pro-actively in building up links with the local community. As such they play an important part in reassuring members of the public that local ASB issues are being addressed, and they are also in a good position to gather intelligence regarding local trouble “hotspots” and individuals responsible for ASB.
14 Information provided by BCU HR Managers, apart from Powys, where numbers have been taken from the Nominal Roll. Welsh Affairs Committee: Evidence Ev 181
5.2.9 At the time of writing it is not possible to identify exact numbers of LBMs within the Force as their use varies across the BCUs as follows:
BCU No of LBMs
Carmarthenshire 13 in total (Llanelli Section: one Sergeant and seven Constables, Carmarthen Section: one Sergeant and three Constables, Ammanford Section: one Constable). Ceredigion There are currently no OYcers within the BCU designated specifically to carry out this role, mainly because of low establishment numbers, but all Beat OYcers are allocated a particular area in which the proactively engage with the local community. Pembrokeshire 22 in total (H’west Section: one Constable, M. Haven Section: four Constables, Fishguard Section: 12 Constables, Pembroke Section: five Constables). Powys There is currently no LBM structure within the BCU, however BCU Patrol Strategy promotes oYcer patrols as a means of providing engagement with local communities.
External Resources: ASB Co-ordinators 5.2.10 These are new posts which are funded by the BSC Fund for the years 2004–05 and 2005–06. 5.2.11 The ASB Co-ordinators are a CSP resource. Each CSP will have a Co-ordinator, with postholders based within the respective BCU. The role of the Co-ordinator, as specified in HO guidance, is primarily: — To develop and co-ordinate the CSP ASB strategy, and to ensure the strategy is eVectively delivered. — To ensure processes and actions to tackle ASB are mainstreamed within partnership organisations — To identify and secure funding in support of measures aimed at tackling ASB. — To act as a point of contact for the National Assembly for Wales (NAW) and the ASB Unit within the HO. — To ensure that that ASB is properly reflected in the CSP audit. — To ensure that databases are implemented to provide meaningful performance management. — To co-ordinate and promote public, private and voluntary sector involvement in tackling ASB. 5.2.12 Role profiles for the ASB Co-ordinators within the Dyfed-Powys CSPs vary slightly from each other, and from the generic profile detailed above in terms of their principal accountabilities. (refer to Annex F for profiles for each of the ASB Co-ordinators). 5.2.13 The position regarding the four ASB Co-ordinators within Dyfed-Powys currently stands as follows: BCU ASB Coordinators
Carmarthenshire The ASB Co-ordinator was appointed in July 2004, and is currently based within the Community Safety Section within the LA. The postholder is due to be relocated at Cross Hands together with the other members of the LA Community Safety Team. Ceredigion The ASB Co-ordinator was appointed in July 2004, and is currently based within the Housing Department within the LA. Ceredigion CSP are also in the process of appointing an ASB Project OYcer15 who will be responsible for the enforcement aspect of ASB measures which are put in place within the CSP, and who will be based with the ASB Co-ordinator. Pembrokeshire AN ASB Co-ordinator has not yet been appointed. However, it is envisaged that the post will be filled by October 2004. The postholder will be based with the Community Safety Sergeant in Haverfordwest Police Station. Powys An ASB Co-ordinator has not yet been appointed. However, it is envisaged that the post will be filled by September 2004. The postholder will be based within the Community Safety Department within the LA.
15 Refer to Annex F for the role profile for this post. Ev 182 Welsh Affairs Committee: Evidence
5.3 Specialist Equipment 5.3.1 Equipment used within Dyfed-Powys Force to tackle ASB typically includes CCTV cameras, SWIFT Cameras (ie. mobile CCTV) and digital video cameras, which are used both to identify ASB hotspots and record ASB for evidence purposes. 5.3.2 The Force Control Strategy 2004–05 specifies under the heading of “Enforcement” in relation to tackling ASB that CCTV camera systems will be used within ASB hotspot areas within BCUs to gather evidence for ASBOs and to inform action to deal with the problem. 5.3.3 Refer to Appendices A–D (7) for details of specialist equipment within each BCU.
6. Officer Training and Guidance
6.1 Training 6.1.1 There is currently no training provided to OYcers within the Force which relates directly to tackling ASB, apart from training in the function and application of ASBOs in Stage 6 (Part 1) of the probationer Training Programme. Within this programme, training is also provided in areas which relate indirectly to ASB, including: — Stage 3: Race/hate crime and victim support. — Stage 5: Problem-Orientated Policing. — Stage 6 (Part 1): Use of CCTV systems, dealing with assault and Protection from harassment. — Stage 6 (Part 2): Criminal damage. — Stage 6 (Part 3): Neighbour Disputes. 6.1.2 Force policy relating to PNDs states that responsibility for training oYcers in their use lies with Supervisors and Divisional Training OYcers, and that BCU Commanders should ensure that these strategic aims, objectives and use of PNDs are promoted at sectional meetings/ briefings, and that all staV are aware of the contents of the Force PND Policy. 6.1.3 There is currently no guidance available to oYcers within the Force regarding the use of ABCs and ASBOs.
6.2 Guidance 6.2.1 Guidance relating to measures to tackle ASB is available to OYcers, albeit on a piecemeal basis, upon the Force Environmental Scanning and Online Learning webpage on the Force Intranet. 6.2.2 Information is present on this page relating to PNDs. Links are also available to individual BCU Training homepages. There is currently nothing on these pages in relation to ASB, apart from the Powys Training site, where there is information and a PowerPoint Presentation on the use of PNDs. 6.2.3 Links are, however, available from the Environmental Scanning and Online learning page to specific ASB-related sites such as the “Together” Action Line, should oYcers require information.
7. Force Plans,Policies and Protocols Relating to ASB Due to the fact that ASB covers a wide range of behaviours, and that applicable definitions overlap with other incident and crime types, the list of plans, protocols and policies which are relevant to tackling the problem is fairly extensive. The list covers areas of policing involved with tackling ASB both in a general context and specifically—these have been highlighted in bold italics. Plans, policies and protocols listed cover all BCUs within the Force, but do not include those which are particular to individual BCUs—for details of these, refer to Appendices A–D (4).
7.1 Force Plans — Dyfed-Powys Police School Liaison Spiral Scheme of Work. — Dyfed-Powys Police Force Community Safety Strategy. — Dyfed-Powys CSPs/ YOTs Youth Justice Plans. — CSPs Substance Misuse Action Plans 2004–05. Welsh Affairs Committee: Evidence Ev 183
7.2 Force Policies16 — Dyfed-Powys Police Youth OVending Policy. — Under-age drinking Memorandum of Understanding between Dyfed-Powys Police Force and LA Trading Standards Services. — Operating procedures for Vehicle Mounted Video Equipment. — Dyfed-Powys Police policy: The Prevention of Repeat Victimisation. — Dyfed-Powys Police Patrol Strategy (Adendum)—Penalty Notices for Disorder.17 — Dyfed-Powys Police Force Policy—Penalty Notices for Disorder.
7.3 Force Protocols — Dyfed-Powys Protocol for Data Sharing (Section 115—Crime and Disorder Act 1998. — Dyfed-Powys Police Force CCTV Protocol. — Dyfed-Powys Police Acceptable Behaviour Contract Protocol.18 — Anti-Social Behaviour Order Protocol (this is currently in draft form and awaits input and agreement from the Crown Prosecution Service and the ASB Co-ordinators within Dyfed-Powys CSPs—refer to Annex H p 79 for details). — Dyfed-Powys Police Force ASB Guidance Policy. A working group has been set up consisting of two Section Inspectors headed by the Chief Inspector, Community Safety Department HQ, which is currently drawing up a Force Guidance Policy which will cover procedure from dealing with initial reports of ASB, through consideration of sanctions to adopt, and culminating in application for ASBOs in Civil and Magistrates courts. The guidance will incorporate the ASBO protocol listed above, and is expected to be completed by the end of 2004.
8. Performance Measurement
8.1 General
British Crime Survey 8.1.1 At a general level, evaluation of Force action to tackle ASB is carried out within the annual British Crime Survey, in which around 40,000 members of the public are interviewed nationally regarding their experience of crime and disorder within their area over a twelve-month period (around 800 members of the public are interviewed within Dyfed-Powys). Results are published for each Force area, and respondents’ levels of worry about ASB are classified on two scales: Levels of Disorder (formerly used as Best Value Performance Indicator—BVPI—122) and Levels of Physical Disorder, which relates to issues such as vandalism and rubbish in local neighbourhoods.
Policing Performance Assessment Framework (PPAF) 8.1.2 Within the framework of the PPAF, 13 headline indicators (Statutory Performance Indicators— SPIs) have been introduced (April 2004) to replace the BVPIs and to measure Forces’ performance in relation to ASB albeit indirectly under the headings of SPI 2—Confidence Measures and SPI 10—Quality of Life Measures, which cover fear of crime and feelings of public safety. Results from Dyfed-Powys Police Force for these indicators will be compared with corresponding measures for other Forces, including those classified under the heading of “Most Similar Forces”.19
HMIC Baseline Assessments 8.1.3 These are carried out annually in conjunction with the PPAF, and will, as from Autumn 2004, be using the same domain structure to evaluate the Force’s performance with regard to all policing activities, including tackling ASB. Force action to tackle ASB may also be subject to ad-hoc HMIC Inspections.
16 Refer to Annex H for copies of policies and protocols relating specifically to measures to combat ASB. 17 Current policy deals with the first phase of PNDs which can be issued only within police stations; policy covering phase 2— PNDs issued on the street—is due to be published Sept/Oct 2004. 18 Currently being drafted. 19 Family Group 12: Devon and Cornwall, Lincolnshire, Norfolk, North Wales, North Yorkshire and SuVolk. Ev 184 Welsh Affairs Committee: Evidence
Home OYce: ASBOs and ABCs 8.1.4 The Home OYce is collating figures for ASBOs and ABCs issued at BCU level via quarterly updates from the LA Community Safety Department. These figures will in future be provided by the newly appointed ASB Co-ordinators.
8.2 Force
National Intelligence model (NIM) 8.2.1 Although there are currently no performance indicators within the Force which measure performance specifically in relation to tackling ASB, implementation and use of the NIM ensures that Force strategies to deal with ASB are continually evaluated at Section, BCU and Force levels within a framework whereby oYcers designated to implement plans to tackle local problems report outcomes at Section and BCU TT&CG meetings which are held on a monthly basis. 8.2.2 ASB strategies are also evaluated at BCU Performance Meetings which are held at Section level, and which immediately follow the TT&CG meetings. These are attended by the Section Inspectors and provide a forum in which good practice may be identified. 8.2.3 Results and progress in relation to ASB strategies are fed into the Force and BCU Tactical Assessments, which are reviewed on a monthly basis. Notwithstanding this regular appraisal of action to tackle ASB, there is limited assessment of individual operations and measures with a view to identifying areas for future improvement. 8.2.4 Audits are carried out by Crime Support OYcers (CSOs) within each BCU. Reports of incidents linked to ASB are recorded and compared with figures for the previous year. 8.2.5 Within some Sections throughout the BCUs (eg Tenby, Whitland and Aberystwyth), Section Beat Files are maintained with the aim of acting as a daily reference point for Beat OYcers, and in which meetings, contacts in the community and successful initiatives introduced within the area may be recorded. These are currently run as isolated initiatives within the Force.
Management Information Unit 8.2.6 The Force MIU have commenced the collation and recording of numbers of ASBOs issued within the Force for each BCU, a function which used to be performed by the Community Safety Department, Headquarters. These are included within their Quarterly Information Bulletins. Data regarding number of ASBOs issued is taken from the Police National Computer (PNC) and forwarded to MIU by the Phoenix Section of the Force Criminal Justice Unit. (Phoenix Section will pick up details of ASBOs issued from the Court Register, and will enter these upon the “Wanted/Missing” Page of the PNC). 8.2.7 Breaches and variations of ASBOs are likewise recorded using data taken from the PNC via the Criminal Justice Unit. (Breach of an ASBO is a recordable oVence, and details will therefore be recorded by Phoenix Section upon the “Arrest/Summons” page of the PNC). The MIU quarterly information bulletins also record numbers of PNDs issued for each BCU within the Force. Data is supplied by the Central Ticket OYce, based within the Criminal Justice Unit. 8.2.8 MIU are due to commence recording numbers of ABCs which exist within the Force area—this data is expected to come via the ASB Co-ordinators within each CSP. It is anticipated that the information detailed above will be collated in collaboration with the ASB Co-ordinators in the near future. 8.2.9 It should be noted that MIU data relating to ASBOs and ABCs is not retrospective; figures relate to orders and contracts issued after April 2004, when the Unit commenced recording this data, while figures for PNDs have been collated since their introduction within the Force (01/07/2004). Information is also collated by MIU regarding numbers of incidents recorded upon STORM under disposal codes which have been specified by the HO as relating to ASB. Information is taken from STORM at station and BCU level, and figures are used to provide an aggregate figure for Public Disorder within the Force. 8.2.10 Levels of Public Disorder was formerly recorded as a Best Value Performance Indicator, but has now become a Local Target which is reported upon internally. MIU additionally report Force Public Disorder figures to the Welsh National Assembly on a regular basis. Welsh Affairs Committee: Evidence Ev 185
— Ps and Qs Performance Measurement Structure 8.2.11 The Ps and Qs (Performance and Quality) structure is a Dyfed-Powys Police Force initiative designed to drive up performance at BCU level, and to fit in with the PPAF, in that the Performance Indicator Domains within the latter are contained within the Ps and Qs. Indicators within the Ps and Qs Structure which relate to ASB are: — Number of arrests for ASB/Violent Crime; — Number of PNDs issued; — Numbers of ASBOs and ABCs issued. 8.2.12 Another indicator—number of reactive and proactive visits to licenced premises—also falls partly within the domain of ASB. All Force BCUs have Performance Management Units in place whose role is to oversee performance improvements in line with the Ps and Qs system. Carmarthenshire BCU Performance Management Team are in the course of developing a Ps and Qs spreadsheet which will be accessible on the Force Intranet, and upon which BCU OYcers will record activities which fall within specific indicator categories on a monthly basis. Thus, in the case of the ASBırelated indicators: — Number of arrests per month for Violent Crime/ASB (entries to be completed by Sergeants and Constables) — Number of PNDs issued per month (entries to be completed by Sergeants and Constables) — Number of proactive and reactive visits to licenced premises per month (entries to be completed by Sergeants and Constables—including BCU Licencing OYcers) — Number of ASBOs and ABCs issued per month (information to be provided by MIU). 8.2.13 Figures available from the spreadsheet will be monitored and discussed by the BCU Performance Management Unit at Performance Management Meetings held on a monthly basis.
ACPO/PSU Alcohol Misuse Enforcement Campaign—Powys BCU 8.2.14 Powys BCU is currently participating in a nationwide Summer Alcohol Misuse Enforcement Campaign which is being run by the Police Standards Unit (PSU). Police OYcers will work in conjunction with Trading Standards OYcers to identify premises where alcohol is sold to underage drinkers, will issue PNDs where necessary, and will apply 24-hour closure orders to premises where rowdy and anti-social behaviour is a problem. 8.2.15 In addition to curbing alcohol-related ASB, data relating to numbers of enforcement actions taken, including arrests made and PNDs issued for ASB, and Dispersal Orders in place will be collated and forwarded to the PSU, where they will feed into the formulation of Best Practice in dealing with this problem.
8.3 Community Safety Partnerships 8.3.1 One of the responsibilities of the ASB Co-ordinators, contained in the role profiles for postholders within each CSP, is the provision of data and monthly reports on ASB and problem-solving initiatives.
8.4 Funding Allocation Requirements 8.4.1 HO funding available to CSPs is issued with the requirement that partnerships put in place systems for monitoring performance with regard to measures supported by the fund, including those designed to tackle ASB. For example, a requirement of the Basic Command Unit Fund is that Forces are required to evaluate the success of measures supported by funding and to share details of successful interventions with the HO and other agencies with a responsibility for Crime and Drug reduction, in order to contribute to the development of a corpus of good practice at local and national level. 8.4.2 Similarly, the terms of the BSC Fund available to the CSPs within the Force state that partnerships will be required to put in place measures to monitor and evaluate the interventions designed to counter ASB which are carried out in their respective areas. 8.4.3 Information from Community Safety OYcers within CSPs in Dyfed Powys indicates that evaluation will be carried out as follows: 8.4.4 Ceredigion—through regular analysis of Police Crime Figures and STORM reports, particularly those relating to Domestic Violence, Violent Crime and Drunk and Disorderly incidents. Ev 186 Welsh Affairs Committee: Evidence
8.4.5 Pembrokeshire CSP currently have no plans in place to monitor the success of measures to deal with ASB until the ASB Co-ordinator is in place. 8.4.6 Carmarthenshire CSP will use the ASB Co-ordinator to monitor the number and success rates of ABCts, but as yet there is no real evaluation of measures to tackle ASB.
Safer Communities Fund 8.4.7 Powys CSP policy stipulates that agencies who are in receipt of funding sign service level agreements requiring them to provide reports at the CSP Quarterly Meetings regarding the success or otherwise of measures (including tackling ASB) which they put in place. In addition, minutes of the sub-groups, including those dealing with ASB, are included for discussion at CSP meetings, while the CSP hopes to undertake a self-assessment in the near future during which outcomes of measures and strategies to combat crime and disorder will be evaluated.
9. Community Engagement
9.1 Consultation 9.1.1 Apart from the main means of public consultation employed by Dyfed-Powys Police Force which are detailed in Section 4, consultation takes place between members of the public and Police oYcers (in conjunction with CSP partners) within the BCUs prior to implementation of measures to tackle ASB. For example, as described in Section 4, designation of areas within Aberystwyth Town as alcohol-free zones followed lengthy consultation between Police OYcers, including the BCU Licencing OYcer, and local residents and businesses. 9.1.2 In addition to assessing the scale of problems connected with ASB, public consultation is also used to provide a baseline measure of local concerns regarding ASB that can be measured against public perceptions following implementation of measures to deal with the problem(s). For example, various surveys have been carried out within local communities within Pembrokeshire BCU such as the Monkton Estate, Llanion, Neyland West to gauge the views of residents as to what types of ASB they commonly experienced. 9.1.3 Consultation also takes place with numerous Residents’ Association Groups within the BCU. 9.1.4 Letters of complaint and appreciation from members of the public are retained by the BCU Commander, and fed into the NIM TT&CG meetings.
9.2 Call Handling 9.2.1 A recent Best Value review of Tackling ASB carried out by Lancashire Constabulary identified notional financial savings to their Force, through their Communication Rooms, by informing members of the public of alternative points of contact for some types of ASB, for example, those which would fall within the remit of the LA, such as litter and fly-tipping. 9.2.2 Within Dyfed-Powys Police Force, there is currently no specific policy relating to call handling which deals with calls reporting ASB. 9.2.3 Current procedures within the Force Communications Centre which is currently being piloted within Carmarthenshire BCU, and which is due to be rolled out across the Force,20 are to take a call card and to create a delayed or scheduled response for calls relating to ASB, even in the case of calls reporting incidents which do not fall within the remit of the Police. The call cards are then transferred to the relevant BCU for consideration of action. 9.2.4 The Communications Centre Project is currently developing a business process-mapping strategy which may address this issue.
9.3 Media Strategy 9.3.1 There is no dedicated unit or oYcer within the Force responsible for publicising Force measures to deal with ASB. This may fall within the remit of the ASB co-ordinators, although there is nothing specific within their role profiles regarding this function. 9.3.2 Press releases regarding Force strategy and actions to tackle ASB are prepared by OYcers (usually Inspectors) concerned with operations and released either through the Force Press OYce based within the Community Safety Department, HQ, or by individual Inspectors dealing with particular areas of ASB within their Sections.
20 Information provided by the Chief Inspector, Communications Centre Project. Welsh Affairs Committee: Evidence Ev 187
9.3.3 For example, the local media publicity campaign in June 2004 surrounding the use of PNDs was instigated by the Chief Constable, and released through the Force Press OYce to local TV stations, on-line media, radio stations and daily/weekly newspapers. 9.3.4 Within Ceredigion BCU, the designation of Aberystwyth Town Centre as an alcohol-free zone was preceded by public consultation in the form of articles published in the local newspaper inviting anyone with views upon the subject to contact local Police OYcers, while within Powys BCU, the use of PNDs to reduce ASB during the Brecon Jazz Festival was supported by a robust media strategy publicising this strategy.
10. Auditing ASB: Problem Profiling
10.1 Force
10.1.1 Problem profiling of ASB is carried out on a regular basis by BCU Crime Analysts in order to feed the BCU Tactical Assessments. Analysts use various sources of data and information to compile profiles: — The Force Local Crime System for details of oVences relating to ASB. — All STORM messages (on a daily/ regular basis). — Selected STORM disposal codes. 10.1.2 Figures provided by the MIU relating to incidents recorded upon STORM under disposal codes classified by the Home OYce as being ASB-related. 10.1.3 Patterns of ASB identified by the BCU Crime Analysts become the subject of problem profiling, following which the TT&CGs will formulate an action plan and allocate resources to deal accordingly. 10.1.4 In addition, the Local Intelligence OYcer within Llanelli Section in Carmarthenshire BCU maintains a spreadsheet, accessible through Microsoft Outlook, which details incidents of ASB within the Section area, together with date, time and place, and OYcer action to deal with the respective incident. Information is taken from STORM and was updated on a monthly basis, using the following Disposal Codes entered on STORM:
Code Number Description
310 Disorder Public Place 311 Disorder Lic Premises 317 Drunkeness 320 Disorder/Street/Domestic 32 Other Disorder Dwelling 334 Public Nuisance 373 Boisterous Child 390 Other Nuisance
10.1.5 These codes have now been changed with the introduction of the pilot National Standard for Incident Reporting (NSIR), and no longer constitute a comprehensive list of ASB-related incidents—refer to Section 9: Profile of ASB within the Force for new disposal codes which relate to ASB (p 41).
10.1.6 Ad-hoc profiling is carried out by Crime Support OYcers (CSOs) and OYcers within BCUs to gauge levels of ASB prior to formulating individual operations and actions to deal with the problem. For example, within Ceredigion BCU, the CSO and Licencing OYcer worked together to research details of ASB incidents and crimes committed in and around Aberystwyth Town Centre licenced premises in order to gather evidence supporting court proceedings to revoke Public Entertainment Licences etc.
10.1.7 On a monthly basis, the Section Inspectors within BCUs are tasked with reporting actions taken to tackle ASB (together with results and evaluations) via Performance Evaluation pro-formas. These meetings are run on the same day as, and take place just prior to, the TT&CG meetings. Evaluation of actions is based against relevant priorities contained within the BCU Control Strategy. These reports go back to the BCU TT&CG, as per the NIM framework.
10.1.8 The MIU within the Force is due to commence profiling levels of ASB within the Force area using data taken from STORM relating to numbers of incidents recorded under the following categories: A–Nuisance, A–Noise, A–Drunk and A–Phone. Figures will be represented at BCU level, and will be published in the Quarterly Information Bulletins. Ev 188 Welsh Affairs Committee: Evidence
10.2 CSPs 10.2.1 One of the responsibilities of the ASB Co-ordinators, contained in the role profiles for postholders within each CSP, is to maintain an appropriate database recording levels and locations of ASB, and details of local Community Safety, drawing on existing information from partner agencies.
11. Demands Upon the Service:Profile of Anti-social Behaviour within the Force Demands upon Dyfed-Powys Police Force created in dealing with ASB may be viewed in terms both of actual levels of ASB within the Force area, and of workloads imposed upon Police OYcers generated by dealing with ASB.
11.1 Levels of ASB
National Perspective—The One-Day Count of ASB 11.1.1 On 10 September 2004 a one-day national count of ASB took place. This had been organised and co-ordinated by the HO with the object of ascertaining actual levels and nature of ASB in England and Wales. 11.1.2 Information was fed back from every CSP (including Police Forces) detailing types of incident reported and associated costs to the agencies dealing. The results indicated, albeit in snapshot form, that the agencies dealing with the highest numbers of reports were LAs, except where incidents of rowdy/nuisance behaviour, hoax calls and harassment/intimidation were reported, when greatest call volume was dealt with by Police Forces. 11.1.3 The count also showed that the greatest volume of calls were generated by reports of litter and rubbish (16%), criminal damage, vehicle nuisance and nuisance behaviour (12% of reports each).
Force Perspective—Data taken from STORM 21 11.1.4 The NSIR was introduced with the aim of enabling Performance Management to focus not just on crime and detection but also upon the non-crime work that occupies a significant amount of police time. One of the specific objectives of the project is to allow police incident data to inform and shape Government work in relation to ASB. 11.1.5 In order to do this, selected incident—recording categories including the most numerically significant, “Miscellaneous—Other,” have been replaced on the STORM system by incident definitions which relate more specifically to the incidents which they cover. Included amongst these are definitions which apply to ASB, and which are intended to cover the range of behaviour types listed in Annex E: — A–Nuisance. — A–Noise. — A–Drunk. — A–Phone. 11.1.6 In order to ensure that the standard is implemented by April 2005, eleven Police Forces, including Dyfed-Powys, have been selected to take part in a six-month pilot project. The incident definitions included in the NSIR were introduced onto STORM on 4 May 2004. 11.1.7 It should be noted that because of concerns regarding crimes which have been incorrectly recorded on STORM under the “A” category, they are due to be changed to “C” crime categories in order to compel oYcers to define them as crimes or non-crimes and thus render the information relating to numbers within incident categories more accurate.
Analysis of ASB-Related Opening Codes 11.1.8 Data taken from STORM for the dates 04/05/2004 to14/07/2004 inclusive, using the incident codes listed22 provides a 10-week snapshot profile of current levels, type and concentrations of ASB within the Force area.
21 Ie Force Command and Control System. 22 As Final Call types. Welsh Affairs Committee: Evidence Ev 189
11.1.9 It should be noted that this data will not provide a complete picture, as some types of ASB will typically be reported to agencies other than the Police—fly-tipping and litter, for example.
11.1.10 Total figures for the diVerent behaviour types within the Force BCUs (not including “X-Force”) for the period identified above are as follows:
A–Drunk: 422
A–Noise: 1128
A–Nuisance: 5022
A–Phone: 365
11.1.11 By far the most prevalent type of ASB is of the “Nuisance/Rowdy” type.23 This includes behaviour such as:
— Shouting and swearing;
— Throwing missiles;
— Climbing on buildings;
— Impeding access to communal areas;
— Games in restricted/inappropriate areas;
— Misuse of air guns;
— Letting down tyres;
— Fighting;
— Drunken behaviour;
— Hooliganism/loutish behaviour;
— Urinating in public;
— Setting fires (not directed at specific persons or property);
— Inappropriate use of fireworks.
11.1.12 These figures can be broken down to show relative levels of diVerent types of ASB for each BCU—see Figure 1. BCU A—Nuisance Calls
Carmarthenshire Deals with by far the highest levels of “Nuisance” behaviour (2,146 incidents reported for this period), 51% of which occurred within Llanelli Section. Ceredigion Dealt with a total of 586 calls, 50% of which reported incidents occurring within Aberystwyth. Pembrokeshire Of the 1,432 “Nuisance” incidents reported, 29% of calls reported incidents in Milford Haven, while a further 23% reported incidents in Pembroke Dock. 18% of calls originated from Haverfordwest section, while 17% were reported for Tenby Section. Powys Dealt with a total 858 of calls of this type; call volume is spread fairly evenly through the sections with the exception of Newtown Section (32% of calls, with 23% of total BCU calls reported in Newtown itself).
11.1.13 Analysis of Command and Control data for the same period shows that within the entire range of incident headings, the A-Nuisance category contains the greatest number of calls—5,022, compared with the next most numerous incident headings (Road related-Other—3,566 calls, and Crime-Other—3,150 calls).
23 It should be noted that daily auditing of STORM entries has revealed that some crimes are incorrectly being entered under this category; however, these are not significant in number. Ev 190 Welsh Affairs Committee: Evidence
FIGURE 1: LEVELS OF ASB PER BCU
Types of ASB by BCU - 04/05/2004 to 14/07/2004 2500 2146
2000
1432 1500
858 1000 586 343 500 175 330 194 261 168 83 100 64 29 88 80 0 A-Drunk A-Noise A-Nuisance A-Phone
Carmarthenshire Ceredigion Pembrokeshire Powys 11.1.14 A comparison of figures for A–Nuisance calls recorded for this period with more recent figures (09/08/2004) shows that the greatest increase in this type of call has been within Powys BCU, which has seen an increase of 48%, compared with Ceredigion ! 44%, Carmarthenshire ! 42%, and Pembrokeshire ! 40%.
Analysis of ASB-Related Disposal Codes 11.1.15 A more detailed profile of ASB for the period (04/05/04—14/07/04) may be built up using selected STORM disposal codes which relate to these behaviour types.24 These are: 024 Prostitution Related 078 Substance Abuse 139 Indecent Exposure 182 Begging 221 Abandoned Vehicle 257 Vehicle—Inappropriate Use 260 Vehicle Nuisance 310 Disorder—Public Place 311 Disorder—Licenced Premises 317 Drunkennes 318 Street Drinking 319 Harassment 320 Disorder Street/ Domestic 322 Other Disorder—Dwelling 334 Noisy Alarm 340 Civil Dispute 370 Neighbour Dispute 371 Noisy Party 372 Noise—Pubs/Clubs 374 Football—Inappropriate Areas 377 Inappropriate Gatherings 381 Phone—Nuisance 382 Phone Hoax 390 Noise—Business/ Road Works
24 Disposal code selected in accordance with advice from Inspector, Force Operations Room. Welsh Affairs Committee: Evidence Ev 191
457 Noisy Vehicles
595 Litter
596 Fireworks Misuse.
11.1.16 ASB-related disposal codes may be grouped together under common types, and figures combined to provide a picture of the relative predominance of typical features associated with ASB as follows (note that only the main numerically significant codes have been included for this purpose, and that this profile is therefore approximate): Vehicle-related25 1,251 Disputes 1,455 Disorder in a public place 847 Minor assault/harassment 290 Drunkeness 966 Inappropriate gatherings 978 Noise Nuisance 593 Phone Nuisance 549
FIGURE 2: RELATIVE LEVELS OF ASb GROUPED BY INCIDENT TYPE—04/05/2004—14/07/ 2004: DYFED-POWYS FORCE
Vehicle-Related
Disorder (gen - public 14% 18% place) Drunkenness 8% Noise Nuisance 4% 12% Disputes
Assault/ Harassments
21% 14% Phone Nuisance 9% Inappropriate Gatherings
11.1.17 The disposition code “Disorder in a Public place” contains a high number of calls, but is not very specific in describing the type of incident it covers. A dip sample of 50 calls within this category showed the majority dealing with youth nuisance; children throwing objects, skateboarding on the street, or merely “gathering”.
11.1.18 Similarly, dip-sampling of the category “Inappropriate gathering” revealed virtually all the calls reporting youth nuisance ranging from verbal abuse and harassment to climbing on roofs and riding bikes and skateboards in the street.
11.1.19 A significant number of calls within this category referred to incidents involving disputes and harassment/abuse. The presence of alcohol as an aggravating factor in these incidents is not always stated, but may often be inferred. Taken together with the substantial proportion of calls reporting drunkenness, it is obvious that alcohol-related disorder plays a major part in ASB incidents which Police OYcers deal with.
11.1.20 The main themes underlying ASB within the Force which emerge from this general profiling can therefore be broadly defined in overlapping terms of vehicle-related, alcohol-related and youth-related nuisance, and point accordingly to the importance of Force and Partnership initiatives to engage young people and address issues connected with licencing regulations and alcohol consumption.
25 Actual number of Vehicle Nuisance (Disposal Code 260) calls is 1,505, but dip sampling of 100 calls indicates that approximately 43% of these (650 calls) relate to “boy racers” and abandoned cars. The latter figure has been used for this exercise. Ev 192 Welsh Affairs Committee: Evidence
11.2 Demand upon OYcers 11.2.1 Although call volume is not indicative of actual oYcer time spent dealing with reported incidents, Activity Analysis carried out throughout the Force as part of Activity Based Costing (introduced through the Policing Performance Assessment Framework) provides an indication of demand in terms of time spent dealing with ASB. 11.2.2 Activity sampling studies have been carried among Police OYcers based in all sections within Carmarthenshire BCU during June and July 2004.26 The data provided represents a two-week snapshot of the relative percentages of working time which are expended upon diVerent activities relating to incidents which oYcers routinely deal with. 11.2.3 Among these incidents, those relating to ASB are likely to be grouped mainly under the headings of: — Complaint/Nuisance; — Drunk and Disorderly; — Public Disorder. 11.2.4 DiYculties arise in the case of the incident category “Other Non-Crime Incident”. Results from activity sampling show that more oYcer time has been expended in dealing with this type of incident than with any other listed upon the incident/non-incident “menu”—451 hours of a total 5,205 recorded during the two-week period sampling period, as compared with 435 hours spent on criminal damage and 425 hours spent dealing with burglary–other. 11.2.5 Unfortunately, the non-specific nature of this incident category renders it unhelpful both in providing a picture of oYcer activity for the purposes of Activity Analysis, and in determining how many incidents covered by this classification are ASB-related. 11.2.6 280 hours of oYcer time over the period were spent dealing with incidents involving complaints of nuisance behaviour, while a further 176 hours were spent dealing with public disorder, 88 hours were spent dealing with drunk and disorderly incidents and 18 hours were spent dealing with hoax phone calls. 11.2.7 In view of the fact that it is impossible to extract from the Activity Sampling precise data regarding proportions of incidents which involve ASB, any calculation of oYcer workload generated must be approximate. However, assuming that 50% of “other non-crime” incidents relate to ASB, a total 787 hours were spent by oYcers in dealing with this problem. 11.2.8 This can be calculated as a percentage of the total oYcer time recorded which was spent dealing with incidents, both Crime and Non-Crime (5,205 hours). 15% of incident-related activity took place in relation to dealing with ASB. 11.2.9 A further two incident categories potentially include incidents of ASB: Criminal Damage (435 hours recorded) and “Violence against Person–less Serious” (288 hours recorded). Assuming that 50% of incidents within each of these categories relate to ASB, a further 361 oYcer hours are added to the total time spent dealing with ASB, which can then be represented as 22% of total incident-related activity.
FIGURE 3: PERCENTAGE OF TOTAL RECORDED TIME SPENT DEALING WITH ASB- RELATED INCIDENTS (ACTIVITY BASED COSTING)
5% 3% 2% Nuisance behaviour 3% Public Disorder
4% Drunk and Disorderly
4% Violence against the Person - less Serious Criminal Damage
Other-Non-Crime
Other Incidents 79% Recorded
26 Calculations based upon the data provided are provisional, pending return of more results. Welsh Affairs Committee: Evidence Ev 193
12. Conclusions 12.1 This document provides an overview of the current position of Dyfed-Powys Police in relation to tackling anti-social behaviour. 12.2 As the service now moves forward in developing a citizen favoured style of policing with closer community partnership and engagement under police reform initiatives from Central Government, we will continue to build upon this platform to enhance our service delivery. Dyfed–Powys Police September 2004
Annex A
CARMARTHENSHIRE
1. Partnerships: — Carmarthenshire County Council; — Carmarthenshire Youth OVending Team; — Dyfed-Powys Police; — Mid and West Wales Fire Service; — Dyfed-Powys Drugs and Alcohol team (DAAT); — Dyfed Powys Probation Service (including the Chair of Substance Misuse Action Team and Community Safety and Punishment OYcer); — Carmarthenshire Local Health Board.
2. Customers: — Members of the public; — Victims of ASB; — Perpetrators of ASB.
3. Funding:
Force
Basic Command Unit (BCU) Fund This fund is intended to support Police Forces in playing a full and active role in the delivery of CSP strategies, including those relating to Tackling Anti-Social Behaviour. The allocation for Carmarthenshire BCU for 2004–05 is £101,564.
CSP Funding
Building Safer Communities Fund (BSC) Available to CSPs, with the Local Authority acting as the “Accountable Body” for the purposes of allocation of funding to respective projects and interventions. The total sum available to Carmarthenshire CSP for the fiscal year 2004–05 is £180,253, which includes £25,000 to support the newly created post of Anti-Social Behaviour Co-ordinator. Welsh Assembly Government—Safer Communities Fund. The Safer Communities Fund provides a source of funding for Community Safety Partnerships to deliver projects that focus on tackling youth crime. The fund also supports Operation Tarian—the intelligence-led policing project which tackles organised crime gangs and the illegal supply of heroin and crack cocaine. The total sum available to Carmarthenshire CSP for the fiscal year 2003–04 is £47,219. Ev 194 Welsh Affairs Committee: Evidence
4. Plans,Policies and Protocols:
5. CSP Meeting Structure The main CSP Strategic Meetings are held bi-monthly, and are attended by the BCU Commander, Superintendent and Community Safety Sergeant. Operational groups dealing with burglary and vehicle crime are each headed by a Chief Inspector. Within the CSP there is an Anti-Social Behaviour and Fear of Crime Group which is headed by an Inspector, and which meets bi-monthly. Strategies and outcomes from these meetings feed into the main CSP meetings. Local ASB Groups are currently in the process of being set up in all Sections within the BCU with the aim of supporting pro-active measures to tackle ASB at local level, including use of ABCs, ASBOs and Communiy Conferencing. Llanelli Section has an ASB Group already in existence, which is chaired by the Section Inspector, and at which specific local problems and issues are addressed. The group in Llanelli meets every two-to-three weeks, and it is expected that other local groups will meet at least monthly in the following locations: Felinfoel Police Section (Llanelli Rural); Llanelli Police Station (Llanelli Town); Ammanford Police Station(Ammanford); Carmarthen Police Station (Carmarthen Rural); Carmarthen Police Station (Carmarthen Town); Crosshands Police Station (Crosshands). Membership of these groups will include representatives from the following agencies: Housing Department (Senior Housing OYcer); Police (Local Inspector or representative); Relevant Registered Social Landlords OYcer; Other CCC representatives eg Social Services, Youth OVending Team, Environmental Health OYcer, Victim Support. Once all ASB Co-ordinators are in post, it has been proposed by the Chief Inspector, Community Safety HQ, to set up ASB Co-Ordinator Conferences, to take place on a regular basis with the aims of co-ordinating the approach to tackling Anti-Social Behaviour within Dyfed-Powys, and of sharing best practice.
6. BCU Leads in Tackling ASB Inspectors within the BCU act as a point of contact regarding applications for ASBOs, both stand-alone, and attached to conviction for other oVences (“CRASBOs”). Inspectors also attend and take the lead in Local ASB Groups which are being set up within the BCU. The Section Inspector Llanelli currently holds the portfolio for identifying and disseminating best practice within Carmarthenshire BCU, but in an unoYcial capacity. Responsibility for this is expected to be transferred to the Anti-Social Behaviour Co-ordinator, who will be based with the LA Community Safety Team.
7. Physical Resources A CCTV van, containing SWIFT cameras has been supplied through the BCU Fund, with the proviso that one of its uses will be to target ASB. There are three School Liaison OYcers, two based in Carmarthen and Llanelli. There are two Licencing OYcers, both based in Carmarthen.
Annex B
CEREDIGION
1. Partnerships: — Ceredigion County Council; — Ceredigion Local Health Group; — Dyfed-Powys Drugs and Alcohol team (DAAT); — Dyfed-Powys Police; Welsh Affairs Committee: Evidence Ev 195
— National Probation Service (Dyfed-Powys); — The Mid and West Wales Fire Service; — The Mid Wales Youth OVending Team; — Ceredigion Substance Misuse Action Team (SMAT); — Local magistrates.
2. Customers: — Members of the public; — Victims of ASB; — Perpetrators of ASB.
3. Funding:
Force
Basic Command Unit (BCU) Fund This fund is intended to support Police Forces in playing a full and active role in the delivery of CSP strategies, including those relating to Tackling Anti-Social Behaviour. The allocation for Ceredigion BCU for 2004–05 is £47,837 Community Safety Challenge Fund—although this funding source has now been withdrawn, £1,000 has been made available between January and March 2004 to combat ASB in Llanon by supporting initiatives which encourage local children to engage in diVerent activities (Youth Summer Activity Project).
CSP Funding
Building Safer Communities Fund (BSC) Available to CSPs, with the Local Authority acting as the “Accountable Body” for the purposes of allocation of funding to respective projects and interventions. The total sum available to Ceredigion CSP for the fiscal year 2004–05 is £101,638, which includes £25,000 to support the newly created post of Anti-Social Behaviour Co-ordinator.
Safer Communities Fund (Welsh Assembly Government) The Safer Communities Fund provides a source of funding for Community Safety Partnerships to deliver projects that focus on tackling youth crime. The fund also supports Operation Tarian—the intelligence-led policing project which tackles organised crime gangs and the illegal supply of heroin and crack cocaine. The total sum available to Ceredigion CSP for the fiscal year 2003–04 is £27,777.
4. Plans,Policies and Protocols: Anti-Social Behaviour/Violent Crime Action Plan (Aberystwyth Town) Vagrancy Action Plan (Aberystwyth Town) Your Questions Answered/Procedures when Applying for ASBOs in Ceredigion (Force Intranet; Ceredigion Homepage). Procedure re Seizure of Vehicles Driven in an Anti-Social Manner (Sec 9 Police Reform Act 2002). This guidance has been issued by the Section Inspector, Aberystwyth in the absence of any Force Policy relating to application of these powers.
5. CSP Meeting Structure The main CSP Strategic Meetings are held quarterly, and are attended by the BCU Commander. Operational groups meet on a bi-monthly basis, and are attended by Police Inspectors involved in the respective operations. The Community Safety OYcer attends all CSP meetings. Ev 196 Welsh Affairs Committee: Evidence
It is planned to set up an ASB group as a sub-group, which would meet bi-monthly for strategic purposes, and additionally at a tactical level if required, and would be attended by The Chief Inspector (Support).27 Once all ASB Co-ordinators are in post, it has been proposed by the Chief Inspector, Community Safety HQ, to set up ASB Co-ordinator Conferences, to take place on a regular basis with the aims of co-ordinating the approach to tackling Anti-Social Behaviour within Dyfed-powys, and of sharing best practice.
6. BCU Leads in Tackling ASB Within Ceredigion BCU, the Community Safety OYcer works closely with partners within the CSP in initiating action to deal with ASB, in particular working with Young Peoples’ Partnerships within the BCU. The CSO also attends all CSP meetings. Inspectors within the BCU act as a point of contact regarding applications for ASBOs, both stand-alone, and attached to conviction for other oVences (“CRASBOs”). A close working relationship has formed between key local authority oYcers and section Inspectors so that matters can be dealt with on a day to day basis. The divisional licensing oYcer attends the TT&CG meeting and reports on premises where anti-social behaviour is a problem. The School Liaison OYcers involve themselves in local Youth initiatives, for example quad-biking, white- water rafting etc. In addition, they are involved in organising diversionary activities to combat ASB problems in Llanon, which have been funded by the Community Safety Challenge Fund (before this was withdrawn).
7. Physical Resources CCTV camera systems—There are systems covering Aberystwyth and Lampeter, mobile CCTV cameras are also available and can be deployed in other parts of the BCU. These cameras can either be monitored from Aberystwyth or from a mobile viewing vehicle. ANPR—one vehicle is equiped with this system, but at the moment it is in need of repair. However, the force’s ANPR van is utilised on regular campaigns within the BCU. Digital Cameras—Each station has recently been issued with digital cameras which can be used by all oYcers to record crime scenes etc. Exhibition Vehicle—The force’s exhibition vehicle is used to publicise iniatives around the BCU. This vehicle is resourced by community safety and beat oYcers. Community Safety Dept—This made up of one oYcer who covers the BCU. He deals with a wide range of community safety initiaives including crime reduction, obtaining funding from various bodies. School Liaison OYcers—There are two oYcers within the division, based in Aberystwyth and Ceredigion Licensing OYcer—One oYcer covers the whole BCU, works with each section Inspector to deal with licensing issues. PPU Dept—Based in Aberaeron, have responsibility of dealing with a wide range of public protection issues.
Annex C
PEMBROKESHIRE
1. Partnerships: — Pembrokeshire Community Safety Group; — Pembrokeshire Anti Social Behaviour Data Sharing Group; — Pembrokeshire County Council; — Pembrokeshire Youth OVending Team; — National Probation Service; — Crime Reduction Unit, Welsh Assembly; — Mid and West Wales Fire Service; — Pembrokeshire National Park Authority; — Pembrokeshire Association of Voluntary Services;
27 This OYcer is temporarily seconded to South Wales Force; in his absence the Detective Inspector will attend these meetings. Welsh Affairs Committee: Evidence Ev 197
— Pembrokeshire Substance Misuse Action Team (SMAT); — Crown Prosecution Service (CPS); — Pembrokeshire Domestic Abuse Forum; — Pembrokeshire Pupil Referal Unit; — Pembrokeshire Young Peoples Partnership.
Partnerships (general): — Pembrokeshire Victim Support; — Neighbourhood Watch; — Pembrokeshire Women’s Aid; — Milford Haven Port Authority; — British Transport Police; — Signals Regiment—Brawdy. — Pembrokeshire County Council Licensing Team
2. Customers: — Victims of ASB; — Perpetrators of ASB; — Members of the public.
3. Funding There is no specific provision within BCU budget specifically for tackling Anti-Social Behaviour. Funding in term of overtime is provided on a needs basis—through the NIM process by a means of “bidding” at the Divisional Tasking Meeting.
Force
Basic Command Unit (BCU) Fund This fund is intended to support Police Forces in playing a full and active role in the delivery of CSP strategies, including those relating to Tackling Anti-Social Behaviour. The allocation for Pembrokeshire BCU for 2004–05 is £60,987. An element of this funding has been agreed with partners for use to fund proactive operations to tackle Anti Social Behaviour. (£12,000 overtime to deploy extra resources at peak periods—covering hot spots— as identified through NIM).
CSP Funding
Building Safer Communities Fund (BSC) Available to CSPs, with the Local Authority acting as the “Accountable Body” for the purposes of allocation of funding to respective projects and interventions. The total sum available to Pembrokeshire CSP for the fiscal year 2004–05 is £131,613, which includes £25,000 to support the newly created post of Anti-Social Behaviour Co-ordinator. Welsh Assembly Government—Safer Communities Fund The Safer Communities Fund provides a source of funding for Community Safety Partnerships to deliver projects that focus on tackling youth crime. The fund also supports Operation Tarian—the intelligence-led policing project which tackles organised crime gangs and the illegal supply of heroin and crack cocaine. The total sum available to Pembrokeshire CSP for the fiscal year 2003–04 is £34,588. Funding Sources and Projects: — PHOENIX PROJECT—£12,000 from WAG following bid by CSP to WAG for funding to tackle Anti-Social Behvaviour on Monkton estate (short term—short notice funding). — OPERATION ASSURE—Bid by CSP to WAG for funding to tackle Anti-Social Behaviour on Mount Estate, including £34,000 towards deploying an oYcer on overtime, £8,000 towards increased patrols, with the remainder used to provide situational crime preventive measures ie— Ev 198 Welsh Affairs Committee: Evidence
provision of youth shelter, improved street lighting, estate clean-ups, CCTV installed in resident center, resources for youth room at Mount Residents’ Centre-Acorn (musical equipment— furniture—IT). Improved physical security to private dwellings. — SMALL RETAILERS IN DEPRIVED AREAS FUND—over the last three years the CSP secured in excess of £165,000 for Pembrokeshire. The aim of the fund is to support small businesses in isolated, depressed areas and small communities by enabling increased security eg Money for locks etc. This funding provided situational crime prevention eg physical security features, illumination of children’s play areas and improvement in the safety of play areas, and led to a reduction in the fear of crime. Results include local residents more prepared to use the local shops. — CCTV—Town Centre Systems. Communities First funding Bid by the CSP to WAG—£400,000 plus, which resulted in upgraded installations within the town centre CCTV systems in Fishguard, Haverfordwest, Milford, Pembroke Dock and Tenby. All these digital CCTV systems can be viewed across the Force Intranet system. — CCTV—vehicles. £70,000 ! Bid by CSP to WAG resulted in funding for eight Divisional vehicles equipped with CCTV. By the end of the year this will rise to 11 vehicles—meaning every police station within the BCU will have a mobile CCTV capability. All the CCTV equipped vehicles can be used as a platform for ANPR (Automatic Number Plate Recognition). — CCTV—mobile rapid deployment Petards Swift system which can be used in semi-permanent applications, incorporating mobile oYce/receiving unit. Total £45,000 CSP bid to WAG. Utilised and deployed at all licensing events within the BCU by Police and Licensing Authority partnership team. — “Pubwatch”—a radio network which links participating licensed premises within Tenby town centre (currently 10), enabling information of ASB to be passed between licencees and local police. Funding for this project was sourced through the CSP, and it is proposed that the scheme be extended to Haverfordwest Town Centre in the near future. — ANPR Funding from WAG— £42,000 for two transportable mobile units for use in any of the above CCTV equipped vehicles, or linked to the Town Centre CCTV systems. The equipment is directly compatible with the Spectrum Back OYce Facility and identical units purchased by Carmarthenshire and Powys BCUs. Pembrokeshire County Council has installed a permanent ANPR system (with infra-red cameras) in Tenby at a cost of £42,000, which is used for the summer period to “police” the pedestrianisation of the town centre. A bespoke ANPR/CCTV system is presently being fitted into a patrol car at a combined cost of £17,000 (BCU grant/Community Safety Challenge Fund). — Motor Project—As part of a skills centre project at the Pupil Referral Unit in Neyland, the CSP were granted bids totalling £45,000 (Crime Directors Fund/Communities First Fund) to provide workshop/engineering/IT/life skills equipment, a kit-car and a tractor to provide diversionary/ vocational activities for young people at risk of oVending—the project has been match funded (£60,000!) by the Local Authority. — Domestic Abuse Coordinator (Nicky Trimble)—funded by CSP with Pembrokeshire Domestic Abuse Forum £25,000. — School Liaison OYcers—funded following a CSP bid to WAG which resulted in 50% funding for two posts—£34,000. — Youth OVending Team OYcer—Full time Police OYcer (Steve Richards) has been seconded to the local Youth OVending Team. — ROC co-ordinator £5,700.00 HQ Funding to support post. — One vehicle for use by Youth OVending oYcer—paid for by Force. — Police Mountain Bikes and cycling equipment for oYcers—£5,000 (BCU Fund). The bikes have been used to particularly good eVect on the Mount Estate to quell Anti Social Behaviour and give a visible police presence. — IT Equipment—£12,500 has been sourced through CSP for IT equipment for School Liaison, YOT, Mount Association and Neyland Skills Centre.
4. Plans,Policies and Protocols:
Pembrokeshsire Community Safety Partnership Anti-Social Behaviour Procedure Guide Pembrokeshire Violent crime Action Plan; Pembrokeshire Young People’s Partnership Delivery Plan 2004–05; Pembrokeshire Young People’s Partnership Strategic Plan 2004–08. Welsh Affairs Committee: Evidence Ev 199
5. CSP Meeting Structure The main CSP Strategic Meetings are held quarterly, and are attended by the BCU Commander. Community Problem Meetings are held on an ad-hoc basis and are attended by Section Inspectors and Community Safety OYcers. So far, these meetings have been held relating to problems in Milford Haven and Pembroke Dock. A Strategic ASB data-sharing group was set up earlier this year and meets monthly. It is attended by the BCU Superintendent. Once all ASB Co-ordinators are in post, it has been proposed by the Chief Inspector, Community Safety HQ, to set up ASB Co-ordinator Conferences, to take place on a regular basis with the aims of co-ordinating the approach to tackling Anti-Social Behaviour within Dyfed-Powys, and of sharing best practice.
6. BCU Leads in Tackling ASB Within Pembrokeshire BCU, Community Safety OYcers and staV lead in initiating action to deal with ASB. The two Community Safety Constables are proactive in working with partner agencies within Pembrokeshire CSP to identify and secure funding in respect of tackling Anti-Social Behaviour. In addition they co-ordinate the Police response to all licencing matters within the BCU and work closely with the Licencing Team within the CSP. Tackling ASB forms part of the portfolio of the Superintendent Operations. Inspectors within the BCU act as a point of contact regarding applications for ASBOs, both stand-alone, and attached to conviction for other oVences (“CRASBOs”). In addition they are expected to take the lead in initiating action to deal with ASB.
7. Physical Resources The resources available to the partnerships throughout the county are largely funded via WAG grants as shown previously. When applying for such capital grants service/maintenance costs (usually two to three years) are included within the bids. CCTV—Town Centre Systems (five)—Haverfordwest: 15 cameras, Pembroke/Pembroke Dock: nine cameras, Tenby: five cameras, Milford Haven: three cameras, Fishguard: two cameras. CCTV—vehicles (eight) CCTV—mobile (one) ANPR (four) Domestic Abuse Coordinator—Piper Lifeline phones (20), mobile phones (10), GPS monitored phone. School Liaison oYcers—Laptop computers, printer, Powerpoint projector. Youth OVend Team OYcer—Vehicle, laptop, drug cases, projector Police Mountain Bikes and cycling equipment for oYcers (five) Mercedes V220 MPV—Funded through BCU—used by Community Safety, CSP, Licensing Team, ANPR platform, section ANPR operations/crime prevention days, personnel transport etc. Ford Galaxy—Funded through WAG/Sponsorship—used by Burglary Reduction Co-ordinator, Community Safety, CSP, Licensing Team, etc. Digital Cameras—All stations have digital cameras for photographing victims injuries/damage etc— pictures can be viewed during interviews on TV cubes. There are two school Liaison OYcers, and one Licencing OYcer.
ANNEX D
POWYS
1. Partnerships: — Powys County Council — Mid Wales Youth OVending Team — National Probation Service — Crime Reduction Unit, Welsh Assembly — Mid and West Wales Fire Service — Brecon Beacons National Park Authority — Powys Association of Voluntary Organisations Ev 200 Welsh Affairs Committee: Evidence
— Powys Local Action Team — Powys Drug & Alcohol Council (PDAC) — Crown Prosecution Service (CPS)
Partnerships (general): — Powys Victim Support — Powys Challenge — Neighbourhood Watch — Farm Watch — Radnorshire & Brecknockshire Women’s Aid — Montgomeryshire Family Crisis Centre
2. Customers: — Victims of ASB — Perpetrators of ASB — Members of the public
3. Funding:
Force
Basic Command Unit (BCU) Fund This fund is intended to support Police Forces in playing a full and active role in the delivery of CSP strategies, including those relating to Tackling Anti-Social Behaviour. The allocation for Powys BCU for 2004–05 is £61,083
CSP Funding
Building Safer Communities Fund (BSC) Available to CSPs, with the Local Authority acting as the “Accountable Body” for the purposes of allocation of funding to respective projects and interventions. The total sum available to Carmarthenshire CSP for the fiscal year 2004–05 is £137,283, which includes £25,000 to support the newly created post of Anti-Social Behaviour Co-ordinator.
Welsh Assembly Government—Safer Communities Fund The Safer Communities Fund provides a source of funding for Community Safety Partnerships to deliver projects that focus on tackling youth crime. The fund also supports Operation Tarian—the intelligence-led policing project which tackles organised crime gangs and the illegal supply of heroin and crack cocaine. The total sum available to Powys CSP for the fiscal year 2003–04 is £36,065.
4. Plans,Policies and Protocols: Juvenile Nuisance Policy (currently draft). This has been drawn up to deal with ASB within the 10-17 year age group. It is run through Community Safety and is based upon the “three strikes” principle, with the intention of preventing nuisance behaviour progressing from anti-social to criminal. Patrol Strategy—monthly patrol plans are formulated by Section Inspectors outlining targeted patrol areas in order to address ASB/disorder-related problems which have been identified as priorities at the Sectional TT&CG meetings. Outcomes are monitored through the BCU TT&CG meetings. Welsh Affairs Committee: Evidence Ev 201
5. CSP Meeting Structure The main CSP Strategic Meetings are held bi-monthly, and are attended by the BCU Commander and the Chief Inspector, Support and Partnerships. It is envisaged that an ASB Action Group will be formed once the ASB Co-ordinator is in post. Once all ASB Co-ordinators are in post, it has been proposed by the Chief Inspector, Community Safety HQ, to set up ASB Co-ordinator Conferences, to take place on a regular basis, with the aims of co- ordinating the approach to tackling Anti-Social Behaviour within Dyfed-Powys, and of sharing best practice.
6. BCU Leads in Tackling ASB Within Powys BCU, Community Safety OYcers are proactive in working with partner agencies within Powys CSP to identify and secure funding in respect of tackling Anti-Social Behaviour. The Chief Inspector (Support and Partnership) chairs/is a member of a range of local strategic groups, including Burglary Action Group, the CCTV Group and Substance Misuse Action Team. Inspectors within the BCU act as a point of contact regarding applications for ASBOs, both stand-alone, and attached to conviction for other oVences (“CRASBOs”).
7. Physical Resources CCTV cameras are in place in Brecon, Newtown, Welshpool (two), Ystradgynlais, Builth Wells and Machynlleth. There is £3,000 within BCU funding to pay for redeployment of mobile CCTV cameras, and a further £20,000 from the “Small Retailers in Deprived Areas Fund” to fund further installation of CCTV cameras. Welsh Assembly Government (WAG) funding has been used to purchase a digital video camera, video stills printer and infra-red videoing equipment. An audit has recently been put in place to monitor how equipment within Community Safety has been used (set up by the Chief Inspector Support and Partnership). It takes the form of a daily diary detailing how the equipment purchased through WAG has been used, and whether this usage ties in with the BCU Control strategy Objectives. Laptop computers, overhead projectors, mobile phones and CD Roms have been purchased for the three School Liaison OYcers using the Community Safety Challenge Fund, enabling them to make presentations in schools. The Youth OVending Team OYcer has a vehicle provided and paid for by the Force. There are three School Liaison OYcers, based in Llandrindod Wells, Newtown and Brecon. A Licensing OYcer (PC) has just been appointed to work in conjunction with the LA in overseeing the change in licensing legislation.
ANNEX E
BEHAVIOUR TYPES The following list of behaviour types was issued by the Home OYce for inclusion in the One-Day Count of Anti-Social Behaviour (10 September 2004):
Misuse of Public Space
Drug/substance misuse and dealing Taking drugs SniYng volatile substances Discarding needles/drug paraphernalia Crack houses Presence of dealers or users Ev 202 Welsh Affairs Committee: Evidence
Street drinking
Begging
Prostitution Soliciting Cards in phone boxes Discarded condoms
Kerb crawling Loitering Pestering residents
Sexual acts Inappropriate sexual conduct Indecent exposure
Abandoned cars
Vehicle related nuisance and inappropriate vehicle use Inconvenient/illegal parking Car repairs on the street/in gardens Setting vehicles alight Joyriding Racing cars OV road motorcycling Cycling/skateboarding in pedestrian areas/on footpaths
Disregard for Community/Personal Wellbeing
Noise Noisy neighbours Noisy cars/motorbikes Loud music Alarms (persistent ringing/malfunction) Noise from pubs/clubs Noise from business/industry
Rowdy behaviour Shouting and swearing Fighting Drunken behaviour Hooliganism/loutish behaviour
Nuisance behaviour Urinating in public Setting fires (not directed at specific persons or property) Inappropriate use of fireworks Throwing missiles Climbing on buildings Impeding access to communal areas Welsh Affairs Committee: Evidence Ev 203
Games in restricted/inappropriate areas Misuse of air guns Letting down tyres
Hoax calls
False calls to emergency services
Animal relating problems Uncontrolled animals
Acts Directed at People
Intimidation/harassment Groups or individuals making threats Verbal abuse Bullying Following people Pestering people Voyeurism Sending nasty/oVensive letters Obscene/nuisance phone calls Menacing gestures Can be on the grounds of: Sexual orientation Gender Religion Disability Age
Environmental Damage
Criminal damage/vandalism GraYti Damage to bus shelters Damage to phone kiosks Damage to street furniture Damage to buildings Damage to trees/plants/hedges
Litter/rubbish Dropping litter Dumping rubbish Fly-tipping Fly-posting Ev 204 Welsh Affairs Committee: Evidence
ANNEX F: STRUCTURE OF NIM
FORCE Strategic Tasking FORCE Tactical Tasking and Co-ordination Group and Co-ordination Group
FORCE FORCE Strategic Asessment Tactical Assessment (Longer-term) (Shorter term) Force Crime Analyst Force Control Strategy Force Crime Analyst
STRATEGIC LEVEL PROBLEM PROFILES BCU Strategic Tasking AND BCU Tactical Tasking and Co-ordination Group TARGET and Co-ordination Group PROFILES
ACTIONS FEEDS RESULTS FEEDS
BCU BCU Strategic Asessment BCU Control Strategy Tactical Assessment (Longer-term) (Shorter term) BCU Crime Analyst BCU Crime Analyst OPERATIONAL LEVEL ACTIONS RESULTS (Including Intelligence)
BCU Tactical Tasking and Co-ordination Meeting
INTELLIGENCE ACTIONS ( eg. DIVISIONAL RESULTS ANALYSTS (Inspectors tasked & funds / resources (Including Intelligence) LIOs allocated) OFFICERS CRIME DATA) Section Tactical Tasking and Co-ordination Meeting
ACTIONS RESULTS (Sgts tasked) (Including Intelligence)
Daily Briefing (Shift Sgt)
Core Shift Officers LBMs Incident/ intelligence pro-forma C/Safety Officers Intelligence (ASB) Surveys of Public Opinion (ASB) Hotspots (ASB) Incidents (ASB) Welsh Affairs Committee: Evidence Ev 205
ANNEX G
ROLE PROFILES ASB CO-ORDINATORS
Carmarthenshire
Cvngor Sir Caerfyrddin
Carmarthenshire County Council Post Title: Anti Social Behaviour Co-ordinator Department: Chief Executives Grade: 6/SO1 Division/Section: Community Safety Accountable to: Community Safety Manager Accountable for: None Organisation Chart: To be provided Main purpose of Job: Assist Community Safety Partnership in the development, promotion and management of operational policy, procedures and protocols in relation to anti-social behaviour and problem solving, ensuring the delivery of a high quality service to the County population. Principal Accountabilities: 1. To provide advice and assistance to all staV within the Partnership, ensuring application of good practice, working closely with the Police, Council and other Partner agencies. 2. Provide recommendations for improvements to operational procedures and code of practice in respect of anti social behaviour and joint Partnership solving at local level. 3. Co-ordinate and eVectively manage referral processes to local anti-social behaviour groups. 4. Undertake Anti-Social Behaviour initiative promotion within the County. 5. Indicate appropriate training when necessary to ensure staV skills are updated and kept under review. 6. Provide performance data and monthly reports on anti social/behaviour and problem solving initiatives. 7. Attend County Problem Solving Group providing timely advice and assistance in pursuance of Acceptable Behaviour Contracts and Anti-Social Behaviour Orders. 8. Contribute towards the development of Community Safety Strategy Action Plans, Corporate Strategy and other relevant policy documents. 9. Undertake joint home visits when necessary to undertake quality control, monitoring of policy and procedures. Magnitude of Job: To facilitate and improve upon area problem solving and anti social behaviour resolution with the County Community Safety Partnership in close Liaison with Partnership Managers including but not limited to County Council, Dyfed Powys Police and other stakeholders. Prepared By: K Carter Date Prepared: 08/03/04
Ceredigion
Ceredigion County Council Job Description Designation—Anti-social Behaviour Co-ordinator Division and Section—Public Sector of Housing Division of Department of Environmental Services and Housing Post Location—Aberareon Salary—Salary Scale SO1 (30 hours pro rata) Car Allowance—Essential Job Purpose—To manage the development and co-ordination of an eVective strategy and policy and to support tackling anti-social behaviour and improving community safety. To provide specialist advice to partner agencies on the most eVective methods of tackling anti social behaviour. Ev 206 Welsh Affairs Committee: Evidence
Main Duties and Responsibilities: The following list is typical of the level of duties which the postholder will be expected to perform. It is not necessarily exhaustive and other duties of a similar type and level may be required from time to time. 1. Co-ordinate activity to tackle anti-social behaviour across the County of Ceredigion, in response to the Community Safety Strategy. 2. Act as a central point for the information exchange on anti-social behaviour. 3. To develop contacts with, and provide information to, elected members, oYcers, individuals and organisations on anti-social behaviour and community safety at a Community and County level. 4. To assist in co-ordinating fundraising and preparation of bids to support anti-social behaviour interventions and community safety activities. 5. Agree and develop a strategic multi agency approach to tackling anti-social behaviour based on eVective practice. 6. To be instrumental in the formulation, development and implementation of new-revised procedures,policy and protocols relating to partner agencies work. 7. To maintain an appropriate database on anti-social behaviour and community safety, drawing on existing information from partner agencies. 8. To resolve cases of anti-social behaviour wherever possible without the need for legal action, involving other agencies and services where appropriate. 9. To identify and prepare cases where legal action is required in consultation with other agencies, legal advisor and represent the Council in Court as required. 10. To keep witnesses and victims informed of progress in each case and provide or arrange support where required. 11. To liaise closely and develop eVective working relationships with Area Housing staV, other Council services, Dyfed/Powys Police, CPS and other external agencies on cases being investigated and/or taken to Court. 12. To liaise as required with tenants and residents groups and attend public meetings if appropriate. 13. To ensure all enquires relating to anti-social behaviour comply with the Council’s Corporate policies and procedures including: — The Council’s equal opportunities and employment practices. — The Council’s health and safety policies and procedures in compliance with statutory requirements and Code of Practice to ensure the Health and Safety of Employees and the general public.
Ceredigion County Council
Job Description
Designation—Anti-Social Behaviour Project Officer (Fixed contract to 31.3.07) Division and Section— Public Sector Housing Division of Department of Environmental Services and Housing. Post Location—Aberaeron Salary—Scale 6 Car Allowance—Essential Job Purpose—To ensure a co-ordinated response to un/anti-social behaviour in mixed tenure neighbourhoods through the development of policies and protocols in order to facilitate good neighbourhood practice. Main Duties: The following list is typical of the level of duties which the postholder will be expected to perform. It is not necessarily exhaustive and other duties of a similar type and level may be required from time to time. 1. Identify and establish eVective and appropriate local solutions to the problem of unsocial and anti- social behaviour. 2. Develop a range of eVective interventions to improve unsociable behaviour in mixed tenure neighbourhoods and establish protocols for the recording of incidents. 3. To be instrumental in the formulation of innovative practices to educate and raise awareness in order to modify behaviour and address underlying problems or cause of unsociable behaviour in a rural environment. Welsh Affairs Committee: Evidence Ev 207
4. To develop contacts with and provide information to partner agencies and key stakeholders. 5. To maintain an appropriate database in respect of intelligence gathering and structural information relating to ASB. 6. To prepare monthly comprehensive written reports in order to determine that the aims and objections of the project are being met, also annual reports leading to a final report in respect of the three-year project. 7. To liase closely and develop eVective working relationships with local authority staV, Dyfed/Powys Police, CPS and other external agencies on cases being investigated or taken to court. 8. Establish neighbourhood boards in order to identify and address the issue of ASB in specific locations. 9. Consult with local communities and undertake and evaluate questionnaires where considered appropriate. 10. Respond to complaints and allegations of nuisance and anti/un sociable behaviour and carry out investigations as necessary and initiate appropriate enforcement action. 11. To ensure all enquiries relating to anti-social behaviour comply with the Council’s corporate policies and procedures including: — The Council’s equal opportunities and employment practices. — The Council’s health and safety policies and procedures in compliance with statutory requirements and Code of Practice to ensure the Health and Safety of Employees and the general public.
Pembrokeshire
Anti Social Behaviour Reduction OYcer The post will be for a fixed contract period up until 31 March 2006, this will be initially part time, but may raise to full time over the course of the contract.
Job Purpose To develop Pembrokeshire’s Anti-Social Behaviour Reduction Strategy, aiming to prevent and reduce incidents of anti social behaviour. The job will also require the post-holder to laise with statutory agencies and members of the public, aiming to collate information required to take a range of action (eg anti social behaviour orders and acceptable behaviour contracts). The post holder will also be required to establish a monitoring system to evaluate the eVectiveness of any enforcement activity and will be required to contribute to any other activities, designed to reduce crime, anti-social behaviour and social exclusion.
Principal Responsibilities 1. To work closely with the Police, other Divisions within Environment and Health, other departments of the Council and any other group or individual within the Pembrokeshire area, aiming to reduce and prevent incidents of anti-social behaviour. 2. To establish a system of accurately monitoring and recording incidents of anti social behaviour and to evaluate the eVectiveness of the system. 3. To co-ordinate a case conference group and to provide assistance to the Chair of the group, with the responsibility of assessing cases of anti-social behaviour in Pembrokeshire and recommending appropriate action. 4. To co-ordinate and collate information from diVerent agencies, to implement enforcement activities ranging from informal action to Acceptable Behaviour Contracts and Anti Social Behaviour Orders and to deal with any breaches arising from any actions, acting as a central point for information exchange. 5. To work closely with the Council’s legal department in preparation for court entry. 6. To liase with members of the public and representatives from statutory agencies to obtain evidence of anti-social behaviour. 7. To be expert in acquiring evidence, including taking statements. 8. To support and advise witnesses, particularly those under intimidation and to keep witnesses informed of the procedures involved and progress with their cases. 9. To undertake any reasonable enforcement activities and be responsible for the compilation of case notes and other evidence to be used in court when necessary. 10. To maintain the confidentiality of the personal details obtained in the course of duties. 11. To prepare oral and written progress reports for the Community Safety Partnership. 12. To monitor and evaluate the eVectiveness of current and future arrangements for dealing with anti- social behaviour. Ev 208 Welsh Affairs Committee: Evidence
13. To ensure locally developed protocols for both Acceptable Behaviour Contracts (ABCs) and Anti Social Behaviour Orders (ASBOs). 14. To link the work to Local Strategic Partnerships, neighbourhood renewals and to strategies to engage young people. 15. To identify and maximise relevant funding opportunities.
Powys
Powys County Council Post Title: Anti Social Behaviour Co-ordinator Directorate: Chief Executive’s Division: Community Safety Base Location: To be decided Welsh Language: Desirable Vehicle Status: Essential Hours per week: 30 hours Grade: SO1 (£21,282.00-£22,689.00) pro rata Posts supervised: None Further Information: Temporary for two years
Main Purposes of Post To develop Powys County Council’s Anti Social Behaviour Reduction strategy, aiming to prevent and reduce incidents of anti-social behaviour within the County. The job will require the post-holder to assist the Community Safety Partnership in the development, promotion and management of operational policy, procedures and protocols in relation to anti social behaviour. The post holder will be required to establish a monitoring system to evaluate the eVectiveness of any enforcement activity, ensuring a high quality service to the County’s population.
Principal Responsibilities 1. To provide advice and assistance to all staV within the Partnership, ensuring application of good practice, working closely with the Police, Council and other partner agencies and any other group or individual within the Powys area aiming to reduce and prevent incidents of anti-social behaviour. 2. To establish a system of accurately monitoring and recording incidents of anti social behaviour from diVerent agencies to implement enforcement activities ranging from informal action to Acceptable Behaviour Contracts and Anti Social Behaviour Orders and to deal with any breaches arising from any actions. To act as a central point for the exchange of information. To evaluate the eVectiveness of the system. 3. Provide recommendations for improvements to operational procedures and codes of practice in respect of Anti Social Behaviour and joint Partnership solving at local level. 4. To co-ordinate the ASBO Group and provide assistance to the Chair of the Group, with the responsibility of assessing cases of Anti Social Behaviour in Powys and recommending appropriate action. 5. To indicate appropriate training, where necessary, to ensure staV/skills are updated and kept under review. 6. To liase with members of the public and representatives from statutory agencies to obtain evidence of Anti-Social Behaviour. 7. To be experienced in acquiring evidence, including the taking of statements. 8. To prepare oral and written progress reports for the Community Safety Partnership. 9. To ensure locally developed protocols for both Acceptable Behaviour Contracts (ABCs) and Anti Social Behaviour Orders (ASBOs). 10. To be able to support and advise witnesses, particularly those under intimidation, and to keep witnesses informed of the procedures involved and progress made with their cases. 11. To undertake any reasonable enforcement activities and be responsible for the compilation of case notes and other evidence to be used in court when necessary. 12. To maintain the confidentiality of the personal details obtained in the course of carrying out their duties. Welsh Affairs Committee: Evidence Ev 209
13. To link the work to Local Strategic Partnerships, neighbourhood renewals and to strategies to engage young people. 14. To work closely with the Council’s legal department when preparing cases to go before the Court. 15. To identify and maximise relevant funding opportunities.
ANNEX H
FORCE POLICIES AND PROTOCOLS RE ASB
1. Penalty Notices for Disorder
Dyfed Powys Police Force Policy
Penalty Notices—Disorder Any enquiries in relation to this policy should be forwarded to Chief Inspector (Support)—HQ Operations.
1. Introduction 1.1 Part 1, Chapter 1 of the Criminal Justice and Police Act 2001 introduced Penalty Notices—Disorder (PND), for a range of oVences involving minor disorder or anti-social behaviour. This scheme continues to provide a highly eVective method of dealing with minor oVences, thereby freeing up oYcers to return to operational duties and reducing court delays. The change, introduced by Section 1(11) of the Criminal Justice and Police Act 2001, is designed to oVer an additional method for dealing with low-level, anti-social behaviour, disorder and nuisance oVending. It is not designed to cater for serious oVences (for which custody or other sentence more severe than a fine would be expected if the oVender were to be tried by a court and convicted). The notices cater for two levels of fine (£40 and £80) dependant on the severity/nature of the oVence. 1.2 Section 87(2) of the Anti-social behaviour Act 2003 has also come into eVect and allows for the issue of PNDs to persons aged 16 years and over. The force will implement these provisions from 1 July 2004. 1.3 This policy document should be read in conjunction with the Force Strategy in relation to PND. 1.4 The schedule of Penalty Notice oVences is shown in Annex A.
2. Distribution of Penalty Notices to Divisions 2.1 Divisional Commanders will be responsible for ensuring that they have suYcient PNDs for their needs and should update CJU (CTO) with requests for additional PNDs as soon as the need is anticipated. Divisions will be responsible for issuing PNDs to individual oYcers and will ensure that a suYcient stock is available for use in designated custody facilities. It is imperative that the use of these notices to combat disorder and anti-social behaviour is not jeopardised as a result of supplies becoming exhausted.
3. Issuing a Penalty Notice 3.1 Annex B provides a simple flow chart, showing the PND process. The option of issuing a PND is in addition to existing forms of disposal for these oVences, (ie report for summons, charge, caution/reprimand/final warning, etc), either on the street, or following arrest. OYcers may only issue a PND where there is suYcient evidence to prosecute the alleged oVender for that oVence. 3.2 Powers of arrest for oVences included in the PND scheme remain unchanged and should be exercised where appropriate. 3.3 A Penalty Notice will only be issued in relation to simple, straight forward cases. PNDs will NOT be issued where the oVence includes any aggravating circumstances, including: — damage to any property; — injury to any person; — homophobic or racially motivated incidents; — Forms part of a pattern of harassment or intimidation; — domestic incidents; — football related oVences, where the oVender may be subject to a football banning order if prosecuted; and — any realistic threat of injury to any person. Ev 210 Welsh Affairs Committee: Evidence
3.4 PNDs will also NOT be issued where: —TheoVender is under 16 years of age. (Where a suspect lies about their age, the penalty notice will be withdrawn, any monies paid will be returned and oYcers may proceed in any way that was available prior to issue). —TheoVender refuses to accept the PND (or in the case of juveniles aged 16–17 years where the appropriate adult refuses). —TheoVender is on police or court bail for any oVence. —TheoVender is serving a custodial sentence, including a Home Detention Curfew. —TheoVender is subject to an ASBO/CRASBO, (where the oVence may constitute a breach) or a community penalty other than a fine. —TheoVender is unable to understand the implications of a PND. (This will include circumstances where oVenders are deaf/hard of hearing, are unable to read or write, do not understand English, etc.) OYcers should make reasonable eVorts to ensure oVenders understand the implications of a PND, but where these eVorts fail, oYcers will revert to existing disposal options. —TheoVender is a foreign national resident outside the UK. — The statutory defence for an oVence under section 5 Public Order Act 1986 would be applicable. 3.5 PNDs should only ever be issued in minor, straightforward cases, as an alternative to either a charge/ summons or a formal police caution/reprimand/final warning. 3.6 The issuing of PNDs is not limited to oVences directly witnessed by police oYcers. OYcers may issue a PND based upon evidence provided by other reliable witnesses. Where it is necessary to bail people to complete enquiries, a PND can be issued on their return to custody as a means of disposal. 3.7 OYcers may consider that oVenders known to have previous charges, cautions or PNDs for any penalty notice oVences should not be issued with a PND. However, the number of PNDs issued to an individual will not be limited and oYcers should use discretion, based upon the individual circumstances of each case to judge whether a PND would be an appropriate disposal. For specific advice relating to 16–17 year olds see paragraph 4.2. 3.8 No-one has the right to demand a PND and no-one should be forced to accept a PND. There is no requirement for oVenders to admit an oVence in order that a PND can be issued. The fact that an oVender appears to be intending to contest a case does not necessarily preclude the issuing of a PND, and oYcers should consider issuing a PND in appropriate cases as oVenders may elect to pay a PND fine some time later, having re-considered their situation. Where an oVender clearly refuses to accept a PND, oYcers should revert to existing disposal options. Once a PND has been issued then no alternative form of disposal should be considered. 3.9 PNDs will not be issued where another more serious non PND oVence is known to be involved and in these circumstances all oVences should be charged together. Where an oVender under 16 is jointly responsible for a PND oVence with an oVender 16 years or over, oYcers will not issue the older oVender with a PND, reverting instead to existing forms of disposal. 3.10 Before issuing a PND it is ESSENTIAL that oYcers carry out the fullest identity checks possible, including ID documents, driving licence, etc together with PNC, Oasis, Voters Index. A PND will not be appropriate where the alleged oVender has no satisfactory address for enforcement purposes. It is imperative that checks to ascertain and verify the identity of the oVender are robust. 3.11 OYcers may note that Wasting Police Time is a PND oVence, and requires DPP consent for prosecution, however for the purposes of the PND scheme, oYcers may issue PNDs for minor instances of this oVence without recourse to CPS advice. 3.12 Regardless of whether or not a PND is issued in relation to an oVence, oYcers should ensure that oVenders are referred where appropriate to relevant organisations oVering support and treatment for drug, alcohol or substance misuse. 3.13 Where it is clear that oVenders are unable to pay for a PND, oYcers will not issue a PND and existing forms of disposal should be considered. Part payments will not be accepted by the Fixed Penalty OYce under any circumstances, and where full payment is not received within 21 days, any monies paid will be returned to oVenders, reiterating that full payment is required with 21 days.
4. 16–17 Year Olds 4.1 OYcers should exercise particular care when dealing with 16–17 year olds. The PND system does not replace or supersede the established system of Reprimands and Final Warnings for juvenile oVenders. OYcers may elect to issue 16–17 year olds with a PND if this is deemed to be the most appropriate disposal in the circumstances. As with all juvenile disposal decisions, the Duty Inspector and Custody Sergeant should be consulted before any decision is reached. Welsh Affairs Committee: Evidence Ev 211
4.2 The following advice is provided to assist oYcers: — PNDs will only be issued to 16 and 17 year old oVenders for minor, straight-forward oVences, where the oVence does not form part of a pattern of oVending behaviour and intervention is unlikely to have an impact. (eg a “one oV” single incidence of behaviour). — PNDs are not intended as a replacement to Final Warnings/Reprimands, and where oVenders appear to be vulnerable and in need of intervention, for example due to vulnerable family circumstances, etc then PNDs should not be used and oYcers should revert to existing forms of disposal to ensure appropriate intervention measures are implemented with local Youth OVending Teams, etc. —OYcers may issue PNDs to 16 and 17 year olds for oVences on the streets with no involvement of an appropriate adult, as they can already for minor traYcoVences, (eg no helmet on a moped, etc). —AnoVender should not receive more than one PND for a recordable oVence (ie where we would ordinarily take fingerprints etc). Pending developments to use PNC to record PNs, oYcers should utilise FLINTS checks to view any oVending history. This should ensure that multiple tickets are not issued to 16–17 year olds. — Local Youth OVending Teams (YOTs) will be informed of the issuing of a PND to a 16 or 17 year old oVender, for information purposes. Where a young person has been arrested and is in custody, ICIS will generate a Youth Referral Form (WG 455) in the usual way. Where a young person is dealt with by PND on the street, oYcers should print oV a WG 455 from standard forms on the intranet and complete and forward it to the appropriate YOT. OYcers should write “Penalty Notice” in the disposal field of this form, until such time as the form is amended to include PNDs as a disposal option.
5. Issuing a PND on the Street 5.1 A PND may be issued by a constable or special constable in uniform “on the street”. (This can include any public or private place). At present Police Community Support OYcers (PCSOs) are not empowered to issue PNDs. Given the nature of the oVences covered by PND it is likely that 95% or more PNDs for recordable oVences will be issued to oVenders who are in custody. This would create the potential for a small number of oVences not to have fingerprints photographs and DNA taken in respect of them if they were issued on the street. This is a national issue and options to resolve this problem are currently being explored. Until such stage as that further guidance is received PNDs for recordable oVences will only be issued to oVenders who are in custody in accordance with Home OYce Guidance (dated 11 February 2004). 5.2 An oYcer may issue a PND on the street where: —SuYcient evidence to prosecute exists. — The name and address of the alleged oVender can be confirmed to the satisfaction of the oYcer. —TheoVender is fully compliant. —TheoVender understands the implications of the PND. — There are no aggravating circumstances, (see above). —TheoVence is minor and straight forward. 5.3 Where an oVender’s identity cannot be confirmed, or where oVenders are drunk, likely to become violent, or are non-compliant, etc oYcers will not issue PNDs on the street, and will take positive action including arresting oVenders where necessary. There is no power to arrest or detain an oVender purely to issue a PND and oYcers must have suYcient grounds to arrest using existing powers of arrest, (eg Section 25 PACE 1984, power of arrest for Section 5 Public Order Act 1986, etc). Where grounds to detain an oVender no longer exist, for example where an oVender calms down or their name and address have been confirmed en route to a police station, oYcers will not delay their release and will issue PNDs as soon as practicable. 5.4 Where a PND is issued and oYcers subsequently find that a PND disposal was not appropriate, (for example, where fuller details of an oVender’s criminal history becomes known, or further evidence regarding the seriousness of the oVence emerges), a PND can be withdrawn and an oVender prosecuted for an oVence in exceptional circumstances, but only where the oVender fails to respond to the PND within 21 days. OYcers should contact CTO without delay to ensure that the PND is withdrawn, and a full prosecution file for the original oVence, including details as to why the PND has been withdrawn, should be forwarded to the appropriate Divisional Support Unit for the raising of summons.
6. Issuing a PND following arrest 6.1 At a police station, a PND can be issued by any constable or special constable, whether in uniform or not. Custody Detention OYcers, (CDOs) are not authorised to issue PND’s under any circumstances. Once detention is authorised at a police station, custody oYcers will be responsible for disposal decisions from the range of options, (eg charge, caution/reprimand/final warning, report for summons, NFA), which now includes issuing a PND when the oVender is fit to be dealt with. Ev 212 Welsh Affairs Committee: Evidence
6.2 Where a custody oYcer decides that a PND disposal is appropriate, oYcers dealing with the oVender should issue the PND and the custody oYcer should refuse to charge the oVender for that oVence. Custody records should be endorsed accordingly with the PND serial number together with details of the issuing oYcer, and custody oYcers should use the “Penalty Notice” disposal screen on the Custody System on completion of the process. 6.3 Where oYcers choose to report or charge an oVender with a penalty notice oVence, oYcers should record the reasons why a PND was not deemed to be appropriate on the confidential information form (MG6). This may be due to the severity of the oVence, aggravating circumstances, oVenders’ demeanour, previous PNDs issued or local directives in place to deal with a crime and disorder hotspot. This will enable CPS to respond to any queries raised by Magistrates or defence lawyers, and should prevent court sentencing from undermining the level of PND fines where guilt is proved.
7. Action by oVender 7.1 Completion and submission of PNDs is detailed below. Once issued with a PND, oVenders have two options: 7.2 Pay the fine within 21 days to the payment oYce, “The Justices” Chief Executive, PenVynnon, Hawthorne Rise, Haverfordwest, Pembrokeshire SA61 2AZ. Payment of a PND fine is not an admission of guilt and discharges liability for prosecution for that oVence. 7.3 NOTE. No payment of PND fines will be accepted by oYcers or police staV under any circumstances. OVenders CAN NOT pay PND fines at police stations and oVenders will be instructed to pay the penalty as per instructions on Part 2 of the PND. Where payment is posted to police stations in error, they should be forwarded to the payment oYce, “The Justices” Chief Executive, PenVynnon, Hawthorne Rise, Haverfordwest, Pembrokeshire, SA61 2AZ CTO without delay. 7.4 Request a court hearing, by returning the appropriate part of the PND to the CTO. CTO will then forward the PND to (the CJU of) (take out what’s in bracket) the issuing oYcer, who will ensure that a FULL FILE is prepared for trial. Completed files will be forwarded to the appropriate DSU Process Department or CJU responsible for the raising of summons, which will take place in the normal way. 7.5 Where an oVender fails to respond to a PND, the fine is increased to one and a half times the amount after 21 days. Further failure to pay will result, in most cases, in the registration of the penalty as a fine, which will be enforced by the courts. In exceptional circumstances, PNDs may be withdrawn and oVenders prosecuted for the original oVence, (see 5.4 above).
8. Submission and completion of the PND 8.1 Each PND consists of six parts on four pages, which will be completed as below. 8.2 PNDs consist of a carbonated multi-page ticket and oYcers need to exercise care to ensure that each page of the ticket is legible. Incomplete or illegible PNDs will be returned by CTO to originating oYcers for remedial action. 8.3 Page one, (white in colour), containing parts 1, 2 and 3, will be the suspects copy of the PND and includes full details of what action they should take on receipt of the PND. The remaining three coloured pages, containing parts 4, 5, 6a and 6b should be firmly fixed together, and submitted before the issuing oYcer finishes their tour of duty. PNDs will be forwarded without delay to CTO in the same manner as existing traYc PNDs. 8.4 Part 1.OYcers should complete all fields in this part of the PND. OYcers should invite oVenders to sign part 1 of the PND in the appropriate field, acknowledging receipt of the PND. Signature is NOT an admission of guilt by the oVender. There is no power to require a signature and oVenders are under no obligation to sign. Where oVenders refuse to sign, oYcers should indicate this in the signature field. 8.5 The oYcer issuing the PND to the oVender should enter their details in the appropriate fields in Part 1. The issuing oYcer need not be the main police witness, and therefore could be an oYcer dealing with the oVender as part of a “handover” following arrest. 8.6 Where an oVender in custody may be subject to a PND disposal after some delay, to allow them to sober up/calm down, etc the arresting oYcer may consider part completing a PND, including the statement of witness on part 6B, (see below), to hand over to other oYcers. Where a PND is subsequently not used for any reason, a PND should be clearly marked as VOID and forwarded to CTO. Where a void PND is required for disclosure purposes, a photocopy of the PND should be forwarded to CTO. 8.7 Part 2. (Front of page 1, at the bottom). To be completed by the suspect, when paying the fine. 8.8 Part 3. (Rear of page 1, at the bottom). To be completed by the suspect when requesting a court hearing). 8.9 Part 4. (First coloured page). OVender details will copy through from page 1. “Additional Details of Recipient” at bottom of page to be completed in every case, including IC code and Ethnicity 16 ! 1 code. Welsh Affairs Committee: Evidence Ev 213
8.10 There is no requirement for oYcers to complete the “Local Authority Code” field in part 4. 8.11 Part 5. (Second coloured page). All fields should copy through from previous two pages. 8.12 Part 6A. (Third coloured page—front). OYcers MUST provide as detailed a description of an oVender as possible, to enable identification should oVenders subsequently choose to dispute identification. This should include details of marks, scars, tattoos, etc. Where relevant video footage or photographs of oVenders exists, (eg custody video recording, or intelligence photos/recording taken by oYcers with digital cameras, etc), oYcers should note where tapes or discs are stored with appropriate reference numbers in the “Additional Notes” field. Relevant comments made by the oVender after caution, etc should be noted in the “Reply to Caution” field. OYcers should also note what ID checks were done in case of identification issues at a later date. 8.13 OYcers should include any other information they deem necessary in the “Additional Notes” field, which could include details of other witnesses, etc. Where an oVender is arrested in relation to a PND oVence, the Custody Record number will be entered in the appropriate field. 8.14 NOTE. Where disclosure of part 6A is required in subsequent court cases, DSU’s CJUs and oYcers preparing files should ensure that all details of non police witnesses included in part 6A are edited PRIOR to disclosure to the defence. 8.15 Part 6B. (Third blue page—rear). This part comprises of a Statement of Witness, to be completed by the main police witness to the oVence in question. OYcers should complete as full a statement as necessary. In view of the limited space in part 6B oYcers should continue on a form MG11a, (witness statement, continuation sheet), if necessary. There is no requirement for any other statements to be included at this stage, but any continuation sheets or additional statements (eg from a third party witness or an oYcer who handed over the investigation having already completed a traditional MG11) should be attached securely to the rear of the PND when submitted to CTO. 8.16 Supervisors are responsible for ensuring that oYcers complete PNDs correctly and for monitoring the use of PNDs by individual oYcers. Appropriate action should be taken by supervisors where oYcers are found to be using PNDs inappropriately or incorrectly.
9. Crime recording
9.1 Notifiable penalty notice oVences, (Section 5 Public Order Act is the only notifiable PND oVence at present), will be subject of a crime report, as per the Home OYce Counting Rules and force crime recording policy. A PND disposal will constitute a sanctioned detection for the purposes of crime recording. When completing form C551/C552 where PNDs are issued, oYcers should write “Penalty Notice” clearly across the top of the C551/C552. The clear up code of 8C should be entered as a detection code in the appropriate box on the form, (where oYcers would normally enter 1 for charge, 2 for caution, etc). 9.2 Under the Home OYce Counting Rules, oYcers cannot use a PND for Section 5 Public Order Act or Drunk and Disorderly to detect more serious recorded oVences ie Section 47 Assault or Threats to Kill. Where PNDs are used to detect crimes which fall outside of this guidance, the detection will be removed and the crime will remain undetected. If oYcers have any doubt about the validity of a detection by a PND, they should consult their line manager, divisional senior management or Force Crime Registrar.
10. Central Ticket OYce
10.1 CTO will be responsible for recording and administering the penalty notices on the NES computer system. 10.2 CTO will be the central point of contact for all enquiries and correspondence in relation to PNDs. All enquiries relating to individual PNDs received by OCUs/departments (for example letters of mitigation, etc) will be directed to the CTO for recording and action. CTO will either respond to enquiries itself, or may seek views of the relevant BCU/department before responding. 10.3 CTO will retain all PNDs forwarded to them for three years, in accordance with the Force destruction policy. 10.4 On receipt of a request for a court hearing, the CTO will ensure that a full file is prepared for trial in the normal way, in accordance with the file preparation Manual of Guidance. 10.5 CTO staV will NOT accept payments of penalties. Only court staV can accept payment. Ev 214 Welsh Affairs Committee: Evidence
11. Recordable OVences—Taking of fingerprints, photographs and DNA 11.1 Annex A indicates which Penalty Notice oVences are recordable for the purpose of taking fingerprints, photographs and DNA. 11.2 Where oVenders are in custody at a police station upon issue of a PND, fingerprints, photograph and DNA will be obtained in the normal manner, prior to release. 11.3 In accordance with item 5.1 above, until further notice PNDs for recordable oVences will only be issued to oVenders who are in custody.
12. PNC “Phoenix” Entries 12.1 Upon receipt of the C646, the Phoenix staV will update the subjects record as necessary ie warning signals, descriptive details, known associates and so on. 12.2 The Phoenix staV will record details under the arrest summons number of the PND ticket serial number and details thereon. 12.3 The Phoenix staV will Result the Fixed Penalty Notice on PNC.
SCHEDULE OF PENALTY NOTICE OFFENCE, SHOWING LEVELS OF PENALTY
Act Description Max Penalty Arrestable Notifiable Recordable Amount UpperTier £80 1 S 5 Wasting Level 4 £80 S. 25 PACE - Recordable Criminal police time. (£2500) 1984 Law Act Giving false 6 months 1967 report 2 S 43 (1)(b) Sending Level 5 £80 S. 25 PACE - Recordable Telecomm- false (£5000) six 1984 unications messages months Act 1984 3 S 31, Fire Knowingly Level 3 £80 S. 25 PACE - Recordable Services Act giving false (£1000) 1984 1947 alarm to fire brigade 4 S 5, Public Causing Level 3 £80 Conditionally Notifiable Recordable Order Act harassment, (£1000) under s.5 1986 alarm or POA 1986 distress & S. 25 PACE 5 S. 80, Throwing Level 5 £80 S. 25 PACE - - Explosives fireworks (£5000) 1984 Act 1875 Lower Tier £40 6 S. 91 Drunk and Level 3 £40 S. 25 PACE - Recordable Criminal disorderly (£1000) 1984 Justice Act 1967 7 S. 55 British Trespassing Level 3 £40 S. 25 PACE - - Transport on a railway (£1000) 1984 Commission Act 1949 8 S. 56 British Trowing Level 3 £40 S. 25 PACE - - Transport stones at a (£1000) 1984 Commission train Act 1949 9 S. 12 Drunk in Level 1 £40 S. 25 PACE - Recordable Licensing highway (£200) 1984 Act 1872 10 S. 169 ?(3) Buying Level 3 £40 S. 25 PACE - - Licensing alcohol for (£1000) 1984 Act 1964 an under 18 11 S12 (4), Drinking in Level 2 £40 Conditionally - - Criminal a designated (£500) Under Justice & public area s.24(2) & Police Act s.25 PACE 2001 Welsh Affairs Committee: Evidence Ev 215
Dyfed–Powys Police Patrol Strategy (Addendum)
Penalty Notices—Disorder (PND) Any enquiries in relation to this Strategy should be forwarded to Chief Inspector (Support)—HQ Operations.
Introduction Section 1(11) of the Criminal Justice and Police Act 2001 introduced the issue of Penalty Notices— Disorder (PND) by police oYcers and special constables, for a range of oVences involving minor disorder, nuisance and anti-social behaviour. As such the scheme provides a highly eVective means of dealing with a range of minor oVences (thereby freeing up oYcers to return to operational duties and reducing court delays) and combating anti-social behaviour within our communities.The use of PND is not designed to cater for serious oVences (for which custody or other sentence more severe than a fine would be expected if the oVender were to be tried by a court and convicted). The notices provide for two levels of fine (£40 and £80) dependant on the severity/nature of the oVence. Section 87(2) of the Anti-social behaviour Act 2003 has also come into eVect and extended the original scheme to allow for the issue of PND to persons aged 16 years and over. Dyfed Powys Police will implement these provisions from 1 July 2004. This Strategy document is to be read in conjunction with the Force Policy in relation to PND which covers their use in detail.
Strategic Aim In support of the Force Crime Reduction and Patrol Strategies the Strategic Aim of the use of PNDs will be: — To utilise the PND scheme proactively and positively to eVectively tackle relevant oVences thereby contributing to the aims within “Safeguarding Our Communities”.
Objectives The specific objectives of the strategy are: —TomoreeVectively tackle anti social behaviour, disorder, nuisance and minor crime. — To improve the quality of life of the people living in and visiting our community. — To make more eVective use of police resources by releasing oYcers for frontline duties. — To ensure the PND scheme is introduced and used eVectively.
Divisional Plans In support of the Strategic Aim, Divisional Commanders will ensure that local plans are devised detailing specifically what steps will be taken to ensure that PNDs are used eVectively within their divisions. Such plans will be reviewed quarterly and if necessary will be revised to cater for the fluid nature of anti-social behaviour as a consequence of seasonal changes. The plans will cater for the use of PNDs: — An every day general patrol activity. — As a tool of specific pre-planned pro-active operations to tackle anti-social behaviour. In addition, all operational orders in relation to events at which anti-social behaviour/nuisance may be encountered will promote the proactive use of PNDs to tackle such behaviour. HQ Operations will also co-ordinate the provision of uniform support for divisions in accordance with strategic guidance from Chief OYcer Group. The timing and frequency of this support will be dependant upon operational demand and the need for Headquarters Departments to be able to continue to deliver services. In addition, requests for resources over and above those available from within divisions and those available as a result of routine HQ support will be fed into divisional and, if necessary, the Force Tasking and Co-ordination process. In appropriate cases further resources may be made available to divisions through the use of inter-divisional mutual aid. EVective use will be made of intelligence and the Force’s analytical capability at both the divisional and Force level to ensure that the use of PNDs and related divisional proactive operations are targeted at disorder and nuisance hot spots thereby maximising their impact. Ev 216 Welsh Affairs Committee: Evidence
Awareness and Training
Training The provision of formal training will be limited to those charged with the administrative control of the system and will therefore be provided to CJU and Magistrates Courts staV only. Issuing PNDs will be very similar to the issue of fixed penalty notices for existing oVences. Divisional Commanders will need to ensure that they are satisfied that all oYcers (particularly those involved in related proactive operations) and particularly supervisors are familiar with the issue of penalty notices. Where there is a need, DTOs may also liaise with Mr Jason Ruddall and/or CJU/CTO who will be able to answer any queries in relation to the processes surrounding PNDs.
Briefing Divisional Commanders will ensure that these strategic aims, objectives and the use of PNDs is promoted at sectional meetings and at briefings and that all staV are aware of the contents of the Force PND Policy.
Supervision Supervisors are responsible for ensuring that oYcers complete PNDs correctly and for monitoring the use of PNDs by individual oYcers/sections in accordance with Force Policy. Appropriate action should be taken by supervisors where oYcers are found to be using PNDs inappropriately or incorrectly. Supervisors should also ensure that eVective use is being made of PNDs by oYcers and special constables under their control and direction.
Logistics CJU/CTO will ensure that suYcient supplies of PNDs are provided to divisions to ensure that eVective use can be made of them from the go live date of 2 July 2004. Divisional Commanders should arrange liaison between the division and CTO regarding the suYciency of tickets and delivery points within the division. Thereafter it will be the responsibility of divisions to ensure that stocks are monitored and further supplies ordered from CJU/CTO in suYcient time to prevent divisional stocks becoming exhausted. Initially, the costs of PND tickets will be born by HQ Operations (CJU) and this will be reviewed prior to the commencement of the 2005–06 Fiscal year.
Media Strategy In support of this Strategy the Press and Media Relations OYce will devise an appropriate media strategy which will: — Publicise the planned introduction of the scheme into the Force. — Provide details of the drivers for the national scheme. — Indicate the primary oVences covered by the scheme. — Publicise the planned robust use of the scheme by the Force to tackle nuisance and disorder and to improve the quality of life within communities.
Evaluation Corporate Services/Force Audit and Inspection will be tasked to undertake a review of the use of PNDs and their eVectiveness. An interim report will be prepared covering the first three months of the operation of the scheme with a final report to cover a six month period of operation. This will allow the consideration of changes to the Force Policy and/or operating practices in order that eVective use can be optimised during 2005–06. In addition, divisions will ensure the eVectiveness of local implementation through their assessment strategies conducted under NIM. Updates in respect of such performance will be provided to the Force Performance and Planning meetings.
2. Anti-Social Behaviour Orders NB. This Protocol is still in draft form and awaits outcomes of consultation with, and approval from, the Crown Prosecution Service and the ASB Co-ordinators within Dyfed—Powys. Text printed in red marks issues for discussion. Welsh Affairs Committee: Evidence Ev 217
Community Safety Partnership
Anti-Social Behaviour Orders Protocol 1. Introduction 1.1. The purpose of Anti-Social Behaviour Orders (ASBOs) under the Crime and Disorder Act 1998, is to protect local communities from the harassment, alarm or distress that can be caused by anti-social behaviour, ie it is in eVect any behaviour which prevents others enjoying an acceptable quality of life. 1.2. Anti-Social Behaviour is any action likely to cause harassment, alarm or distress and can involve for example unruly and drunken behaviour/threats, abuse, graYti, damage. 1.3. There is no requirement to demonstrate that every other remedy has been exhausted before applying for an ASBO. The key is that an ASBO should be used where it is the most appropriate remedy. Other remedies include: — Mediation — Home Visits — Letters — Use of Existing Legislation — ABCs (Acceptable Behaviour Contracts) There are two types of ASBOs: (i) Civil Court Hearing ASBO without other Criminal Proceedings—commonly known as a Stand Alone ASBO and will be referred as such throughout this document. (ii) ASBO on conviction for a criminal oVence. 1.4. An order can be made against an individual who is aged 10 years or over who acts in a manner that causes, or is likely to cause harassment, alarm or distress to one or more people, not in the same household as himself/herself. 1.5. For the purposes of obtaining an ASBO the applying agency must show that the defendant behaved in an anti social manner and that an ASBO is necessary for the protection of persons from further anti-social behaviour by him/her. This is sometimes referred to as the “Two Stage Test”. 1.6. Application for ASBOs within an Area will be made either by the Dyfed Powys Police or County Council. However the Police Reform Act 2002 enables ASBO applications to be made by British Transport Police and Registered Social Landlords who are required to consult both the local authority and police when applying for such an Order. 1.7. The minimum duration for an order is two years. The orders are preventative and intended to be used to put an end to anti-social behaviour. 1.8. Orders should include a prohibition on inciting/encouraging the commission of specified anti-social acts within the meaning of the Crime and Disorder Act 1998, including, where appropriate minors in the household and by others over whom the person subject to the order has any control. Any prohibition must be negative. There is no power to compel an individual to do anything, only not to take particular actions. 1.9. A breach of an order without reasonable excuse is an arrestable oVence. In the case of an adult the maximum penalty on conviction in the Magistrates Court is six months imprisonment or a fine not exceeding £5,000 or both; at the Crown Court the maximum penalty is five years imprisonment or a fine or both. 2. Partner Agencies 2.1. The agencies which are members of the Community Safety Partnership are: — County Council (May include Social Services, Education, Housing, Highways etc). — Dyfed Powys Police — Mid and West Wales Fire Service — Local Health Board — Police Authority The above listed agencies are “Responsible Authorities” under the Crime & Disorder Act 1998. In some areas the partnership may also include the following: — Youth OVending Team — National Probation Service (Dyfed Powys Area) 2.2. See Appendix A. for the Anti-Social Behaviour Coordinators. Ev 218 Welsh Affairs Committee: Evidence
3. Purpose of Protocol 3.1. This protocol sets out agreed procedures for considering and making an application for both types of ASBOs, and applying for the variation and discharge of an ASBO. The protocol should be read in conjunction with Home OYce Guidance entitled “A Guide to Anti Social Behaviour Orders and Acceptable Behaviour Contracts” available on Home OYce website— 3.2. Under section 127 of the Magistrates’ Courts Act 1980, an application for a Stand Alone ASBO (by complaint) must be made within six months of the behaviour taking place, although earlier incidents may be used as background information to support a case. 4. Equality and Discrimination 4.1. An application for an ASBO will only be considered where it is necessary to protect individuals or families who are the targets of anti-social behaviour or whose lives or communities are being blighted by such behaviour. An application will not be made against people simply because they are diVerent from their neighbours or engage in activities which are diVerent, for example because they belong to another race or religion. Every eVort will be made to ensure complaints are not motivated by discrimination/victimisation on the grounds of race, disability, sex, sexual orientation, age, religion or creed. 5. Human Rights and ECHR Considerations 5.1. All parties to this protocol will comply with the Human Rights Act 1998 at all stages of the process, taking into account the need to protect the rights and freedoms of members of the community at large as well as those of the defendant. 5.2. OYcers in charge of cases will endeavour to ensure: — All procedural and substantive rights under the Human Rights Act are complied with; — Any interference with the defendant’s rights which is sought in the ASBO is necessary and in accordance with the provisions of the Human Rights Act; — The proposed terms of the ASBO are reasonable and proportionate to the anti-social behaviour in question; and — The ASBO being applied for is not in such terms that the defendant is bound to breach it, ie the prohibitions sought should be practicable and enforceable. 5.3 Care will be taken in assessing what is reasonable and proportionate to uphold people’s rights not to be disturbed by anti-social behaviour. 6. Information Sharing 6.1. In accordance with Section 115 of the Crime and Disorder Act 1998 and the provisions of the Data Protection Act, each partner agency will exchange information relating to complaints of anti-social behaviour and in doing so will appoint a Designated Information Liaison OYcer to provide such information in accordance with this Protocol. It is suggested that the Designated Information Liaison OYcers for the police and local authority should be the Section Police Inspector and Local Authority Community Safety Coordinator respectively. Contact details of Police Inspector Stations and ASBO/Community Safety Co-ordinators are listed at Appendix A.
6.2 Where an agency becomes aware of behaviour or patterns of behaviour, which might require an ASBO, it will immediately notify the ASBO Coordinator and Section Police Inspector in all cases. At Appendix B is an inter agency template Referral Form to assist the information sharing process. 7. Problem Solving Group 7.1 The administration of this protocol in operational terms will rest with the Group established within each county area to deal with issues surrounding Anti-Social Behaviour Orders. This group will hereafter referred to as the “ASBO Group“” and will be initiated by the ASBO Co-ordinator, who will on a case by case basis invite participation as appropriate. Also dependent on the circumstances agreement will be reached as to the lead agency who will have subsequent lead responsibility for arrangement of meetings, administrative support and informing the ASBO Co-ordinator of the outcome. 7.2 The purpose of the Group will be to: (a) Ensure that complaints have not been made as a result of malice or discrimination; (b) Decide which agency takes the lead, (c) Agree whether an ASBO is/is not appropriate and compile an action plan aimed at: (i) Supporting the victims and witnesses of anti-social behaviour; (ii) Preventing further anti-social behaviour. In cases where the anti social behaviour concerned impacts upon more than one local authority area, the ASBO Co-ordinator for the neighbouring area will need to be consulted and involved In the process. Welsh Affairs Committee: Evidence Ev 219
8. Recording of Complaints 8.1 Complaints of alleged anti-social behaviour can be made in person at any public oYce of each Partner Agency, or by telephone, fax or e-mail. 8.2 Upon receipt of such a complaint the receiving agency will undertake an assessment as to its final disposal which shall include consideration as to whether or not the matter need be referred to the ASBO Co-ordinator and/or Police Section Inspector. It is recognised that whilst not underestimating the value of information sharing in this context that agencies need to retain objectivity and an element of discretion as to case handling. 8.3 Whilst each agency will maintain their own records as determined by their organisational needs it is important that in order to maintain an “area-wide” overview that the ASBO Co-ordinator is in a position to report upon the local position. To this end it is imperative that all significant information as regards anti- social behaviour problems be routed to this individual eg details of any cases which have attracted actions to combat anti-social behaviour such as attempts to engage individuals on Acceptable Behaviour Contracts. The Anti-Social Behaviour Co-ordinator should be informed of any steps taken as set out in paragraph 1.3 of this document. 9. Administering of Complaints 9.1. Records of cases dealt with will be maintained by the ASBO Co-ordinator. 9.2. Each operational lead within agencies will monitor complaints of anti social behaviour and in cases deemed suitable seek to gather further information from partner agencies including discussion of a potential ASBO application. This will be particularly relevant in cases where repeat incidents of anti-social behaviour are being reported. It is emphasised that in cases where an ASBO is being considered the ASBO Co- ordinator must be informed. 10. Preparing For Stand Alone ASBO 10.1 The convened ASBO Group will reach agreement on which agency is most appropriately placed to take the teal on a case by case basis. In general terms however the lead agency pursuing an ASBO will be: (i) County Council where: The incidents take place on council housing estates or on local authority land. (ii) Dyfed-Powys Police where: The incidents occur in shopping precincts or other community areas; The individual is also subject to related criminal proceedings. 10.2 In all cases involving an adult the National Probation Service will be consulted and where appropriate will provide an assessment to the ASBO Group as soon as is reasonably practicable. (Normally within seven working days) 10.3 ln all cases where the individual is under the age of 18 years, the X Youth OVending Team will be consulted and where appropriate will provide an assessment to the ASBO Group as soon as is reasonably practicable. (Normally within seven working days). 10.4 Where the individual under consideration is a child or young person under the age of 18 years, the Youth OVending Team, the Social Services and Education Department will be represented on the ASBO Group when considering the case. 10.5 Where the individual is a child who is subject to a local authority Care Order or accommodated by the local authority, the Director of Social Services will either be represented on the ASBO Group or consulted by the Youth OVending Team in advance of any discussion or decision. 10.6 Where the individual is considered to be vulnerable (by reason of age or disability) or to have significant social or health problems (drugs, alcohol misuse or mental health), the Social Services and Local Health Board will be consulted. The Group pay particular attention to the likely ability of the individual to understand the terms of an ASBO. 10.7 Where harassment is of a racial or homophobic nature, the Group will give due consideration to consultation with relevant representative group as appropriate. 10.8 Where the accommodation in which either the individual or the victim is residing is that of a Registered Social Landlord, then the Registered Social Landlord will be represented on the ASBO Group from the outset. 10.9 Related Criminal Proceedings Where the individual is also the subject of related criminal proceedings, or is appealing against conviction, the decision to apply for an ASBO may be frozen to let the criminal proceedings take their course. However, where there has been no conviction as yet, and the ASBO Group considers an ASBO to be a more eVective means of tackling the anti-social behaviour , it may decide to proceed with the application; following consultation and agreement with the Crown Prosecution Service (or relevant prosecuting agency). The Senior Crown Prosecuting Solicitor will chair a group of nominated CPS Lawyers to deal with ASBO issues and implementation and will liaise on a quarterly basis with the Police regarding ASBO issues. Ev 220 Welsh Affairs Committee: Evidence
11. Evidence in Support of an ASBO Application
11.1 The lead agency will be required to prove its case under civil rules of evidence and according to civil standards of proof. However, the Court will need to be satisfied beyond reasonable doubt (ie to criminal standard of proof) that the defendant has acted in an anti-social manner ie in a manner which caused or was likely to cause harassment, alarm or distress to one or more persons not of the same household as himself/herself.
In eVect this means that the criminal standard of proof applies to past acts of anti-social behaviour alleged against the defendant.
11.2 Magistrates are used to dealing with the expression “harassment, alarm or distress” as this is contained in Section 5 Public Order Act 1986 and the expression “likely to cause” means that someone other than the victim of the behaviour can give evidence of its occurrence.
11.3 This is intended specifically to validate the use of professional witnesses to provide evidence to the Court where victims feel unable to come forward, eg for fear of reprisals or intimidation. Professional witnesses should be able to give evidence from their own direct observations of the behaviour.
11.4 An application must be made within six months of the behaviour giving rise to the complaint.
The lead agency will note that owing to the Rehabilitation of OVenders Act 1974 evidence of spent convictions are inadmissible in ASBO application proceedings (unlike applications for Sex OVender Orders)
12. Applying for Stand Alone ASBO
12.1 Application for an ASBO is by way of a complaint to the Magistrates Court acting in a civil capacity.
12.2 The person in charge of the case will be responsible for preparing an ASBO application. In the event of the Police being the lead agency the OYcer tasked with preparing the case will liaise with the Force Litigation OYcer. Similarly the local authority if taking the lead will consult with their legal department. The file will contain: — Case summary — Certificate of consultation (example at Annex G) — Evidence in support of the application — Proposed terms of the ASBO being applied for — ASBO application form — Summons form — Certificate of service — Video/CCTV Evidence.
12.3 The case summary will include: — Details of the individual or individual members of a group or family (including any previous convictions) — Outline of the incidents involved — Welfare issues relating to the defendant, demonstrating that there has been consultation between appropriate agencies — Adequate and appropriate information about the defendant and his or her family circumstances — Evidence that consideration has been given to ensure that the defendant has not been victimised or discriminated against on the grounds of race, sex, disability, creed, religion, sexual orientation or other grounds. — Evidence, where available, of attempts at mediation and of warnings, Acceptable Behaviour Contracts etc.
Attached at Appendix E is an ASBO Application/“File Check List” to assist preparation of case papers.
Also at Appendix F is a specimen application for an ASBO. Welsh Affairs Committee: Evidence Ev 221
12.4 Proposed terms of the ASBO The application will include: — Details of the prohibitions applied for: (i) Must relate to actions already committed by the defendant and which the applicant thinks will be committed again if no ASBO is granted (ii) Must be reasonable and proportionate (iii) Must be realistically practical (iv) Must be clear, concise and accurate (v) Must specify time and place, using Ordnance Survey maps to show prohibited areas (vi) Must not be mandatory—ie worded to compel the defendant to do specific actions (vii) Need not be confined to acts which are already criminal, but may also prohibit actions which, although not criminal themselves, would be necessary precursors to a criminal act—eg a prohibition on entering a shop, rather than shoplifting. — The application will also include details of the duration of the ASBO. 12.5 Summons Procedures for Stand Alone ASBO The person in charge of the case will arrange for a summons to be completed, with a copy retained on the application file, and for the defendant to be served with; — The summons — A copy of the completed ASBO application — A copy of the certificate of consultation (Appendix G) — Guidance on how the defendant may obtain legal advice and representation — Any notice of hearsay evidence — Such evidence in support of the application as agreed with the lead agency’s solicitor — A formal warning to the defendant that it is a common law oVence to pervert the course of justice, and that witness intimidation is liable to lead to prosecution. Wherever possible the summons should be served in person, or served by first class post to the defendant’s last known address. The certificate of service will be retained on file. Where the defendant is a child or young person, a person with parental responsibility must also receive a copy of the summons. 13. Anti-Social Behaviour Orders—Guidance for Requests for Imposition following sentence For Criminal Conviction Anti-Social Behaviour Orders (ASBOs) were introduced by virtue of the Crime and Disorder Act 1998. The Police Reform Act 2002 strengthened the provisions and made it possible for a criminal court to impose such an Order at the same time as passing sentence for a criminal conviction. 13.1 This guidance includes procedures agreed between the Crown Prosecution Service and Dyfed Powys Police on how such cases will be handled. It is stressed that the Crown Prosecution Service will not normally be involved in full applications for Anti-Social Behaviour Orders. However upon conviction and sentence for a relevant oVence the CPS representative will apply to the courts to impose an ASBO on application by the Police. Relevant oVence % an oVence committed after the coming into force of section 64 Police Reform Act 2002 If the court considers that the oVender has acted since the commencement date in an anti social manner ie a manner that caused or was likely to cause harassment, alarm or distress to one or more persons not of the same household; AND that an Order is necessary to protect persons in any place in England and Wales from further anti social acts by the oVender; it may make an order prohibiting that oVender from doing anything described within the Order . 13.2 Following a conviction in criminal proceedings whether they be in the Magistrates Court, Crown Court or Youth Court—an Order may be imposed over and above any sentence for the criminal oVences proven. N.B. It should be noted that the imposition of an ASBO is not part of the sentence that the oVender will have received for the criminal oVence and such an Order can ONLY be made in addition to a sentence or conditional discharge. 13.3 The court may make such an Order following conviction either on its own initiative or an Order can be requested by the Police (or Local Authority) who should be in a position to make representations to the court in support of such a request. (An Order contains prohibitions NOT penalties). Ev 222 Welsh Affairs Committee: Evidence
13.4 In order that the Prosecutor is fully informed as regards the potential for the court to impose an ASBO it is essential that the criminal case papers are supplemented by relevant additional material to support such a request. — The material that can practicably be placed before the Court on a sentence application is necessarily eVected by time pressures. — The ASBO application will be heard as part of the sentencing exercise. Contentious material, outside the circumstances of the criminal oVence and antecedents, may lead to a reluctance to make an Order. — The refusal to grant an Order, when reference has been made to such other material, may prejudice a separate application for an Order based on that and other material. — Material based upon the circumstances of the oVence and antecedents is stratighforward and unchallengeable. — At this stage, there is seen to be little additional merit in introducing hearsay evidence in the form of Storm messages. — The material and support of an ASBO may be based upon: (a) The facts of the criminal case. (b) The Defendant’s antecedents. (c) Other material. — Except in exceptional circumstances, the material to support a sentence ASBO will be based solely upon the circumstances of the case and detailed antecedents. — If , in exceptional circumstances, it is sought to introduce other material for a sentence ASBO, then there should firstly be liaison between the authorising OYcer and the CPS Lawyer. 13.5 When it is requested that a court consider the imposition of an Anti-Social Behaviour Order the Police/CPS may propose that certain prohibitions be incorporated within such an Order. Points to be taken into account when considering prohibitions may include:- — Prohibitions to combat the range of Anti Social Acts committed by the defendant — Prohibitions necessary for protecting person(s) within a defined area from the anti-social acts of the defendant — Reasonableness/proportionality — Justifiable/practical — Are the prohibitions clear, concise and easy to understand? — Are the prohibitions specific when referring to matters of time? — Are the prohibitions specific when referring to exclusions from areas ie clearly identifiable locations and boundaries? — Are the prohibitions worded in terms which make it easy to determine and prosecute any breaches? — Should contain a prohibition on inciting/encouraging others to engage in anti social behaviour? — Does the prohibition list serve to protect all people who are in the area covered by the Order from the behaviour? (as well as specific individuals) — Do the suggested prohibitions cover acts that are anti-social in themselves and those that are precursors to a criminal act? eg a prohibition on entering a shopping centre rather than on shoplifting — May include a general condition prohibiting behaviour which is likely to cause harassment, alarm and distress — May include a prohibition from approaching or harassing any witnesses named in the court proceedings 13.6 In Order to highlight the potential imposition of an ASBO following sentence for criminal matters it is imperative that the case papers are clearly endorsed to the eVect that an Order is being requested. 14. Procedures — Any request by the Police for an ASBO sentence application should be authorised by the Sectional Inspector. — The need for an ASBO will have to be identified by the Police upon charge. — The Narey/remand papers should be accompanied by an ASBO submission form (confidential) which should include details of the prohibitions required and why; the evidence relied upon with full antecedents attached; with a map showing the geographical area concerned attached to the form; endorsement of the Inspector’s autthorisation. — The MG6 form will also be ticked with the request for an ASBO application. Welsh Affairs Committee: Evidence Ev 223
— The antecedent package, which will accompany the ASBO form, should replicate the Crown Court antecedent style with its narrative stressing anti-social elements. — The time pressures have been referred to the above. To cater for the competing time pressures, the following is recommended: 14.1 Narey Files—unconditional/conditional bail (non PYO)—the Defendant will be bailed to the next Narey Court after fourteen days. The Narey/ASBO package will be submitted to CPS within seven days of charge. 14.2 Remand Defendants—the ASBO form—together with a blank application form and blank order— will accompany the remand papers. A full Court PNC print out should also be included. If the case is adjourned, the normal procedure will then apply. If the Defendant is sentenced on the first remand day, the CPS will consider whether it is appropriate and practicable to proceed with the application on that day and, if so, will prepare the application and order and serve the Defence and Court. 14.3 PYOs—the normal Narey bail periods will apply. 14.4 The authorising Inspector will e-mail Unit Heads giving early notice of any pending ASBO Narey submission, he will also notify the ASBO Co-ordinator. This will apply in ALL cases. 14.5 The CPS will prepare the application and draft Order and serve these documents, with a letter giving notice of the intention to apply for an ASBO upon sentence, upon the Defence and Court. The papers will be served upon the Defence with Advance Disclosure. The Court documents also will be served at the same time. Copies of the application and draft Order will be supplied to the authorising Inspector. There will be liaison with that Inspector if major amendments are made to the prohibitions or about decisions not to apply. Each CPS Unit—including the Trials Unit—will nominate a Lawyer (Lawyers) to deal with ASBO applications. The Crown Prosecution Service will seek to have such nominated Lawyers dealing with hearing before the Magistrates’ Court. Can the same Lawyer deal with a criminal matter as well as the breach of ASBO in such hearings. 15. Witnesses Attending Court 15.1 The person in charge of the case will inform the case solicitor of the availability of witnesses and liaise with the Justices Clerk on whether the witnesses will be required in court. 16. Procedure on Hearing an Application for both types of Order 16.1 The application for an ASBO is by complaint to the Magistrate’s Court acting in its civil capacity, whether or not the defendant is 18 or over. 16.2 Where the defendant is under 18, the question of reporting restrictions is for the court, the lead agency may need to resist a call from the defence for such restrictions if the eVectiveness of the ASBO will largely depend on a wider community knowing the details. 16.3 Where an ASBO is granted, the Magistrates’ Court Clerk will undertake to serve a copy of the ASBO on the defendant prior to his or her departure from court. Where the defendant is under 18 the court may also consider making a parenting order and a copy of the ASBO will be given on the day of the hearing to the lead agency and Youth OVending Team. 16.4 The CPS will liaise with the Magistrates’ Court regarding court arrangements for post conviction ASBOs. With Youth cases issues regarding YOT liaison need to be resolved. 17. Appeal Against both types of Order 17.1 An appeal against the making of an ASBO is to the Crown Court. The agency, which brought the application, will take charge of defending any appeal. 17.2 A brief package will be prepared in order that counsel can be comprehensively instructed regarding ASBO applications in any Crown Court proceedings. 18. Post-Order Procedure 18.1 Details of orders granted should be sent to the ASBO Co-ordinator who will ensure that partner agencies are also informed. The Head of Community Safety, Dyfed Powys Police will maintain a force-wide list of orders granted (which will include unsuccessful applications) which will be shared with ASBO Co- ordinators as appropriate. 18.2 Where the lead agency is not the police, a court copy of the ASBO will be forwarded immediately to the police. 18.3 It is imperative that the lead agency also informs all partner agencies, witnesses, victims and ASBO Co-ordinator, so that all breaches can be reported and acted upon. Ev 224 Welsh Affairs Committee: Evidence
18.4 The Head of Community Safety, Dyfed-Powys Police will in conjunction with staV from the Criminal Justice Unit ensure that details of orders are inputted onto the Police National Computer—this will apply regardless of whether or not the police are the lead agency involved. 18.5 Where appropriate, the Youth OVending Team will ensure the defendant understands the seriousness of the ASBO and arrange appropriate support programmes. Process flowcharts summarising the relevant steps to be taken in considering and applying for both types of applications is attached at Appendices C and D. 19. Breaches of an ASBO 19.1 Information on a breach of an ASBO will be referred to the Police and ASBO co-ordinator. 19.2 Breach of an ASBO is a criminal oVence and the police will be the lead agency in its investigation and prosecution. 19.3 Details/copies of breaches of behaviour contract could be used when the breach is incorporated in the circumstances of the criminal oVence. 19.4 Where the defendant is under 18, the police may wish to consult the Youth OVending Team on whether to prosecute. In the case of a first oVender, it may be appropriate to consider a final warning. 20. Prosecution of ASBO Breaches 20.1 Breaches can be prosecuted either by the CPS or the Local Authority. The CPS would wish to prosecute any breach in respect of a sentence order and would, of course, prosecute a breach of any other order if so requested by the Police. Breach of an order is a criminal oVence (therefore the criminal standard of proof applies) which is arrestable and recordable. (i) Issues regarding responsibility for prosecuting breaches of ASBO Orders need to be resolved. The position needs to be clarified with the Local Authority. (ii) Issues regarding liaison with the ASBO co-ordinator need to be resolved. 21. Variations and Discharge of an ASBO 21.1 Variation and discharge of an order are by way of a complaint to the court. 21.2 The original lead agency or the defendant can make the application for variation or discharge. An order cannot be discharged within two years of its service without the agreement of both parties. An order made on conviction cannot be discharged before the end of two years. In cases where it is considered necessary to consider varying prohibitions or discharging an order then the applicant will need to consult with the ASBO Group prior to pursuing such a course. 21.3 The Magistrates’ Court Clerk will send details of the variation or discharge of any ASBO to the Divisional Commander, Division, Dyfed-Powys Police, and to the ASBO Co-ordinator within 24 hours. Each agency will then update their records. 22. Review 22.1 The eVectiveness of this protocol will be reviewed on an on-going basis through dialogue between the ASBO Co-ordinators, Head of Community Safety Dyfed-Powys Police and CPS. These individuals will meet annually or otherwise as appropriate in order to undertake this function.
3. Written evidence from the North Wales Police
Executive Summary
Introduction North Wales Police welcomes the opportunity to contribute to the Welsh AVairs Committee inquiry into the police service, crime and anti-social behaviour in Wales. We believe there is much to be proud of and optimistic about so far as policing in the region is concerned. This report will detail the eVorts currently in train within North Wales to make a significant and lasting improvement in civil well-being. This written submission will be supplemented by oral evidence to the Committee by Mr Richard Brunstrom, Chief Constable on 3 November 2004.
Home AVairs Committee—Inquiry into anti-social behaviour The Welsh AVairs Committee inquiry is concurrent to a Home AVairs Committee Inquiry into anti-social behaviour. The Association of Chief Police OYcers (England, Wales & Northern Ireland) has recently made to the Committee a submission to which North Wales Police wholly subscribes. The local and national submissions should therefore be read in conjunction. Welsh Affairs Committee: Evidence Ev 225
Anti-social behaviour in North Wales The sub-culture of criminal and disruptive behaviour, in certain north Wales communities, is a continued cause of public concern. Many people feel intimidated by overt and perceived misbehaviour in public spaces. Others are frustrated by the lack of respect for law, individual safety and the environment. North Wales Police recognises the concerns of the public. Some two years ago, the chief oYcers resolved to harness force resources in a way that would begin to deal with this “Cinderella” of policing imperatives. Research from the United States and elsewhere was compelling in identifying the overall benefits of tackling low-level quality of life issues. Implementation of a “Zero Tolerance” strategy was considered. However, it was felt a more local resonance was needed. Furthermore, the chief oYcers are of the belief that a wholly intolerant society is inherently unhealthy. The phrase “Dyna Ddigon” appeared to encapsulate our vision; a firm, parental rebuke to inappropriate behaviour, but a rebuke which also acknowledged further responsibilities.
Dyna Ddigon “Dyna Ddigon” combines a philosophy of community policing with best practice from the tactics of a zero tolerance engagement. It is now well embedded within the force and is widely recognised by the public. It has given managers the opportunity to exercise determination and innovation in solving a range of social problems. “Dyna Ddigon” has a number of aims, supporting the vision of a safer north Wales: 1. To galvanise public distaste for the “yob culture”. 2. To inculcate abhorrence of petty crime & anti-social behaviour. 3. To make public areas welcoming and safe at all times of the day. 4. To support other public bodies in promoting civic pride. 5. To protect young people from conflict and confrontation. “Dyna Ddigon” is a riposte to the behaviours that adversely aVect the quality of life in our communities. It describes a shared responsibility for challenging attitudes and acts that demean and damage. It seeks to promote and support a culture of respect for individuals and their property, both private and shared. It is concerned with the preservation of the best of north Wales and the discouragement of the worst. Richard Brunstrom Chief Constable
The Prevention & Detection of Crime: Our Present Position North Wales Police is enjoying continued increases in performance. For the fiscal year 2003 to 2004, the all crime detection rate rose from 29% to 32.5%. There were 478 less incidents of violent crime across the force area. Domestic burglaries were reduced by 22.9%, with a detection rate of 27.9% being achieved. Over 4,000 more oVenders were arrested, an increase of 18%. When viewed in a national context, such levels of performance are noteworthy. The situation has not changed, the most recently available data28 indicating that: — All crime is down 10%, with a detection rate standing at 39.8%. — Domestic burglaries are down 41%, with a detection rate of 35%. — Vehicle crime is down 25%, with an increase in the detection rate to 18.8% (from 8.5% ). — Our detection rate for violent crime is 76.1%, up from 60.1%. — The force is achieving all of its detection targets. — There has been a significant decrease in the number of residents perceiving disorder as high, from 23% to 13%. 29 Despite this, it is generally accepted that public fear of crime is high throughout England and Wales, a situation that has perpetuated due to the perceived lack of order in public areas, and an apparent unwillingness for agencies to address local issues. For this situation to be reversed and confidence to be restored, we must all be willing to engage communities, identify their needs and demonstrate our accountability by responding in a meaningful way. Our Policing Plan 2004–2005 contains the following national priorities:
28 Force Management Information Dept: Period 1.04.04 to 29.09.04. 29 Police Performance Monitoring 2003–2004 (Home OYce). Ev 226 Welsh Affairs Committee: Evidence
— Providing a citizen focused service to the public, especially victims and witnesses, which responds to the needs of individuals and communities and inspires confidence in the police, particularly amongst minority ethnic communities. — Tackling anti-social behaviour and disorder. — Continuing to reduce burglary, vehicle crime, robbery and drug related crime in line with the Government’s Public Service Agreement targets. — Combating serious and organised crime, both across and within force boundaries. — Narrowing the justice gap by increasing the number of oVences brought to justice. The following local priorities have also been set: — Increasing the time that front line oYcers spend within their communities. — In partnership with other agencies, target and reduce the violence and abuse suVered by vulnerable people, in particular within the areas of child protection, domestic violence and hate crime. — Other areas of police work that we will be focusing on are roads policing, business & retail crime, football related disorder and animal rights extremists. Anti-social behaviour is nevertheless consistently the issue that remains at the top of the agenda for many communities in North Wales. Our on-going response to those concerns is described on the pages that follow.
ANTI-SOCIAL BEHAVIOUR AND THE LEGISLATION THAT MATTERS The term “anti-social behaviour” has diVerent meanings according to the context in which it is used. The Government White Paper entitled Respect & Responsibility—Taking a Stand against Anti-Social Behaviour (12 March 2003) provided the following guidance: “Anti-social behaviour” means diVerent things to diVerent people—noisy neighbours who ruin the lives of those around them, “crack houses” run by drug dealers, drunken “yobs” taking over town centres, people begging by cash-points, abandoned cars, litter and graYti, young people using airguns to threaten and intimidate, or people using fireworks as weapons. While most crime may be generally categorised as anti-social behaviour, the converse is not true. Behaviour is not automatically criminal just because it is anti-social, although the White Paper did go on to say: As a society we have rules and standards of behaviour. For the minority who flout these rules and standards, we must take action to enforce them. During his speech of the 7 July 2003 (Criminal Justice Reform—Essential & Urgent), the Prime Minister said “Anti-social behaviour is as corrosive to community life as more serious crime. It is petty crime and public nuisance that causes real distress and anguish to people: vandalism, graYti, aggression and threats”. It is evident that the Government wishes to deal robustly with anti-social behaviour and pass legislation that it perceives is focussed on enabling the police and local authorities to have a wider, more flexible range of powers to meet their existing responsibilities and respond to the needs of their local communities. The Government is eVectively calling for a cultural change, for communities to become more willing to take a stand against anti-social behaviour.
The Legal Definition: The legal term for “anti-social behaviour” is not strictly defined; however the Crime & Disorder Act 1998 describes the conditions that must be met to permit certain action against oVenders. One of the conditions is to show that “a relevant person acted in a manner that caused, or was likely to cause harassment, alarm or distress to one or more people who are not of the same household as the relevant person”.
The Evolution of Legislation There are many diVerent elements of present legislation that can be used to deal with instances of anti- social behaviour that occur, with varying degrees of seriousness. These include: — Wounding or Grievous Bodily Harm (OVences Against the Person Act 1861, s.20). — Actual Bodily Harm (OVences Against the Person Act 1861, s.47). — Common Assault (Criminal Justice Act 1988, s.39). — Basic instances of criminal damage (Criminal Damage Act 171, s.1 (1)). — Fear or provocation of violence (Public Order Act 1986, s.4). — Intentional harassment, alarm or distress (Public Order Act 1986, s.4A). — Causing harassment, alarm or distress (Public Order Act 1986, s.5). — Harassment (Protection from Harassment Act 1977, s.2). — Putting in fear of violence (Protection from Harassment Act 1977, s.4). Welsh Affairs Committee: Evidence Ev 227
(All of the above may be “racially or religiously aggravated” under s. 28 of the Crime & Disorder Act 1998). — Public nuisance (Common Law). — Throwing fireworks into a highway or street (Explosives Act 1875, s.80). — Exceeding noise level after service of warning notice (Noise Act 1996, s.4 (1). — Leaving litter (Environmental Protection Act 1990, s.87 (1). — Threats to Kill (OVences Against the Person Act 1861, s.16). — Drunk and Disorderly (Criminal Justice Act 1967, s.91 (1)). — Riot (Public Order Act 1986, s.1). — Violent Disorder (Public Order Act 1986, s.2). —AVray (Public Order Act 1986, s.3). This is certainly not an exhaustive list, as a comprehensive number of other oVences are also applicable, including those falling under legislation applying to activities such as the usage of firearms & vehicles, and sporting events. Despite this, additional legislation has now been introduced that provides a greater number of methods for dealing with anti-social behaviour. For many years the courts have exercised penal sanctions against people who disobey court orders. The use of criminal law to provide sanctions for disobedience to court orders is a contemporary development. The Protection from Harassment Act of 1997 had the eVect of providing that certain courses of conduct would be both a criminal oVence and the subject of a claim in civil proceedings. Moreover, breach of a Non- harassment Order made in the civil court would itself be a criminal oVence as well as contempt. The criminal courts were also given the power to make Restraining Orders, breach of which would amount to a further criminal oVence. In both cases, the Order could prohibit a person from doing something which would not otherwise be a criminal oVence. These anti-harassment provisions have formed the model for the Anti-Social Behaviour Order (ASBO) introduced by the Crime & Disorder Act 1998. As well as the Crime & Disorder Act 1998, other relevant items of legislation that deal with anti-social behaviour are the Criminal Justice and Police Act 2001 and the Police Reform Act 2002. The Anti-Social Behaviour Bill was passed on the 24 June 2003. Like its counterparts, it has significant implications for the Police Service and other agencies.
The Crime and Disorder Act 1998 The Government rightly considered that anti-social behaviour which caused harassment or intimidated neighbours, or a community in general, to be unacceptable. It therefore introduced the Anti-Social Behaviour Order (ASBO) among the measures included in its Crime and Disorder Act 1998. Other measures included:— — Crime and Disorder Strategies — Parenting Orders — Local Child Curfew Schemes — Reparation Orders — Action Plan Orders Section 5 of the Act placed on local authorities and the police a joint responsibility for the formulation of crime and disorder reduction strategies in each district, borough or unitary local authority area in England and Wales. The Act placed a legal obligation upon police authorities, probation committees and health authorities to co-operate fully in this work. It also gave the Home Secretary power to extend that obligation by order of Parliament to any other person or body he (or she) chooses; and by similar means to require local authorities and the police to ensure that other specified people or organisations are invited to contribute to the process. These latter provisions were intended to ensure that there was adequate scope for input by the local business and voluntary sectors and others. There was also a requirement for local authorities and the police to draw up and implement a strategy for reducing crime and disorder in their area. The process involved consisted of a review of the level of crime and disorder (the Crime and Disorder Audit), followed by analysis and consultation with the local community. A strategy was then to be developed, including published targets, and views obtained on it. Performance information relating to the achievement of objectives was to be disseminated. The strategies were expected to run for three years and subject to review throughout that time. Ev 228 Welsh Affairs Committee: Evidence
The Criminal Justice and Police Act 2001 Following consultation, the Criminal Justice and Police Act 2001 introduced measures that now enable constables to issue Penalty Notices to a person aged 18 or over, if the oYcer believes that a “penalty oVence” has been committed. A penalty notice oVers an oVender the opportunity, by paying a penalty, to discharge any liability to be convicted of the oVence. A pilot scheme was commenced in five locations in September 2002, in which North Wales Police participated through the Rhyl Priority Policing Area initiative. The oVences that are presently listed as “penalty oVences” are: — Being drunk in a highway, other public place or licensed premises. — Throwing fireworks in a thoroughfare. — Knowingly giving a false alarm to a fire brigade. — Trespassing on a railway. — Throwing stones etc. at trains or other things on railways. — Buying or attempting to buy alcohol for consumption in a bar in licensed premises by a person under 18. — Disorderly behaviour while drunk in a public place. — Wasting police time or giving false report. — Using public telecommunications system for sending messages known to be false in order to cause annoyance. — Behaviour likely to cause harassment, alarm or distress. — Consumption of alcohol in a designated public place. This list is about to be significantly expanded.
The Police Reform Act 2002 The Police Reform Act 2002 provided for a Chief OYcer of police to accredit non-police employees involved with the provision of community safety with powers to undertake certain functions to support the police:
Police Community Support OYcers (PCSOs) The role of the Police Community Support OYcer (or PCSO) was created under the Act. They are Police Authority employed support staV who can perform a high visibility, patrolling role, with the am of providing reassurance to the communities they serve.
They are intended to complement the work of police oYcers by focusing predominantly on lower level crime, disorder and anti-social behaviour. They are seen as an important weapon in the Government’s drive to crack down on anti-social behaviour. The Act allows Chief OYcers of police to designate PCSOs with limited enforcement powers to enable them to tackle such issues eVectively. Whereas Neighbourhood Wardens and Street Wardens are generally managed by local authorities, PCSOs will be Police Authority employees, under the direction and control of the Chief OYcer. Although there is no statutory requirement to consult on the introduction of PCSOs, it is seen as important that consultation with the local community does take place so that this informs any decisions about how PCSOs might be deployed and ensures that they are welcomed and supported where they are introduced. Police forces are permitted to appoint PCSOs at any time of their choosing, on the proviso that the necessary funds are allocated from their own budgets, or from Crime and Disorder Reduction Partnership agencies. PCSOs will only possess the powers that are specifically conferred on them by the Chief OYcer of their force. PCSO powers can only be exercised in the force area of the designating Chief OYcer and when the PCSO is on duty in uniform. The summary of powers appears below: — Issue of Fixed Penalty Tickets for variety of low level oVences; — Power to request name and address for some low level oVences and anti-social behaviour; — Power to detain person for 30 mins pending arrival of PC or accompany that person to police station with their consent; Welsh Affairs Committee: Evidence Ev 229
— Power to use reasonable force to detain a person or stop them making oV; — Power to seize alcohol from young people and in alcohol designated areas, and to stop persons drinking in such areas; — Power to seize cigarettes from young people; — Power of entry to save life or limb or prevent serious damage to property; — Power to seize vehicles used to cause alarm or distress; — Power to require removal of abandoned vehicles; — Power to maintain and enforce cordons under terrorist provisions; — Power to stop and search vehicles and things carried by driver/passenger under terrorism powers and things carried by pedestrians; — Power to regulate traYc for the purpose of escorting abnormal loads; and — Power to stop a vehicle for emissions testing. Note that some of these detention powers are only available in pilot police areas until the 21 December 2004, when decision will be taken to extend them or not. There are three oVences against designated staV, which apply to PCSOs. The Police Reform Act 2002 section 46 sets out the oVences in detail. They are: — Assaulting a designated person in the execution of their duty; — Resisting or wilfully obstructing a designated person in the execution of their duty; and — Impersonating a designated person.
Accredited Wardens (Under a Community Safety Accreditation Scheme) As a result of the Police Reform Act 2002, Chief Constables of all 43 forces in England and Wales, and the British Transport Police, are now able to establish a system of accreditation for the purposes of contributing to community safety and security. There are a large number of people contributing to safer communities, including neighbourhood and street wardens, and private security staV. It is perceived that benefit can be derived from the “extended police family” of assorted community patrols being brought together under one local scheme, co-ordinated by the police. The Accredited Community Safety OYcer scheme has therefore been introduced. The powers Accredited Community Safety OYcers will possess are more limited than those of Police Community Safety OYcers. The measures came into force on the 1 April 2003. Accredited persons can issue fixed penalty notices for a variety of oVences. They also have the same powers regarding the confiscation of alcohol and tobacco as PCSOs. North Wales Police was the first Police force in England and Wales to establish a Community Safety Accreditation Scheme (CSAS). The force has provided guidance to a number of other forces looking to establish their own CSAS. North Wales Police are currently in further negotiation with a number of statutory and voluntary organisations that would like to take advantage of the CSAS.
The Anti-social Behaviour Act 2003 The Anti-social Behaviour Bill was published on the 27 March 2003 and passed on the 24 June of that year. The new Act has been designed to ensure the police have the appropriate powers to deal with anti-social behaviour. It has introduced new powers for tackling the problem of premises used for drug dealing and for dispersing intimidating groups. It allows the police to deal with the nuisance caused by young people with air weapons and has banned the possession of imitation firearms and air guns in public without good reason. It has additionally addressed the danger of air weapons that can easily be converted to be used with conventional ammunition. Powers for local authorities and their partners to deal with anti-social behaviour in local communities have also been provided. There is an extension of landlord’s powers to deal with such problems, including the use of injunctions and demoted tenancies. It includes provisions aimed at dealing with noise nuisance. The Act has developed the sanctions that are available for use against oVenders and extended the range of agencies that can use them. It now provides a means for schools, local authorities and youth oVending teams to work with the parents of children who are behaving anti-socially and creates the mechanisms for enforcing this work. The Act extends local authorities’ powers in relation to cleaning land. It also extends the measures that can be taken to remove graYti, and restricts the sale of aerosol paint to children. It amends existing police powers to place conditions on public assemblies and to deal with unauthorised encampments. Ev 230 Welsh Affairs Committee: Evidence
The Act is in nine Parts. Part 1 creates new powers to close premises that are being used for drug dealing or use. Part 2 extends powers for tackling anti-social behaviour in social housing. Part 3 develops mechanisms for enforcing parental responsibility for children who behave in an anti-social way in school or in the community. Part 4 creates a new power for the police to designate areas where they can disperse groups causing intimidation. Part 5 develops the existing sanctions of anti-social behaviour orders, fixed penalty notices and supervision orders. Part 6 deals with the misuse of air weapons. Part 7 extends powers for local authorities to clean the environment. Part 8 amends police powers for dealing with public assemblies and trespassers. Part 9 contains general provisions. The following measures were to be commenced separately by the National Assembly for Wales: — Housing (Clauses 12 to 17); — Parenting contracts and orders related to truancy and exclusion from school (Clauses 19 to 22 and clause 24 (1)); — Closure of Noisy Premises (Clauses 46 and 47); — Night noise (Clause 48); —GraYti and fly-posting (Clauses 49 to 51 and 53); and — Waste and litter (Clauses 57 and 58). Clause 23 (penalty notices for parents in cases of truancy) does not apply to Wales unless the National Assembly for Wales makes an order under this clause. The Licensing Act 2003 establishes a single integrated scheme for licensing premises, which are used for the supply of alcohol, to provide regulated entertainment or to provide late night refreshment. Permission to carry on some or all of these licensable activities will now be contained in a single licence—the premises licence, and the Act has accordingly removed some of the bureaucracy involved. The Act also provides a balanced package of freedoms and safeguards. It will have an important role in the prevention of crime and disorder and public nuisance. The Act provides certain rights of appeal to the magistrates’ court for those who feel aggrieved by decisions made by licensing authorities. A right of appeal is not only aVorded to applicants where their application has been rejected, or has been granted subject to conditions, but is also aVorded to those who made relevant representations in relation to an application; for example, a local resident has a right to appeal against the decision of the licensing authority to grant a premises licence if they made relevant representations as an interested party in relation to the application where he considers the application should not have been granted. The Act marks the end of the existing licensing regimes. Key measures contained in the Act include: — Flexible opening hours for premises, with the potential for up to 24 hour opening, seven days a week, subject to consideration of the impact on local residents, businesses and the expert opinion of a range of authorities in relation to the licensing objectives. It is intended that this will help to minimise public disorder resulting from fixed closing times; — A single premises licence which can permit premises to be used to supply alcohol, to provide regulated entertainment and to provide refreshment late at night. This brings together the six existing licensing regimes (alcohol, public entertainment, cinemas, theatres, late night refreshment house and night cafes); — A new system of personal licences relating to the supply of alcohol which will enable holders to move more freely between premises where a premises licence is in force; — Premises licences to be issued by licensing authorities after notification to and scrutiny of all applications by the police and other responsible authorities. Those living in and businesses operating in the vicinity of the premises will also be able to make representations on applications; — Personal licences to be issued by licensing authorities after scrutiny by the police where the applicant has been convicted of certain oVences. The Fireworks Regulations 2004, made under the Fireworks Act 2003, have introduced a comprehensive package of measures including: — Making it illegal to possess adult fireworks in a public place by anyone under the age of 18; — Making it illegal to possess professional display fireworks by anyone other than a fireworks professional; — Requiring suppliers that sell fireworks all year round to be licensed—having the eVect of containing the fireworks season to the traditional sale/usage periods since 1975; — The creation of a curfew on firework use—between 11 pm and 7 am (in line with the Noise Act 1996), with the exception of certain nights where the curfew will begin at diVerent times. This regulation is set to come into force on 1 January 2005; — Making it illegal to supply adult fireworks to anyone under the age of 18. Welsh Affairs Committee: Evidence Ev 231
From April 2004, the oVence of letting fireworks oV in the street (under section 80 of the Explosives Act 1875) is also punishable by a fixed penalty notice—attracting the upper tier of £80. From 11 October 2004, police will also have the power to issue fixed penalty notices to those under the age of 18 caught possessing fireworks in a public place or those breaching the 11 pm curfew time. Again, the oVence attracts the upper tier of £80.
Main influences on our approach The progressive introduction of new legislation has provided clear indications as to the intentions of government. The concept of the extended police family and the growing emphasis on the reassurance elements of community policing—environmental issues, the protection of communities and locally driven enforcement—have also provided guidance as to the way forward. In North Wales, the need to actively address the continued expressions of concern by members of communities about anti-social behaviour was identified some time ago. This was consistently the issue of greatest local concern. Despite notable crime reductions in priority areas (such as domestic burglary, vehicle crime and violent crime) public perceptions of safety were being unduly aVected by the lack of apparent activity of various agencies in dealing with quality of life issues. March 2003 saw the publication of the government White Paper entitled “Respect and Responsibility— Taking a Stand against Anti-social Behaviour.” The way forward was being clearly defined, with plans being formulated at ACPO level within North Wales Police for a force-wide initiative. In May 2003, the Deputy Chief Constable, Clive Wolfendale, presented a paper to the North Wales Police Authority. This described the “Dyna Ddigon” (or “That’s Enough!”) initiative that the force intended on introducing, to challenge anti-social behaviour throughout North Wales. It was met with unanimous approval by the Police Authority. The “Broken Windows” concept, demonstrated by the work performed in the late 1980s and early 1990s in New York, was an indirect influence on the new initiative. The New York City Subway experience had shown that by impacting on “low-level” oVences, significant decreases in more serious crime types could occur. There was a complementary eVect upon levels of public confidence in the police and a reduced fear of crime.
The New York City Subway experience
18000
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10000
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0 1988 1989 1990 1991 1992 1993 1994
Felonies Robberies
Dyna Ddigon was introduced into three pilot sites on the 14 July 2003 and a progressive expansion into further sites has occurred. (Dyna Ddigon is later described in more detail). The launch of the Government’s action plan to tackle anti-social behaviour “Together” took place on the 14 October 2003. It was described as “a national campaign that takes a stand against anti-social behaviour and puts the needs of the community first.” The Government’s view is that tackling anti-social behaviour is a challenge for all public authorities— cutting across housing, education, social services, transport and environmental services, town centre management, the criminal justice system and policing. It was apparent that the approach adopted by North Wales Police was entirely consistent with the aims of “Together.” Ev 232 Welsh Affairs Committee: Evidence
“Policing: Building Safer Communities Together” was published in November 2003. It was a major consultation exercise, aimed at enabling the development of a modern, truly representative police force which is more accountable to communities, and which is able to tackle crime at a local, regional and national level. The community engagement aspect of the consultation document was a key area of interest. The National Policing Plan 2004-07 makes specific references to anti-social behaviour, as one of the five key overriding priorities is “Tackling anti-social behaviour and disorder”. Also, one of the two underpinning national themes is “Community engagement and civil renewal”. The Plan states that Police and partner organisations from the public, private and voluntary sector need to work together in new and imaginative ways to build safer communities. Engagement with communities in a manner which enables them to accept broader responsibility for aiding and supporting the police is seen as particularly important in work to reduce anti-social behaviour. The Policing Performance Assessment Framework will increasingly be the tool for performance measurement for the police. The Framework was introduced in 2003–04. From the Key Priorities: — Citizen Focus Providing a citizen focused service to the public, especially victims and witnesses, which inspires confidence in the police. It is acknowledged that the police can contribute to strengthening communities by working with them and being accountable to them. The basis for eVective policing is public support where communities have the confidence to work in partnership with the police and other agencies to tackle crime and disorder. Forces and authorities must develop a clear understanding of the needs of the communities they serve. Levels of public satisfaction and confidence are key elements of police performance. “Wales—A Better Country”—The Strategic Agenda of the Welsh Assembly Government is a vision of a sustainable future for Wales, where action for social, economic and environmental improvement work together to create positive change. A “top ten” of commitments are listed by the WAG, each seeking to address fundamental and connected issues around health, communities, skills and jobs and to invest for the long term. Directly related to policing is a commitment to a £100 million crime fighting fund. Its aim is to reduce fear of crime and address drug-related crime, including eVective treatment for addicts. The implementation plan is one of bringing together existing funds into a new focused package of programmes and actions. There are four key areas which the WAG will concentrate on as policy is developed:— — Helping more people into jobs. — Improving health. — Developing strong and safe communities. — Creating better jobs and skills. One specific element of the overall vision is: action on social justice that tackles poverty and poor health, and provides people and their communities with the means to help themselves and break out of the poverty trap. This specifically reaYrms the WAG’s intention to focus on tackling the issues that can most damage day to day life for people and supporting work in local communities. A number of commitments under this vision are listed, with the following featuring prominently:
Commitment Aim Implementation Plans
Tough action on anti-social To improve quality of life in local New legislation in 2004 to behaviour communities increase fines and set standards Roll out Communities First To enable areas to benefit from Progressive roll-out on the basis this programme which helps of experience. communities to shape a new future for their areas.
There is a desire for communities to identify their own needs, future direction and address problems of day to day concern, such as crime, drug abuse and the quality of the local environment. The WAG has drawn attention to the Communities First programme, as it is enabling communities to identify what they each need to tackle their concerns. The Home OYce Strategic Plan 2004–08 “Confident Communities in a Secure Britain” sets out the intentions of government to revive community policing through a large increase in uniformed patrol oYcers, specifically Police Community Support OYcers—24,000 by 2008. Local communities will have greater influence in deciding the priorities for neighbourhood policing teams, and in tackling anti-social behaviour. Welsh Affairs Committee: Evidence Ev 233
Dealing with prolific oVenders and revisions to various aspects of the criminal justice system are also specified in the strategic plan. There is mention of the following intentions in respect of anti-social behaviour: — Prevention and deterrence of anti-social behaviour through the development of a culture of intolerance of it, and increasing order in public spaces. — Greater use of sanctions specifically designed for tackling anti-social behaviour. — Improvement of the prosecution and court processes for tackling anti-social behaviour. Of particular note is the need to prevent crime by reducing opportunities and tackling alcohol abuse. Alcohol abuse and binge drinking are strongly linked to violent and anti-social behaviour. The House of Commons Environmental Audit Committee report “Environmental Crime: Fly-tipping, Fly-posting, Litter, GraYti and Noise—9th report of Session 2003–04” describes how there is a need to eradicate the problems of graYti and litter. As well as the adverse financial impact such criminal behaviour causes, graYti in particular has a detrimental social cost, making an area feel run down and contributing to the fear of crime. A concerted eVort towards environmental renewal is required, with closer working relationships to be established between agencies. Local environmental quality is clearly higher up the agenda in government nationally and locally, than it was a decade ago. The National Reassurance Policing Programme is an important initiative that recognises local people are best placed to identify local concerns. It is a joint Home OYce/ACPO programme currently being tested in 16 sites across England. The programme aims to work with communities and local partners to tackle “signal crimes and disorders.” A “signal crime” is an event that has a disproportionately negative eVect on the public’s perception of risk. It acts as a powerful warning signal for those who encounter or experience it, causing them to change their beliefs or behaviour because of the risk they perceive. Crucially, the NRPP recognises that only local people can identify local “signals.” A process of genuine, proactive community engagement is therefore central to the success of the programme, with local people taking ownership of their neighbourhoods in partnership with the police and other agencies. Tackling these signal crimes and disorders should lead to communities that not only are safer, but feel safer too.
Dyna Ddigon—Challenging Anti-social Behaviour across North Wales In May 2003, the Deputy Chief Constable of North Wales Police presented a paper to the North Wales Police Authority. This described the “Dyna Ddigon” (or “That’s Enough!”) initiative that the force has now introduced to challenge anti-social behaviour. “Dyna Ddigon” is a policing and community concept describing an abhorrence of petty lawlessness and the recovery of civic pride. It has a number of aims, supporting the vision of a safer North Wales: — To galvanise public distaste for the “yob culture”. — To inculcate abhorrence of petty crime and anti-social behaviour. — To make public areas welcoming and safe at all times of the day. — To support other public bodies in promoting civic pride. — To protect young people from conflict and confrontation. The Dyna Ddigon strategy has been designed to integrate fully with the aims of the Force. North Wales Police has undertaken to respond speedily to oVences and deal with oVenders robustly. Through methods such as high-visibility patrolling and the Community Beat Manager project, we are providing reassurance and are now more accessible in our communities. We look to inspire our oYcers to act confidently when engaging identified criminality. We are also using a variety of methods to gather evidence and prosecute oVenders. The corporate health of the North Wales Police will be further consolidated as the public see tangible results, obtained through the provision of oYcers by way of the extra funding secured for the Force. The organisation continues to further integrate into social, economic and environmental improvement strategies across North Wales. This approach acknowledges local crime and disorder priorities. It has been informed by clear and current management information exploiting technical developments presently in train. Ev 234 Welsh Affairs Committee: Evidence
It harnesses the proven techniques of problem-solving policing. The force directs and encourages oYcers to deal with oVences of crime and disorder wherever and whenever possible. They will be fully supported by corporate resources. They must employ craft, creativity and determination to detect and deter criminal activity. Appropriate and innovative methods of dealing with identified problems are being used. Whilst a rigorous approach will be encouraged, it will be proportional and conform to the Human Rights Act. We have not removed the ability of our oYcers to exercise discretion. It is clear that in devising long-term solutions to crime problems, the Police cannot operate autonomously. A key element of the “Dyna Ddigon” approach is multi-agency liaison and action. We encourage involvement from those who can actively participate in the achievement of eVective and lasting solutions. We also seek media recognition and support. “Dyna Ddigon” is being continuously and rigorously monitored for eVectiveness and impact. Challenges, opportunities and successes are being publicised with openness and honesty. “Dyna Ddigon” is a riposte to the behaviours that adversely aVect the quality of life in our communities. It describes a shared responsibility for challenging attitudes and acts that demean and damage. It seeks to promote and support a culture of respect for individuals and their property, both private and shared. It is concerned with the preservation of the best of North Wales and the discouragement of the worst. Multi-agency co-operation, involving Crime and Disorder Reduction Partnerships, is fundamental to the success of Dyna Ddigon. The ethos and principles of the scheme are becoming embedded within the Force. Operational oYcers are engaging with communities to reduce the fear and causes of crime. The key elements of the initiative are: — Informed, locally driven enforcement. — Enabling oYcers to act, with support. — Use of appropriate, innovative and proportional methods—discretion has not been removed. — It is a long-term approach. — There must be joint ownership of local issues. — There will be an audit of results, to assess the level of success of the imitative.
OUR CORPORATE HEALTH—WHAT DYNA DDIGON MEANS
Increased public confidence
DYNA Increased DDIGON Increased performance public support
Dyna Ddigon—Project Board From the outset, a steering group of key oYcers and members of police support staV was formed, under the leadership of the Deputy Chief Constable. This group performed the initial development work of the initiative. After a period of further development, the dedicated Project Board that has emerged now meets on a monthly basis. It contains the following members: Welsh Affairs Committee: Evidence Ev 235
Deputy Chief Assistant Chief Constable Chief Constable Constable
Staff Officer (Secretariat)
Supt. Det. Supt. Supt. Supt. Operational Supt. Crime Western Central Support Eastern Services Division Division Division Division Division
Supt. Supt. Supt. Supt. Chief Safer Administration Inspector Operational Corporate Communications Communications British of Justice Development Transport Department Division Department Police
Marketing Police Manager Federation
The Project Board oversees the continued implementation and development of the Dyna Ddigon initiative. The scope of the Board includes the full “tool kit” of measures the force is able to employ to tackle anti-social behaviour, as well as important issues that are both directly related to the imitative and ancillary to it. A senior oYcer from British Transport Police attends each meeting, as North Wales Police and BTP are anxious to enhance an already close working relationship.
Dyna Ddigon—Progressive Implementation Upon the conception of the Dyna Ddigon imitative, each of the three Territorial Divisions were required to nominate one appropriate “pilot” site for implementation purposes. The three areas first chosen were Peblig Ward (Caernarfon), Kinmel Bay and Redhall Estate (Deeside). They were nominated as analysis of local crime and disorder incidents revealed them to be problematic, there was public appetite for dynamic police action, and the Communities First scheme was either operating in the area, or adjacent to it. Media launches were held simultaneously in each site, on the 31 July 2003, with extremely positive publicity being generated from the outset. The realisation that the force was embarked upon a significant scheme to deal successfully with anti-social behaviour meant that demand for an expanded number of sites was experienced almost immediately. A decision was made at senior level to accede to local requests for inclusion in the initiative. This meant that on the 22 September 2003, following further analysis, additional sites were commenced in Holyhead Town, Colwyn Bay, Bryn OVa and Hightown (Wrexham). Consolidation of these sites, combined with the evolution of a structured performance management process and usage of new legislation, meant that further demands for inclusion were resisted. Notwithstanding this, oYcers were still required to deal eVectively with anti-social behaviour throughout the entire force area—“best practice” was simply being established in the pilot sites, as part of a long-term process to achieve a positive cultural change. On the 1 April 2004, additional sites were introduced: — Llangefni. — Bangor. — Pwllheli. — Barmouth. — Llandudno. — Prestatyn. — Denbigh. — Rhostyllen. Ev 236 Welsh Affairs Committee: Evidence
— Chirk. — Bryn Gwalia (Mold). — Coleshill and Castle (Flint). They have been followed by Pentrefoelas on the 1 May and Porthmadog on the 1 August 2004. The imminent introduction of Dyna Ddigon into the Sealand Manor Estate means that there will be a total of 21 sites operating across the North Wales Police area. Dyna Ddigon is a continued commitment by North Wales Police to work with partner agencies. The primary organisations with whom we work (essentially, our CDRP partners) are depicted below. It is vital to remember that local consultation and problem-solving are the very essence of the initiative in achieving lasting solutions to crime and disorder problems. The criteria for Dyna Ddigon site inclusion: There must be a definite need for the initiative to be commenced in an area. This need is established through local analysis and consultation. There must be agreement between the police, partners and the local community that the initiative should be introduced (there may be local issues which may prohibit or delay this). Planning as to how problem-solving activity will be performed in partnership must occur, with all identified agencies and organisations making a commitment to it. An example action plan is featured overleaf.
Holyhead “DYNA DDIGON” Action Plan Overall Mission Statement—“To improve the quality of life for people who visit, work and live in Holyhead Town Centre”
Objective Actions Performance Timescales Responsible Indicators Organisation
Objective One To introduce an Number of To introduce the Lead—Isle of To reduce the order pursuant to complaints received. Order by Anglesey County problem of anti- Section 13 of the Number of 16.12.03 Council. Support— social drinking of Criminal Justice Act prosecutions once Police alcohol in public 2001 designating the the Order has been within the town town centre as an implemented. centre “alcohol free zone” Frequency of anti- social drinking in St. Cybl’s churchyard Objective Two To rigorously Number of recorded To be reviewed Police. Hollyhead To tackle the pursue post shoplifting oVences 31.3.04 Crime & Disorder problem of conviction ASBOs for Holyhead town Sub-Committee. Isle persistent shoplifters against persistent centre. Percentage of Anglesey County in Holyhead town shoplifters. To of detections for Council centre establish an eVective shoplifting oVences Chamber of Trade in the town centre. for Holyhead. To further develop the town centre “Shopwatch” scheme. Objective Three To upgrade the Number of violent To be reviewed Isle of Anglesey To tackle the current town centre crime oVences for 31.3.04. Council (Lead— problem of violent CCTV system which Holyhead town Community Safety crime in Holyhead is now seven years centre. Percentage Co-ordinator). town centre old. To further of detections for Holyhead develop the violent crime in the Pubwatch. Holyhead Pubwatch town centre. Scheme. Number of Pubwatch bans. Objective Four To carry out Number of To be reviewed Isle of Anglesey To improve the enforcement in prosecutions 31.3.04. County Council appearance of the respect of illegal fly undertaken. (Lead—Planning town centre by posting. To ensure a Photographs of Department). Isle of reducing the blight swift response to town centre before Anglesey County caused by fly cleaning sites subject and after the Council (Lead— posting and graYti. of graYti. campaign. Community Safety Co-ordinator). Welsh Affairs Committee: Evidence Ev 237
Objective Actions Performance Timescales Responsible Indicators Organisation
Objective Five To establish an Number of To be reviewed Police. Isle of To reduce the ASBO database of complaints of anti- 31.3.04. Anglesey County amount of damage oVenders. To carry social behaviour. Council— and anti-social out truancy sweeps. Number of oVences Education heavier caused in To carry out tests of criminal damage Department. Isle of the town centre. purchases at oV- committed by Anglesey County licences for juveniles. Council—Trading underage sales. Standards Department Objective Six To bid for an Survey to be To be reviewed Police. Holyhead To promote public additional CBM for conducted amongst 31.3.04. Crime & Disorder reassurance in the Holyhead Town shoppers and Sub-Committee town centre through Centre. To increase shopkeepers. increased patrols the number of police patrols. To introduce Community Wardens.
Dyna Ddigon—Implementation and What We are Looking For There are many diVerent components to Dyna Ddigon. Guidance for local supervisors has been produced that specifies the desired practice to be adopted, under various themes:
Analysis of local problems Does the Division undertake systematic analysis of disproportionate crime, disorder, anti-social behaviour or victimisation? Where disproportionality is identified, how is this addressed through resource deployment? What we are looking for: — Targeting of key oVenders and dissemination of information. — Information sharing with partner agencies. — Use of local analysis and consultation to identify problem areas. — Community Safety Department input on local working. Use of anti-social behaviour (ASB) databases—RMS.
Awareness of local objectives Do objectives on crime and disorder reduction cascade rationally from DHQs to local level? — Knowledge amongst oYcers of local priorities. — Evidence of engagement in targeting key individuals. — Evidence of any positive impact upon local levels of crime and disorder based on ward-level analysis. — Consistency between national/force/Basic Command Unit (BCU) targets in relation to CDRP priorities.
Intelligence based patrols and the NIM Are patrols intelligence-driven; in particular, are areas of disproportionate levels of anti-social behaviour/ disorder identified and policed appropriately? Is NIM used to pursue reassurance objectives? Does the Division have a systematic approach to integrating community intelligence and criminal intelligence? — A patrol strategy that incorporates problem-solving under the National Intelligence Model (NIM) and meets local policing needs. — Significant use of local analysis and consultation to identify problem areas and support community cohesion. —StaV aware of the NIM and the contribution they should be making. Ev 238 Welsh Affairs Committee: Evidence
EVectiveness of patrol How are visibility, accessibility, reassurance and the eVectiveness of patrol evidenced? — The use of the British Crime Survey and other local data to gauge public satisfaction, confidence, fear of crime, etc (by ethnicity). — Satisfaction with police visibility and accessibility being measured, with the satisfaction of ethnic and other minority groups addressed. — Existence of specific sustainable policing packages, eg POP files directing patrols, and maintenance of same with accompanying supervisory intervention.
Improving patrol and knowledge of responsibilities What eVorts are made to ensure response staV are assigned to patrol pilot areas? (ie, in a community policing rather than purely reactive role?) Do response oYcers have an awareness of their responsibilities to aid implementation of the initiative, thereby creating a climate where ASB is unacceptable and communities are reassured. — Evidence that response oYcers and those from OSD are engaged in robust enforcement activity when patrolling pilot areas. — Awareness amongst oYcers that they are expected to undertake patrols in pilot areas whenever possible. Participation in POP work. — Evidence that BCUs have identified the range of customer needs and are taking steps to respond to those needs, including the needs of minority groups.
CBM awareness Does the Community Beat Manager understand the purposes and aims of his/her post? — Evidence of requirements to provide public reassurance through a visible police presence, focussing on incidents of crime and disorder and addressing community safety issues by acting as a focal point for partnership working. — Evidence that the oYcer(s) understand this is to be achieved through the North Wales style of Problem Orientated Policing and partnership working.
CBM role engagement — Is the Community Beat Manager able to successfully engage in his/her role? — Evidence that a Beat Action Plan has been produced and agreed by the district Inspector. — Development of a Beat Profile located on the Force Intranet and regularly updated. — Knowledge of active criminals within area of responsibility. — Ability to work with a minimum of supervision. Focussed intelligence based patrols. — Awareness of crime prevention techniques. — Attendance of three day Beat Manager’s training programme. — Local community needs—ability to converse through the mediums of English and Welsh. — Knowledge of diverse community in beat area. — Establishment and maintenance of relationships with key partners, eg local authorities, locally elected councillors, principle authority and community councillors, family of key relevant workers within their beat. — Evidence the CBM has signed a career planning agreement. Length of time in post.
CBM support Is the Community Beat Manager receiving meaningful support from supervisors and colleagues? — Evidence of liaison with other oYcers and colleagues to aid the development of community intelligence and assist in the identification of crime and anti-social trends for prevention and detection purposes, eg support from Divisional Diversity OYcer and Anti-Social Behaviour Co- ordinator. — The CBM is being used to provide response cover in an appropriate way and such abstractions are well managed. Welsh Affairs Committee: Evidence Ev 239
— Evidence that support is provided by supervisors when required. Advice and assistance should be freely available. Evidence that autonomous working is supported and finances to assist in community schemes is provided as appropriate. — Provision of equipment to function eYciently, eg IT, phones.
Divisional engagement in Dyna Ddigon activities To what extent is the Division engaging in dedicated operations and activities under the Dyna Ddigon banner, to deal with anti-social behaviour? Are other Divisions (ie OSD and CSD) providing assistance when required? Have partnership interventions (pre-enforcement) through multi-agency problem solving agreements been developed? — Engagement with partners in community clear ups under Operation Scrub-It. Local protocols to ensure racist and hate graYti is removed within 24 hours and dissemination of intelligence to BCU/ Diversity OYcers. Use of GraYti Busters. — Assessment and development of alley gating schemes under Operation Gate-It. Evidence of exploration of an expansion in funding opportunities and partnership working in liaison with HQ. — Development of local procedures to ensure the swift removal of abandoned and scrap vehicles, under Operation Scrap-It. — Targeting of inappropriate driving in conjunction with OSD, under Operation Lifeboat. — Dedicated patrols of vulnerable public areas, eg town centres, schools, railway and bus stations, particularly at night. Evidence of liaison with BTP and local security. Use of mobile CCTV facilities. — Licensed premises—disorder identification and enforcement of licensing oVences. Pub Watch. Proof of Age Scheme. Objections to license renewal. Engagement with door staV including possibility of accreditation. Work with Trading Standards to target sales to under-age persons. Use of PNDs for relevant oVences. Evidence of local authority liaison to consider areas as alcohol free zones. — Evidence of assessments of environmental eVects upon crime and disorder. Partnership working to “design out crime”, eg use of lighting and CCTV. Provision of youth shelters. — Local agreements to provide diversionary facilities for young people, particularly during holiday periods. Sports facilities availability, including free/reduced charge use. Provision of other contemporary facilities, such as skate board parks. — Direct engagement with local schools and youth organisations. — Link work with Communities First where applicable, to ensure commonality in approach. — Development of innovation and use of best practice culled from elsewhere, eg yellow card schemes, Dispersal Notices, ASBO leaflets, Ring Master, Crime Stoppers, and the Mediation North Wales Service. — Use of civil legislation to complement enforcement against activities such as begging. — Reassurance activity towards the elderly and enhanced awareness on the part of young people, eg Through Other’s Eyes Scheme, and involvement of support organisations such as Neighbourhood Watch and Victim Support Scheme. — Specific projects dealing with community awareness of problem behaviour and the sanctions that can be taken against oVenders, eg throwing fireworks and work with Environmental Health to deal with noisy nuisance neighbours. — Evidence that requested assistance is provided by OSD and CSD, eg vehicle based operations and surveillance work—there should be no organisational resistance to obtaining RIPAs in appropriate circumstances to support ASBOs etc.
THIS LIST IS NOT EXHAUSTIVE
Clarity of policy on interventions Is there a clear policy on ASBOs, ABCs and other similar interventions? How many have been applied for and granted in the last 12 months? What support is available—eg have Divisions formulated local protocols with CPS? What level of co-ordination exists with HQ? — Evidence that BCUs regard ASBOs as a useful tool in delivering CDRP objectives. Number of Yellow Cards submitted to Divisional ASB Co-ordinators. BCU use of databases to record ASB information. — Awareness of new powers for local authorities and RSLs contained in the Anti-Social Behaviour Bill. Ev 240 Welsh Affairs Committee: Evidence
— Evidence of consultation with CPS regarding any diYculties encountered in the ASBO process. Local protocol development. — Evidence of use of ABCs and other interventions, such as parenting contracts and orders. — Evidence that Divisions are considering individual cases for inclusion in the ASBO publication scheme. — Evidence of engagement with partners involved in the ASBO process, including assisting local authorities in obtaining ASBOs.
Use of Penalty Notices for Disorder To what extent is the Division utilising Penalty Notices for Disorder? — Evidence of training completion by designated oYcers (uniformed, up to Inspector level) and impetus to do so being maintained by DCTs. — Evidence of use amongst patrolling oYcers as an enforcement tool. The Number of PNDs issued per Division and “on the spot”. — Expectation that PNDs are used as a default means of disposal of arrestees from custody when appropriate.
The extended police family Is the Division using new powers in respect of the extended police family to strengthen the patrol function? How many PCSOs have/will be recruited and does their deployment link directly to reassurance objectives? Are Community Wardens being considered and what level of progress towards accreditation is being made? — Use of the Crime Fighting Fund — Partnerships with councils and private security agencies for, eg patrols. — Considered deployment policy for PCSOs—ensuring they have been provided with police powers. — Assessments of Warden Schemes and suitability for participation in accreditation. — Divisional consideration of PCSOs during applicable funding bids.
Divisional consultation Does the Division perform its own local consultation involving DCT members and partners to review implementation of Dyna Ddigon and explore new ways forward? How do leaders ensure that support and development are provided which encourage staV to focus on challenging anti-social behaviour and how are policies marketed/communicated? — Assessment of standard of local consultation through supply of relevant notes/minutes to HQ. — Evidence that actions arrived at are dealt with and local PIs have been developed. — Evidence of complementary work, eg exploration of funding opportunities external to the organisation. Liaison with Partnership Funding Manager/PACT.
Innovation in approach Is there evidence of innovative approaches, especially in relation to “hard to reach” elements of communities? — Good channels of communication and dialogue with community umbrella organisations, opening doors to otherwise excluded groups and individuals. — Divisional liaison with Safe Communities Dept to ensure a good cross-section of the community is considered.
Communication with young people What channels exist to communicate with young people? — Evidence of communication and dialogue with young people through schools and local youth organisations. Schools Liaison OYcer input. — Evidence of positive interaction with groups of young people in vulnerable areas, with assessments of their requirements. — Introduction of facilities should they not exist, in conjunction with partner agencies. Development of existing facilities. Welsh Affairs Committee: Evidence Ev 241
— Engagement with other key organisations eg the Prince’s Trust Cymru & Duke of Edinburgh Award Scheme.
Community consultation What (recent) evidence is there of decisions being influenced by consultation with users and a representative selection of residents? Is there a framework to ensure eVective action is taken? — Evidence of the provision of a citizen focused service to the public, especially victims and witnesses, which inspires confidence in the police. — Evidence of local community contact, eg community councils and residents’ associations, Divisional Diversity Group, retained on Divisional databases, detailing action points stemming from such meetings and how any issues arising have been addressed. — Formulation of sustainable local action plans, using the SARA/POP principle, devised through community consultation and assigning ownership of actions to the police and partner organisations. Plans to be made publicly available and disseminated to partners for agreement. Progress to be documented — Evidence of scoping exercises having been performed for new initiatives.
Community influence on policy Are there formal and informal means for the community to influence policing policy, especially tackling anti-social behaviour and disorder, in accordance with the national theme of community engagement and civil renewal? — Evidence of decisive engagement with communities to devise local action plans and further community cohesiveness. — Persistence in approach and creativity when there is an unwillingness to engage with police. — Involvement of partnership agencies in community consultation, demonstrating ownership is shared.
Drug abuse strategy Are objectives on tackling drug abuse integrated within local enforcement strategies? — Evidence of eVorts to bring oVenders for Class “A” drugs supply to justice. — Identification of suspects and venues—awareness and use of legislation to close “crack houses”. — Consolidation of work with Substance Misuse Action Teams (SMATS), in accordance CDRP objectives.
Media and marketing. How is the Division using a media and marketing strategy to promote reassurance? Is media impact monitored? How does the Division strive to reach the community, in particular ethnic and other minority groups? What consideration is given to maintaining and enhancing the positive promotion of activity under Dyna Ddigon? — Communications strategy that uses internal and external media to promote reassurance and help manage public expectation and demand. — A positive media profile. — Press oYce engagement and that it is fit for its purpose. — Visibility in community press and in particular local ethnic and other minority press. — Awareness on the part of oYcers that positive examples of community working are needed. The Deputy Chief Constable visits to the pilot sites on a rotational basis, where he meets with a member of the Divisional Command Team, the Area Inspector, and Community Beat Managers. This is to review their performance and assess the level of commitment being exhibited not only by the Police, but also partner agencies, in dealing with anti-social behaviour. The DCC conducts patrols in the pilot sites to speak with local residents and community leaders, to establish how eVective Dyna Ddigon actually is. This “first-hand” assessment process is about to be augmented by visits to each local Community Council for the sites, to obtain their views. Ev 242 Welsh Affairs Committee: Evidence
Dyna DDigon—The People
Community Beat Managers The Chief Constable has introduced the Community Beat Manager (CBM) concept over the past three years. Its aim is to assist the Force deliver its vision of a safer North Wales by reassuring the public through high visibility policing and making oYcers more accessible to the public using mobile police stations and innovative technology. The purpose of a Community Beat Manager is to increase public reassurance within any given beat area by providing: — A highly visible police presence. — A focus upon reducing incidents of crime and disorder. — A means of addressing community safety issues by acting as a focal point for partnership working. The oYcers achieve this through the adoption of the North Wales style of Problem Oriented Policing and Partnership working. On the 31 March 2004, 164 Community Beat Managers were in post throughout North Wales communities.
Schools Liaison Initiative In December 2001 following consultation with local Directors of Education, Gwent Police appointed an experienced secondary school teacher to the force [on a two year secondment] as a schools liaison co- ordinator. Following her appointment a new core programme was developed for children from infant level in key stage 1, to the age of 16 in key stage four. The programme replaced previous PSE and was delivered by newly appointed police school liaison oYcers. On 18 December 2002 all four Chief Constables of the Welsh forces met and agreed to adopt the Gwent school liaison programme throughout the whole of Wales as part of the education aspect of Operation Tarian. The school liaison co-ordinator provides a focal point for: primary and secondary schools in the force area, LEAs, territorial police divisions and the oYcers going into schools. The programme has been agreed by partners and covers three crucial topics, Drugs and Substance Misuse, Social Behaviour and Community and Safety. A request for the funding of the school liaison co-ordinators post, the schools liaison police oYcers posts (16 for North Wales) and associated materials for each of the four Welsh forces was approved on a 50% part funded basis for three years. A force working group has been formed which includes representatives from the three territorial divisions along with HQ community safety and the force-funding oYcer to oversee the implementation of the project. All 16 Schools Liaison OYcers are now in-post.
Divisional Anti-Social Behaviour Co-ordinators Three Divisional Anti-Social Behaviour Co-ordinators are in post, one in each Territorial Division. Their responsibility is to monitor incidents of anti-social behaviour and suggest proactive activity to eradicate it. They liase with local groups and agencies. They are also in place to assist oYcers in obtaining pre and post conviction Anti-Social Behaviour Orders, as well as being involved in the process of obtaining Acceptable Behaviour Contracts (ABCs). The Co-ordinators collate information from patrolling oYcers who provide notification of instances of anti-social behaviour. These occurrences are then entered onto a forcewide database and a diversion process is implemented. If this multi-tiered process fails, an application is then made for an ASBO before conviction.
Police Community Support OYcers The three Territorial Divisions are currently introducing additional numbers of Police Community Support OYcers:
Central Division — There are currently eight PCSO posts in Rhyl. Six of the posts are filled, with two vacancies now having arisen as one has now joined as a police oYcer, whilst the other has found alternative employment. — Eight PCSO posts have been advertised for the Colwyn Bay area. — Four part-time PCSO posts have been advertised for the Llanrwst and Conwy areas. — There are no other bids in at present. Welsh Affairs Committee: Evidence Ev 243
Eastern Division — There are presently no current PCSO posts within the Division; however, 12 have now been advertised for deployment across the Divisional area. — A bid for 16 more PCSO posts has been submitted—the decision on which is pending.
Western Division — There are presently no current PCSO posts within the Division. Ten have been advertised for deployment across the Divisional area. — A bid for eight more PCSOs has been submitted—again, a decision is pending.
PCSO totals for North Wales Police: Current Posts: 8 Advertised Posts 32 (includes four part-time posts % two full time posts) Bids in 24 Total 64
Accredited Wardens (CSAS) North Wales Police was one of the first Police forces in England and Wales to establish a Community Safety Accreditation Scheme (CSAS) and is committed at Chief OYcer Level to maximising the positive impact of new legislation. The force has provided guidance to a number of other forces looking to establish their own CSAS.
Wrexham In April 2004, one manager and three wardens commenced employment in Wrexham. A further 11 posts are being advertised following reported enthusiastic support in the locality. The wardens have been deployed on high-profile patrols and problem solving initiatives to tackle anti-social behaviour. They have been accredited with the full range of powers available. Training was delivered locally, with support from Eastern Division’s staV and partner agencies. There is regular interaction with North Wales Police. A daily police briefing sheet is prepared by the Community Beat Managers’ Sergeant. The wardens are performing follow-up work in relation to incidents that do not require police attendance. Reports of anti-social behaviour are sent to the police ASB co-ordinator. There is also good interagency work being performed with the local Fire Service and Youth OVending Team. Joint funding initiatives are being pursued to assist with youth diversion schemes and the like. Various powers being gradually introduced—the wardens are currently using the power to require a person’s name and address, and arrange for the removal of abandoned vehicles. The power to confiscate tobacco and alcohol will be introduced soon. There has been excellent feedback from residents, police and the local housing oYce. Awareness raising took place at a local Asda store alongside police oYcers, which resulted in calls for increased numbers of wardens for those areas not yet covered.
Flintshire The Local Authority is currently recruiting one Warden Supervisor, one Assistant Supervisor, and five wardens (three full-time and two part-time on a 22 hour week) augmented by one clerical assistant. The overall purpose of the wardens is to “Reduce the incidence of anti-social behaviour and crime and disorder; Promote community safety and reduce fear of crime, strengthen communication between residents and local service providers”. An implementation plan has been created.
Denbighshire The Local Authority is currently implementing its traYc warden scheme; however meetings have been held with North Wales Police regarding further development to include accreditation. Initial indications are that accreditation will be sought during the current financial year, but this has not been confirmed. Ev 244 Welsh Affairs Committee: Evidence
Gwynedd A presentation has been given to the Community Safety Partnership attended by senior Command Team oYcers. There is no reported outcome at the time of writing..
Ynys Mon and Conwy: Approaches have been made by North Wales Police, but neither Local Authority is able to commit to the scheme at present. This is understood to be mainly for financial reasons. Community Safety Accreditation Schemes should be considered as an integral part of local enforcement and an important part of the approach to tackling the demand for community reassurance and a visible presence. The elements of this approach should not be viewed in isolation but seen as complementary to each other and contributing to a multi-agency team eVort. It should form part of the overall approach to crime reduction and be driven by a locally identified need.
Special Constables Special Constables provide valuable front line policing in our communities. The role of the Special Constable is to assist and support the regular police oYcers in meeting local policing needs. They are an important part of the force and have a vital role to play in the future policing of North Wales. There are currently 40 Special Constables serving in North Wales Police. We hope to increase that figure by at least 25 during this year.
Volunteer Community Support OYcers North Wales Police is currently developing a Police Volunteer scheme, the benefits of which can be significant. The utilisation of volunteers will allow the force to provide a service that would not otherwise be available, as well as enabling the force to tap into a vast pool of local knowledge, skills and experience. The use of volunteers will also assist in further engagement with the local community in the policing their neighbourhood.
Youth OVending Teams North Wales has four Youth oVending teams, namely Wrexham and Flintshire within Eastern Division, Conwy Denbighshire covering Central Division, and Gwynedd Mon covering Western Division. Each Youth OVending Team has its own structure and staV, which are there to achieve the key performance indicators established by the Youth Justice Board. The individual Youth OVending Teams have their own Steering Groups which oversee and direct the Youth OVending Team. Targets are set by the Youth justice Board which need to be reached by the Youth OVending Team. Youth OVending Teams are linked to CDRPs and the Local Criminal Justice Board. Plans have to be submitted by the individual YOTs to the YJB for the year ahead , giving their plans and intentions. A comprehensive scheme of quality assurance is also underway, called EPQA: EVective Practise and Quality Assurance, covering the main service areas of YOTs. There is a Wales Manager for the Youth Justice Board who is based in CardiV with specific responsibilities for Wales. A YJB Board Member has a specific responsibility for Welsh issues. The Youth OVending Teams follow similar structures, with variation dependent on local needs and issues. Eg Wrexham YOT has a Strategic Manager and then three Operational Managers compared to the one Operational Manager in Flintshire. Some will have more Senior Practitioners.
WORKING IN PARTNERSHIP—TURNING COMMUNITIES AROUND Local consultation is on-going through many diVerent working groups and forums. We consult with the Courts, CPS, Local Authorities, Youth OVending Teams, Housing Associations, Social Services, Education Services, Environmental Health, Victim Support, Tenants and Residents Associations, Probation Service, Town Centre Managers and Youth Workers, plus many more relevant parties to aid the introduction of local initiatives. An example of this is the Holway Estate, Holywell in Flintshire, where residents have engaged with their local Police, MP and Social Inclusion Team through the Tenants and Residents Association, to participate in the formulation of an Action Plan to reduce the problems experienced in the area (primarily high levels of youth and adult anti-social behaviour). Welsh Affairs Committee: Evidence Ev 245
The local Police Inspector has worked with the community to develop an Action Group that can devise local Actions, Performance Indicators and Targets, as well as allocating and engaging the organisations that are to be responsible for alleviating certain problems. The Holway Action Group meets every quarter to review progress and evaluate the work being done. Over the three or so years the group has been working together, juvenile anti-social behaviour has been reduced by 72%. The work of the group has been complemented and sustained by a community based approach to health issues through a Sustainable Health Action Research Programme. Consequently, the community has been the main force for change. For example, every week up to 20 youngsters join adults to clean the estate, picking up litter and rubbish, thereby adding a sense of ownership and community spirit. A very recent example of how energy is being used more creatively to tackle social exclusion and disengagement is the summer hanging basket competition that was organised for minimal cost in conjunction with a local horticultural college. Thirty baskets were made by residents at a workshop held in the Community Centre, with 10 being made for the older people on the estate who were unable to make their own. The owners of the winning baskets were awarded a small prize, the key point being that none of the baskets were damaged or stolen, and the estate has begun to develop an appearance of being “looked after”. A repeat, larger event is planned for next year. The success of these local initiatives has prompted the group to develop a more ambitious action plan to tackle Assaults, Domestic Violence and Residential Burglary. The Actions arrived at in respect of anti-social behaviour include tackling under age drinking and the purchase of alcohol, a reduction in the number of void properties, prompt investigation of nuisance neighbour problems and implementation of enforcement action, prevention of access to waste areas, recording of details of those involved in anti-social behaviour, means of making the area more attractive, maintenance of local youth projects, provision of shelter for young people including engaging them in any design process, positive marketing, assessment of CCTV eVectiveness, reduction in abandoned and badly driven vehicles, and improved lighting in vulnerable areas. Results have been remarkable. Residents regularly refer to the activities of those involved in the Holway Action Group at other public meetings, stating that the work of the group has contributed significantly to improving their quality of life. There is now tangible evidence of civic pride in an area that has previously suVered from a bad reputation and improvements are continuing. Such has been the success of the Holway Action Group, that North Wales Police are using it as a model of the community, police and other agencies working together to achieve worthwhile benefits. The police are using the principles established by the workings of the HAG to help other areas in North Wales. Partner agencies involved in the area’s achievements are the Holway Tenants and Residents Association, Ground Work Wales, SHARP project co-ordinator, Flintshire Neighbourhood Watch, Flintshire Victim Support Scheme, Police, Clwyd Alyn Housing, Flintshire County Council Housing, Tai Hafan Housing Association, Holywell Neighbourhoods Communities First co-ordinator, Youth Service and Trading Standards. It is this type of evolutionary local consultative approach that the Force is expanding upon throughout all communities.
DYNA DDIGON—The National Intelligence Model The National Intelligence Model (NIM) has made changes to the way police oYcers, police community support oYcers and police staV perform their roles. The NIM was launched by the National Criminal Intelligence Service (NCIS) and adopted by the Association of Chief Police OYcers (ACPO) in 2000. This year’s National Policing Plan has required forces to adopt the NIM. It allows for information to be collected, researched and analysed in a structured way. It oVers the opportunity to have an understanding of the “big picture” of local problems. This means that we can create strategies that will reduce crime and improve the quality of life in our communities. North Wales Police is using the NIM for all aspects of policing work, including: — tackling anti-social behaviour; — improving community cohesion; — identifying crime hot-spots; — targeting persistent oVenders; — identifying a series of crimes or incidents; — targeting criminals; and — Improving road safety. Ev 246 Welsh Affairs Committee: Evidence
It is apparent that the NIM links very clearly into the key priorities of this year’s policing plan. This gives us an excellent opportunity to use this tool as an eVective way of tackling the priorities. Recently, the force has improved upon its analysis of anti-social behaviour and brought it into line with other areas of control strategies. Central and Eastern Division have ensured that appropriately skilled analysts have the time to analyse ASB eVectively. Western Division currently relies on the performance analyst to do this. A standard process with regard to the analysis of anti-social behaviour incidents from the command and control system has been adopted across the force. This will be made more eVective by the impending force- wide implementation new IT systems (RMS and i2). All Divisions have implemented tasking and co-ordination processes that include partnership agencies to address anti-social behaviour, known as Joint Action Groups.
DYNA DDIGON—Evaluating our Performance From the outset, an embryonic performance management system was implemented, with the emphasis on the ASBO process and usage of Penalty Notices for Disorder. Due to the lack of specific guidance stemming from the Home OYce on how anti-social behaviour should be quantified (only recently addressed in part by the document entitled “Defining and Measuring ASB”), North Wales Police has developed its own system, which will undergo further refinement in due course. At present, the force collates data on the following: Number of submissions of Yellow Cards (previously juvenile nuisance forms). Number of letters to oVenders sent (those who are involved in anti-social behaviour). Number of Acceptable Behaviour Contracts signed. Number of Anti-social Behaviour Orders (ASBOs) obtained. Number of Criminal Anti-social Behaviour Orders (CrASBOs) obtained. Number of ASBO applications submitted. Number of ASBO applications that have failed. Number of ASBO breaches. Overall total number of ASBOs obtained as a force. Number of Penalty Notices for Disorder issued to adults in custody. Number of Penalty Notices for Disorder issued to adults elsewhere than in custody. Number of Penalty Notices for Disorder issued to juveniles in custody. Number of Penalty Notices for Disorder issued to juveniles elsewhere than in custody. Number of Penalty Notices for Disorder issued to juveniles, as a percentage of the overall total issued. Total PNDs issued for the fiscal year to date. Total PNDs issued since the scheme commenced in September 2002. Number of warnings issued under Section 59 of the Police Reform Act for the fiscal year to date. Number of vehicles seized under Section 59 of the Police Reform Act for the fiscal year to date. Performance in each of the above areas is described later in this document. In addition to the above, a system of evaluating anti-social behaviour crimes and incidents has been introduced, applicable to each of the Dyna Ddigon areas. The level of “all crimes” for an area features within the force monthly performance bulletin, with “anti- social crimes” being compared against that level. “Anti-social crimes” were defined by the force as being those that can have an adverse eVect upon the wider community, and not just specific victims themselves. They constitute low level air weapon oVences, drug possession and supply oVences, oVensive weapon possession oVences, low value criminal damage and other matters. It should be noted that although the Force is specifying oVences in this way, the acknowledged level of seriousness of their eVects on victims has in no way been diluted. This is broadly similar to the signal crimes concept used by the National Reassurance Policing Programme; however rather than allow the community to define signal oVences, the force has done this on a far wider basis. This system will be revised as the force is about to commence its participation in the reassurance programme. Welsh Affairs Committee: Evidence Ev 247
Analysis shows that “anti-social crime” constitutes approximately one third of the overall total of recorded oVences. It is logical to assume that by making inroads into levels of ‘anti-social oVences’, significant reductions in overall crime levels and an increase in the public perception of safety are achievable.
All Crime & Anti-Social Crime Recorded 90 80 70 60 50 40 30 20 10 0 April 2002/2003 April 2003/2004 April 2004/2005
All Crime Recorded Anti Social Crime Recorded
Example: Peblig Ward (as of September 2004)
Caernarfon—Peblig Ward All Crime Progress Anti-social Crime Progress Recorded Recorded
Month 17 6 YTD 2004/05 97 –33.6% 35 –52.1 per cent YTD 2003/04 146 73
Peblig Ward (as of September 2004)
12 month All Crime & ASB Crime Recorded 40 35 30 25 20 15 10 5 0 Oct Dec Feb Apr Jun Aug Previous 12 month All Crime Current 12 month all crime Previous 12 month ASB Crime Record Current Year ASB Crime Recorded
The above graph represents the reductions in “all crime” and “anti-social crime” levels that have been achieved during the last 12 months. Ev 248 Welsh Affairs Committee: Evidence
Anti-Social Incidents 25
20
15
10
5
0 April 2002/2003 April 2003/2004 April 2004/2005
Anti Social Incidents All incidents of “anti-social behaviour” are plotted on a month by month basis for each site. The incident closing codes for anti-social behaviour are used to classify incidents; however the force adoption of the national incident recording standard will improve the level of accuracy of the information and level of eYciency involved in compiling it.
Peblig Ward (as of September 2004)
Caernarfon Peblig Ward Anti-social Behaviour Incidents Progress
Month 10 Current three month 22 –42.1% Previous three month 38
The representation of anti-social behaviour incidents is achieved by use a rolling 3month comparison due to the implementation of new force incident recording systems in May 2003.
Anti-Social Behaviour Count. On 10 September 2003 the Force participated in the Home OYce Anti-Social Behaviour national count. The results obtained indicated that during a 24 hour period, North Wales Police received a total of 211 reported incidents of anti-social behaviour, using Home OYce incident type assessment criteria. The distribution of the incidents across the Force area was as follows: — Eastern Division—75 incidents (or 35.5%). — Central Division—79 incidents (or 37.5%). — Western Division—57 incidents (or 27%). At the launch of the “Together” Action Plan, the Government made reference to the one day count, to highlight the problem of anti-social behaviour in England and Wales. 66,107 reports of anti-social behaviour were received during the 24 hour period, with an estimated cost to agencies of £13,500 per day. The estimated cost per year is £3.375 billion.
Type of anti-social behaviour Categories used by NWP Total number of reports received
Nuisance behaviour/Anti-Social ASB 51 behaviour Hoax calls Hoax,Nusiance Phone Calls 2 Drug/substance misuse & drug Drug OVences 4 dealing A nimal relatel dporblem,s Animals, Stray Animal, Stray 12 Dog, Dangerous Dog Street drinking; begging Drunk, Drunk and Disorderly 3 Intimadation/harassment Harassment 14 Prostitution; kerb crawling; — sexual acts Criminal damage/vandalism Criminal Damage 23 Welsh Affairs Committee: Evidence Ev 249
Type of anti-social behaviour Categories used by NWP Total number of reports received
Abandoned vehicles Abandoned Vehicles 18 Litter/rubbish Litter — Vehicle related nuisance & M/Veh Licence, Driving 58 inappropriate vehicle use Alcohol, Driving Ins OV, Parking, Obstruction Road, making oV, interfere M/V, Dangerous/Careless driving, Disqualified driver, Susp. vehicle Noise Noisy party 4 Rowdy behaviour/Disorder Disorder 22
Total 211
The count was the first occasion that the behaviours constituting “anti-social behaviour” were defined by the Home OYce. Using this information, the force embarked upon a community survey prior to the introduction of Dyna Ddigon into several sites on 22 September 2003. The data in respect of the Colwyn Bay area showed that the matters of primary concern (ie the things that aVected people the most) were as follows:
Incident AVected Litter 80% Street drinking/begging 78% Rowdy behaviour 75% Noise 71% Nuisance behaviour 70% Vehicle related nuisance 61% Vandalism 61% Drugs 61% Abandoned vehicles 52% Animals 38% Intimidation/harassment 33% Hoax calls 19% Sex related problems 18%
This survey has aided the implementation of Dyna Ddigon and has reinforced the need for partnership working. The Home OYce Anti-social Behaviour Unit had advised forces that they would not be provided with specific guidance on the methods and standards used to demonstrate force performance in tackling anti- social behaviour. Forces will be required to design their own processes for doing so. The recent publication “defining and measuring anti-social behaviour (Home OYce)” now provides some general guidance that will be incorporated into our existing methods. As previously mentioned, the introduction of a National Standard for Incident Recording (NSIR) will define the type of activities that constitute anti-social behaviour and will enable commonality to be achieved across forces, complemented by an enhanced level of eYciency in data analysis. The collation methods described above relate solely to readily quantifiable data. As increased public reassurance and confidence are amongst the desired outcomes, the collation of subjective (qualitative) data is necessary. Further survey work and the provision of information from other public sector services are amongst the methods being considered to better establish force performance. The force will continue to forge ahead with the development of its ASB performance assessment processes, as it will not be constrained by directions from the Home OYce in this area. Nevertheless, it must acknowledge supporting Home OYce strategic intentions. The force will join with the National Reassurance Policing Programme and develop the collation of signal oVence data. This might not be appropriate on a force-wide basis, as signal oVences are pertinent to local issues, therefore through entities such as Joint Action Groups local signal oVences could be arrived at. There is no reason why these could not be specific to “Dyna Ddigon” sites. Local consultation will need to occur to achieve this. Ev 250 Welsh Affairs Committee: Evidence
The development of methods to collate information that relate to “quality of life” issues needs to continue. It is vitally important that the force establishes the eVect that Dyna Ddigon is having on public reassurance and confidence. ASBOs, ABCs and the like are only a part of the overall intervention picture. There are a large number of sanctions and orders available, such as parenting contracts and curfew orders. There should be some exploration of the feasibility of providing information on such activities if police involvement is a requirement and they support eVorts to reduce anti-social behaviour. An important element of our approach will be occurrence management. In essence, this will mean that if oYcers encounter anti-social behaviour, they will be expected to take one of the following options: — No further action. — Yellow Card. — Fixed Penalty. — Arrest (followed by full range of custody suite disposals). This simplified mechanism will enable (in conjunction with NIRS) incidents of anti-social behaviour to be properly identified and classified, with a quality assured policing response being provided to victims of it. Such occurrences, if dealt with appropriately, will become “detected occurrences”. This will enable appropriate assessments of operational performance to be made.
Further Evaluation In July 2004, The National Reassurance Policing Programme implementation team carried out an inspection of the work being performed by North Wales Police. Whilst there are of course areas in which the force can demonstrate improvements, the feedback received was largely positive and has enabled the force to prepare for participation in the programme: — There is an exceptional level of commitment and enthusiasm amongst all those involved in the planning and delivery of local policing. This is clearly driven from the ACPO team and there was awareness of the desire for local policing at all levels. — Overall, visible, accessible and familiar policing is being implemented to a high degree. — There was evidence of innovation and creativity, but this “appeared” to be restricted to police driven initiatives. — The investment made and foundations built within North Wales are well suited to implementation of reassurance policing, and the additional elements that entails, should this be taken as a strategic decision. — The clear project planning and implementation of Dyna Ddigon was felt to be a particular strong point. A similar approach to implementation of a coherent force-wide implementation of reassurance policing is likely to bring benefits. A number of trial site forces are now engaged in a wider roll out of reassurance policing without the benefit of the considerable investment that has been achieved in North Wales.
Dyna Ddigon—Use of the “Tool Kit” The introduction of new legislation to tackle anti-social behaviour has been welcomed. The frequency with which new powers have been provided has provided some challenges, as the force has learned to implement them successfully.
Anti-social Behaviour Orders Magistrates have possessed the powers to make ASBOs since 1 April 1999. Local authorities and Chief OYcers of Police, in consultation with one another, are able to apply to a Magistrates’ Court for an Order to protect the community from the actions of an individual or individuals over 10 years of age who cause harassment, alarm or distress to others not in the same household as themselves. Equivalent orders are available in the county court and in the Crown Court. The British Transport Police, local authorities and registered social landlords are also now able to apply for anti-social behaviour orders. Housing Action Trusts (HATs) and English county councils are added to the list of relevant authorities who can apply for an ASBO or an Order in county court proceedings. They must consult the police and local authority for the area in which the person resides or appears to reside. Applications by HATS are limited to applications for an order which would protect from anti-social behaviour persons who reside in or who are in the vicinity of premises provided or managed by HATs and applications by county councils are limited to applications for an order which would protect from anti-social behaviour persons within the county of the county council. Welsh Affairs Committee: Evidence Ev 251
A local authority will be able to prosecute for breach of an order where it is the relevant authority which obtained the Order or where the person subject to the order resides or appears to reside in the authority’s area. The Crown Prosecution Service will retain discretion to prosecute in relation to breach of an ASBO. Proceedings to apply for an Order are civil, not criminal; however it has now been clarified that the standard of proof to demonstrate that an individual has engaged in acts that are anti-social is the criminal standard. The need for an ASBO is solely a decision for the court and not subject to this standard of proof. If an Order is made the defendant will be prohibited from doing any act or behaviour specified in it. The Order itself will not give the defendant a criminal record. A breach of an Order is a criminal oVence. The prosecution must prove beyond reasonable doubt that the Order has been breached. Where a person is convicted of a breach, the courts can impose penalties of up to five years’ imprisonment. ASBOs should be used wherever it is thought they will be a successful remedy to anti-social behaviour and where other methods may be less eVective. This does not necessarily mean that other methods have to be tried first. In other words, ASBOs are not, as some have suggested, a last resort. The ASBO will have eVect for a specified period of at least two years or indefinitely until the court makes an order discharging or varying it. It was intended that ASBOs should be targeted at criminal or sub- criminal behaviour, not minor disputes between neighbours or matters which could be dealt with eVectively under other legislation. The types of behaviour the ASBO is intended to deal with include: — Noise — Using and selling drugs — Unkempt gardens (eg those which attract the dumping of goods, creating “eyesores”) — Alcohol and solvent abuse — Criminal behaviour — Prostitution — Verbal abuse — Uncontrolled pets and animals — Intimidating gatherings of young people in public places — Harassment (including racist and homophobic incidents) — Damage to property (including graYti and vandalism) — Intimidation — Nuisance from vehicles (including parking and abandonment) — Nuisance from business use — Rubbish dumping and misuse of communal areas — Riding/cycling on footpaths — Aggressive begging The typical process employed by North Wales Police in obtaining an ASBO is along the following lines: Instances of anti-social behaviour will be challenged by oYcers and full details of the persons involved recorded (by use of the Yellow Card Scheme). These details will be provided to an individual in each of the Territorial Divisions who has been tasked with compiling records on those who come to notice. A letter will be sent out to the parents or guardians of the individual involved (if a juvenile), advising them of the incident. Should the person come to notice on another occasion, a visit by the Community Beat Manager or Youth OVending Team representative will take place. If a further instance arises, then action will be taken with a view to obtaining an ASBO or utilising an ABC (Acceptable Behaviour Contract). At each stage in the process, there are attempts made to stop the oVending from continuing. An “individual” progression through each stage is a matter for Divisional discretion.
Criminal Anti-social Behaviour Orders (CrASBOs)
Orders made on conviction in criminal proceedings Criminal courts—the magistrates’ court, the Crown Court and the youth court—are able to make Orders against an individual who has been convicted of a criminal oVence. The Order on conviction is considered and made by the court after the verdict during a civil hearing. It is not part of the sentence the oVender receives for the criminal oVence. It be made only in addition to a sentence or a conditional discharge. The Order will be granted on the basis of the evidence presented to the court during the criminal proceedings and any additional evidence provided to the court after the verdict. Ev 252 Welsh Affairs Committee: Evidence
The court may make an Order on conviction on its own initiative and an application for an Order is not required. Alternatively, the Order can be requested by the police or local authority, which may make representations to the court in support of the request. The Order on conviction is a civil order and has the same eVect as an ASBO made on application—it contains prohibitions rather than penalties and is made in civil proceedings. It is similar to the football banning Order on conviction in that it is a civil Order made following a criminal procedure. If the oVender is detained in custody the court may make provision for the Order on conviction to become eVective on his or her release. It is considered much easier to obtain a CRASBO rather than an ASBO, although the force is consulting with leading practitioners to establish where blockages may lie and the way forward. A court may make an Order on conviction either at the request of the prosecutor or of its own volition. The court may consider evidence from the prosecution and defence when deciding whether to make an Order. Evidence not admissible in the criminal proceedings may be presented for the purpose of deciding whether to make an Order. The local authority where a person subject to an order resides or appears to reside is allowed to prosecute for breach of that Order. Automatic reporting restrictions from the order on conviction stage of a hearing against a juvenile in the youth court are removed; however the court retains discretion to apply reporting restrictions. Our performance: Force total ASBOs: — Prior to 31 March 2004: 35. — Year to date: 19. — Total ASBOs now obtained by North Wales Police: 54. Our ASBOs are broken down as follows: — ASBOs obtained by NWP (YTD): 3 — CrASBOs obtained by NWP (YTD): 16.
Acceptable Behaviour Contracts Acceptable Behaviour Contracts are an oVshoot of ASBOs. They have no statutory basis. They were pioneered by Islington LBC in association with the police and Islington Community Safety Partnership and provide an alternative to legal action. Although the term “contract” is used, an acceptable behaviour contract is not a legally binding document.
Definition: “An individual written agreement by a young person with a partner agency and the police not to carry on with certain identifiable acts, which could be construed as anti-social behaviour”. Appendix G Hone OYce guidance on Local ASBO Protocols. An ABC is a written agreement between an individual who has been involved in anti-social behaviour and one or more local agencies whose role it is to prevent such behaviour. ABCs are most commonly used for young people but may also be used for adults. The contract is agreed and signed at a meeting between the individual and the lead agencies. Where the person whose behaviour is at issue is a child or young person, parents or guardians should be encouraged to attend. The contract specifies a list of anti-social acts in which the person has been involved and which they agree not to continue. Where possible the individual should be involved in drawing up the contract. This may encourage them to recognise the impact of their behaviour and take responsibility for their actions. Support to address the underlying causes of the behaviour should be oVered in parallel to the contract. This may include diversionary activities (such as attendance at a youth project), counselling or support for the family. It is vital to ascertain which agencies are already involved, especially where the individual is aged between 10 and 17 years. Legal action in the form of an anti-social behaviour order or possession order (if the young person is in social housing) should be stated on the contract where this is the potential consequence of breach. The threat of legal action provides an incentive to ensure that the contract is adhered to. ABCs have been used to address a wide range of anti-social behaviour including: — Harassment of residents or passers by — Verbal abuse Welsh Affairs Committee: Evidence Ev 253
— Criminal damage — Vandalism — Noise nuisance — Writing graYti — Engaging in threatening behaviour in large groups — Racial abuse — Smoking or drinking alcohol while under age — Substance misuse — Joy riding — Begging — Prostitution — Kerb-crawling. The flexible nature of ABCs allows for various agencies to take the lead according to the circumstances in each case, local practice and which agencies can have greatest impact on reducing unacceptable behaviour. Other agencies involved with ABCs—either as signatories on the contract or in providing support to the individual and family—are registered social landlords, social services, schools, environmental health and health services. This is not a prescriptive list. Our performance: — Force total ABCs signed (fiscal year 2003–04): 28. — Force total ABCs signed (current fiscal YTD): 37.
Penalty Notices for Disorder On 12 August 2002 police in three force areas began piloting new powers to help tackle low-level anti- social and nuisance oVending. Police oYcers in Essex, Croydon, West Midlands and the British Transport Police started issuing penalty notices to people aged 18 or over whom they suspect of having committed one of a specific list of disorder oVences. North Wales Police also began operating the measures at the start of September 2002. The penalty notice for disorder scheme has been introduced as a response to the need for a speedy and eVective alternative means of dealing with low-level, anti-social and nuisance oVending, which does not require a court hearing. The schemes stated aims are to: —OVer operational oYcers a new, eVective alternative means of dealing with low-level, anti-social and nuisance oVending. — Deliver swift, simple and eVective justice that carries a deterrent eVect. — Reduce the amount of time that police oYcers spend completing paperwork and attending court, while simultaneously reducing the burden on the courts. — Increase the amount of time oYcers spend on the street and dealing with more serious crime and to free the courts to deal with more serious oVending. OVences for which a penalty notice may be issued include being drunk and disorderly, throwing fireworks in the street and wasting police time. OYcers have the power to issue a penalty notice either on the street or at a police station. The new measures are discretionary and provide an additional option for dealing with a suspect and do not preclude the use of any existing methods of dealing with oVenders. Once a penalty notice has been issued the recipient must either pay the amount shown on the notice or request a court hearing. This must be done within 21 days of the date of issue. Payment of the penalty by the recipient discharges their liability to conviction of the oVence for which the notice is issued. Payment involves no admission of guilt and removes both the liability to conviction and a record of criminal conviction. If the recipient requests a court hearing the case is processed in the normal way, which may result in a hearing. If the recipient neither pays nor elects a hearing usual practice will be for the penalty to be registered as a fine at one-and-a half times the value of the original penalty. This will then be enforced as a normal fine by the courts. PNDs should only be issued to 16 and 17-year-old oVenders for minor, straightforward oVences, where the oVence does not form part of a pattern of oVending behaviour, and greater intervention is not needed (eg a “one-oV” single incident). All current forms of disposal remain available and the option to issue a penalty notice or deal with a case in any other way will be at the oYcer’s discretion. Powers of Arrest, Reprimand and Final Warning arrangements remain unchanged and should be used where appropriate. Ev 254 Welsh Affairs Committee: Evidence
PNDs are not intended to replace Reprimands and Final Warnings. Where oVenders appear to be vulnerable and in need of intervention, PNDs should not be used. OYcers should use the existing forms of disposal to ensure that where it is more appropriate for intervention to take place it does so. The Criminal Justice and Police Act 2001 (Amendment) and Police Reform Act 2002 (Modification) Order 2004 was made on 27 September. This Order added 3 new firework oVences to the PND scheme with eVect from 11 October 2004. A further seven oVences listed in the Order will come into eVect with eVect from 1 November 2004. The Penalties for Disorderly Behaviour (Amount of Penalty) (Amendment No. 2) Order 2004 sets the penalty amounts for all penalty oVences, replacing the 2002 Order. This Order applies the higher tier of £80 to the new firework oVences with eVect from 11 October. The amounts for the other oVences are all eVective from 1 November. The Order raises the lower tier to £50 and resets the penalty for the oVences of being drunk and disorderly and buying alcohol for a person under 18 to the higher tier of £80. The Order provides a schedule listing all penalty oVences and the penalty amount which will apply to each. A revised version of the Police Operational Guidance is being prepared and will be posted on the Home OYce website as soon as possible. The revised version will include guidance on handling the new oVences of theft and criminal damage where a victim is involved. The core principles to be applied when considering issue of a PND for these two oVences are: If a victim is involved whose views should be taken into account when making the decision on the most appropriate disposal. PND disposal precludes the possibility of a court awarding a compensation order in favour of the victim. The victim should be appraised of this fact and advised that they would still have the right to seek redress through the civil courts (ie small claims court). The victim should be advised that PND disposal will remove the need for the victim to act as a witness and/or give evidence in court, and the PND will provide the oVender with an immediate fine. Both theft and criminal damage are notifiable oVences and PND disposals will count as oVences brought to justice.
The North Wales experience: In August 2004, a “snapshot” of the force position revealed that: — Total number of PND issued since pilot—1,066. — 678 paid. — 348 Fine registered. — 36 unpaid. — four elected court hearing. The vast majority of PNDs were being issued for the oVences of Section 5 Public Order Act 1986, and Drunk and Disorderly. The tickets were predominantly being issued to persons in custody: — Number of arrests for Section 5 Public Order—1,381 — Disposed of using FPND—352. — Issued at station—317. — Issued in street—35. — Disposal by FPND as percentage of all arrests—25.5% — Charged and bailed to court 44% — Number of arrests for Drunk and Disorderly—2,589 — Disposed of using FPND—693. — Issued at station 675. — Issued in street 18. — Disposal by PND as percentage of all arrests—27% — Charged and bailed to court—23.6% Due to the situation, the force objectives relating to PNDs were therefore defined as: — Increased street issue. — Improved per cent disposal against all arrests for Section 5 and D&D. — This will be achieved by: — Improved street issue through dealing with 16/17 year olds in the same way as adults. — Disposal will be the decision of the issuing oYcer and oYcers must be positive about this. — Adoption of the Lancashire model utilising the “mobile police station” ticket pouch and ink pad. Welsh Affairs Committee: Evidence Ev 255
— Monitoring through Custody Inspector’s Weekly Performance Review process. —OYcers were interpreting “street issue” to be issue at the time and location of the oVence. PACE allows oVenders to be de arrested where “at any time before the person arrested reaches a police station, a Constable is satisfied that there are no grounds for keeping them under arrest or releasing them on bail”. A record of the arrest needs to be made. This allows FPND to be issued quite lawfully in situations where arrested persons, having been removed from volatile situations are calm and compliant. This has been accepted and incorporated into the simplified ASB guidance document prepared for oYcers.
Our current performance: — Number of PNDs issued to adults in custody (YTD): 415. — Number of PNDs issued to adults elsewhere than in custody (YTD): 52. — Number issued to juveniles in custody (YTD): 27. — Number issued to juveniles elsewhere than in custody: 12. — Number issued to juveniles—per cent of total issued (YTD): 7.7%. — Number of persons arrested for PND applicable oVences (YTD): 10,307. — Total PNDs issued YTD: 506. — Total PNDs issued by North Wales Police since scheme commenced Sept. ’02: 1,572.
OPERATION LIFEBOAT (SECTION 59, POLICE REFORM ACT) This operation involved was commenced when oYcers from the Operational Support Division and Eastern Division, working together to deal with the persistent problem caused by young motorists behaving in an anti-social way in the Wrexham town centre area. Acting under the Dyna Ddigon initiative and using powers conferred on them by the Police Reform Act 2002, oYcers conducted observations on gathering places for motorists, who are categorised by the press as “boy racers”. Once oVences, such as handbrake turns, were committed, those involved were served with a warning notice explaining that if they persisted in their behaviour, their vehicles would be seized. Several vehicles have been seized during the various instances the operation has been run, with a cost to each oVender of £105, plus additional incremental costs dependent upon the length of time the vehicle is retained for. This is proving to be very eVective. There has been local public and media support, and the areas used by the motorists are reported to have quietened down considerably. A protocol is being finalised to enable this operation to be employed Force wide in the near future. It should be noted that North Wales Police were the first Force in Wales to carry out such activities. There must be reasonable grounds to believe a motor vehicle is being used on any occasion in a manner that is careless and inconsiderate (as in s3 of the Road TraYc Act 1988) or contravenes the prohibition of oV road driving (s34 RTA 1988) AND is causing or is likely to cause alarm, distress or annoyance to members of the public. (There must be both careless driving or driving oV road and anti-social behaviour in order to use the legislation.) A warning can be given or seize the vehicle if a warning has been issued in the previous 12 months. In most circumstances it relates to the driver only and any vehicle they are in. There is one instance where if the oVence is committed on the “same occasion” then it can relate to the vehicle, ie a group of people on a trials bike who once one rider is warned they swap and another rider commits the oVence. This can also be applied to “Boy Racers” on a car park for example who are all driving the same vehicle.
The first seizure in Wales: Wrexham Town Centre—July 2003 The initial warning lasts for 12 months, once a second warning is issued and the vehicle seized the warning period is reset to another 12 months from that date so it eVectively acts as another first warning. How long after the oVence can a person be warned or the vehicle seized? There is nothing in the legislation regarding time limits. Certainly it does not have to be at the time and the wording states only the person who appears to be the driver. There have been warnings a couple of days after a complaint when the vehicle has been located and there have been seizures a week or more afterwards. After 21 days, if unclaimed, vehicles may be crushed. The first vehicles to be disposed of in this way in Britain were those seized from an individual in North Wales. Ev 256 Welsh Affairs Committee: Evidence
Our performance:
— Force total warnings issued (fiscal YTD): 348. — Force total vehicles seized (fiscal YTD): 43. — Approximately 12 vehicles have now been crushed.
DISPERSAL OF GROUPS (SECTION 30, ANTI-SOCIAL BEHAVIOUR ACT 2003)
The Anti-social Behaviour Act contains new powers to permit police to disperse groups of two or more and return young people under 16 who are unsupervised in public places after 9 pm to their homes.
These powers will only be available where an authorisation has been made by an oYcer of at least the rank of Superintendent (the “relevant oYcer”), in respect of a designated area.
The relevant oYcer must have reasonable grounds for believing that any members of the public have been intimidated, harassed, alarmed or distressed as a result of the presence or behaviour of groups of two or more persons in public places in any locality in his or her police area (the “relevant locality”) AND that anti-social behaviour is a significant and persistent problem in the relevant locality. “Anti-social behaviour” means behaviour by a person which causes or is likely to cause harassment, alarm or distress to one or more other persons not of the same household as the person.
The powers conferred by the authorisation are exercisable for a period specified in the authorisation, which does not exceed six months.
Power to Disperse Groups in a Relevant Locality
Once the authorisation has been granted, if a constable in uniform has reasonable grounds for believing that the presence or behaviour of a group of two or more persons in any public place in the relevant locality has resulted, or is likely to result, in any members of the public being intimidated, harassed, alarmed or distressed he may give one or more of the following directions:— — Require persons in the group to disperse (either immediately or by such time as he may specify and in such way as he may specify). — Require those persons whose place of residence is not within the relevant locality to leave it or any part of it (either immediately or by such time and in such a way as he may specify). — Give a direction prohibiting any of those persons whose place of residence is not within the relevant locality from returning to it or any part of it for such period (not exceeding 24 hours) from when the direction was given, as he may specify.
(There are occasions when directions may not be given. This is when groups are engaged in conduct under certain sections of the Trade Union and Labour Relations (Consolidation) Act 1992 or Public Order Act 1986).
Power to Remove Persons under 16 years
If (once a relevant oYcer has granted such an authorisation), between the hours of 9 pm and 6 am a constable finds a person in any public place in the relevant locality who he has reasonable grounds for believing: — Is under the age of 16, and — Is not under the eVective control of a parent or a responsible person aged 18 or over.
He may remove the person to the person’s place of residence unless he has reasonable grounds for believing that the person would, if removed to that place, be likely to suVer significant harm. Welsh Affairs Committee: Evidence Ev 257
Police Community Support OYcers also possess the power to disperse groups and remove persons under 16 to their place of residence. The powers to make authorisations and directions also apply to British Transport Police oYcers.
North Wales Police use of the powers:
We first introduced the dispersal powers on 30 April 2004, in the St Cybi’s Churchyard area of Holyhead. This was apparently the first occasion in Wales when the power has been employed to deal with a serious and persistent problem of disorder. The situation had been carefully assessed. The force has had to demonstrate that numerous incidents have taken place in the same area and that numerous individuals have been arrested. This was an issue of great community concern, further evidenced by a survey we performed in Holyhead just before Christmas 2003. Despite our eVorts, the problems did continue and the police and Local Authority have been forced to take this action. We have defined a very small geographic area in the town centre (the end of a pedestrianised street and adjoining church yard) which was the “hot spot” for the problem. An initial assessment of the eVects of the dispersal notice was performed in July 2004, in line with the first anniversary of Dyna Ddigon. Early indications proved positive, with the use of this power being extremely well received by the local community.
Digwyddiadau/Incidents -17.4% Troseddau/Crime -30.8%
Caergybi:canlyniadau hysbysiadau gwasgaru Holyhead: dispersal notice results
The implementation of the Section 30 power is controversial, as it is clearly a very strong measure. It is understood that legal challenges to it are now being mounted in other parts of Britain. It is likely to directly impact upon young people and there will undoubtedly be an ancillary eVect upon our relationship with them, which may not always be positive. Mutual understanding through dialogue is vitally important in order to avoid possible problems. The Dyna Ddigon campaign has as one of its aims the explicit intention of protecting young people from conflict and confrontation. The swingeing use of new powers as a blunt enforcement instrument is not the intention of North Wales Police. Our actions must be proportional to the problem we need to surmount, lawful and necessary. We have no intention of wilfully breaching the human rights of members of our communities. The evolving best practice would appear to be: — Utilise other methods first. — Widely consult on the intended implementation of the power. — Designate a clearly defined geographical area, which is proportionate to what has to be achieved. — Assess the eVects of the use of the power. — Formulate an ‘exit strategy’ so that once the power no longer applies, the problem will not return. This may include measures such as making the area an alcohol free zone. — If there is no need for continued use of the power, remove the designation. Ev 258 Welsh Affairs Committee: Evidence
Areas in North Wales where Dispersal Orders apply:
Power Exercised OYcer Authorising Date Location(s) Expiry date
Dispersal of Groups Chief Supt Pritchard 30/04/04 Market Square & 29/10/04 (Curfew): S.30 Anti-social (Western Division) St Cybi’s Church Behaviour Act 2003 Gardens, Holyhead Chief Supt Sandham 11/07/04 Rhyl (Central Division) Chief Supt Thomson 19/07/04 Brynteg, Wrexham 14/11/04 (Eastern Division) Supt Humphreys (Central 28/07/04 Conwy Town 20/01/05 Division) Chief Supt Thomson 10/09/04 Acton, Wrexham 10/11/04 (Eastern Division)
Closure of “Crack Houses”(Section 1, Anti-Social Behaviour Act 2003)
The Anti-social Behaviour Act 2003 confers on police the power to close down premises being used for the supply, use or production of Class “A” drugs, where there is associated serious nuisance or disorder. A Superintendent (or oYcer of higher rank) can authorise the issue of a closure notice, provided that: The local authority has been consulted with AND that reasonable steps have been taken to establish the identity of any person who: — lives on the premises or — who has control of or — responsibility for or — An interest in the premises. No drug specific criminal oVence has to be proved before a notice can be served or an order made.
Entry to premises
A constable or any other person authorised by the chief oYcer of police for the area in which the premises are situated may enter the property and secure it against entry by any other person, using reasonable force if necessary.
OVences
If persons remain on the premises subject to a closure notice or order without reasonable excuse OR obstructs a constable or authorised person then there is a power of arrest for a constable in uniform and the penalty will be a fine of up to £5,000 or six months imprisonment (which will be increased to 51 weeks by the Criminal Justice Act 2003).
Closure Orders
Service of a closure notice temporarily closes the premises to all of the public except the owner or those who habitually reside there, until a magistrates’ court decides whether to make a closure order. The court must consider this within 48 hours. If the conditions are met, the closure order will close the premises altogether, including to owners and residents, for up to three months, with a possible extension up to a maximum of six months. Police can apply for this extension, authorised by a Superintendent, provided that there are reasonable grounds for believing the extension is needed to prevent the occurrence of disorder or serious nuisance to the public and the local authority has been consulted. The hearing can be adjourned for up to 14 days to allow the occupier or someone else with an interest in the property to show why an order should not be made, eg because problems have ceased or the occupiers have been evicted. The court can order that the closure notice continues to have eVect during this period. Welsh Affairs Committee: Evidence Ev 259
North Wales Police use of the power: On the 7 July 2004, North Wales Police used a Closure Notice for the first time, to close down a nuisance premises in Shotton, Flintshire. Further closures are expected in due course.
Operation Target The Anti-Social Behaviour Act 2003 introduced additional measures to regulate the possession of air weapons and imitation firearms. The relevant parts of the Act imposing these restrictions were commenced on 20 January 2004. North Wales Police devised a high-profile campaign to heighten awareness of new legislation. It secured the assistance of Dyfed-Powys Police, Gwent Police and South Wales Police to hold Operation Target. It took place during the period of Monday, 19 April to Friday, 30 April 2004. The commencement date of the restrictions that now apply to specific air weapons using a self-contained gas cartridge system was the main reason behind Operation Target. These types have become prohibited weapons; therefore they cannot be possessed, purchased, acquired, manufactured, sold or transferred without the authority of the Secretary of State. Provision is made for existing owners of these weapons to retain possession, provided they have obtained a firearms certificate from the police. Such certificates must have been applied for by the 30 April. If not, weapons must have been surrendered to police by that date. The Anti-Social Behaviour Act 2003 created specific oVences relating to air weapons and replicas: It is an arrestable oVence to carry an air weapon (whether loaded or not) or an imitation firearm in a public place without lawful authority or reasonable excuse. There has been an amendment to the specified age at which a young person may own an air weapon. The present limit is raised from 14 to 17 years. It is also an oVence for anybody to give an air weapon to a person under 17. This will mean that no-one under 17 years will be able to have an air weapon in their possession at any time unless supervised by someone who is aged at least 21 or as part of an approved target shooting club or shooting gallery. 14 to 16 year olds (inclusive) will be permitted to have air weapons unsupervised when on private land, provided they have the consent of the occupier. It is an oVence for them to shoot beyond the boundaries of that land. It must be noted that there was no specific exemption from proceedings provided by the Attorney General to accompany this activity in Wales. The primary message is that self-contained gas cartridge weapons are to be surrendered or an appropriate licence applied for. Whilst the force was acting in recognition of the dangers of air weapons (and replica firearms), it was acknowledged that many other purposely manufactured articles are deliberately harmful. The operation provided an ideal opportunity for removal of these items from circulation. The intentions of Operation Target were to: — Heighten awareness of the legal requirements of the Anti-Social Behaviour Act 2003 in respect of self-contained gas cartridge air weapons and the general possession of air weapons. — Encourage those in possession of firearms, ammunition, replica firearms, air weapons and oVensive weapons to surrender them, thereby reducing their overall availability. — Provide tangible evidence of the determination of North Wales Police, in partnership with the other Welsh forces, to deal with the dangers posed by the illegal possession and use of any weapon, in order to reassure the public and reduce crime and anti-social behaviour.
Operation Target Publicity Poster Some 292 firearms of various descriptions were surrendered to police. The assistance of the British Association for Shooting and Conservation was also secured to support the campaign. The unified approach adopted by the four forces was considered to be successful and will form the basis for further joint campaigns.
Force SCAC SCAC Number of Other Air Imitation Weapons Certificates SCAC Weapons Weapons Surrendered Obtained/ Weapons Surrendered Surrendered Applied For accounted for on Certificates North Wales Police 17 25 60 90 20 South Wales Police 13 58 67 98 2 Gwent Police 3 8 13 7 0 Dyfed-Powys Police 37 31 48 5 0 Wales Total 70 122 188 200 22 Monitoring of incidents involving firearms occurs as senior level within the force. An assessment will be commenced shortly to establish the likely eVects of the use of new powers in North Wales and the level of appropriate usage oYcers. Ev 260 Welsh Affairs Committee: Evidence
Young Citizen Awards Working closer with the community is one of North Wales Police’s main priorities. We have launched a programme for 2004 entitled: Young Citizen Awards. The force is recognising young people who help their local neighbourhood, a person, a family member or a school, and the scheme is open to anyone aged between 11 and 18 years old. The Young Citizen Awards will encourage involvement from young people and we are especially keen to hear about projects that can help make local communities safer and better places to live in. Approval of a parent or guardian is required for the nomination, in the event of subsequent publicity involving the finalists.
Awards All nominations are recognised and a panel of judges within the Force selects winners every six months. The Awards Ceremonies are held at Force Headquarters, Colwyn Bay and the prizes are as follows: — First Prize: £250 plus a specially commissioned Young Citizen trophy and certificate signed by the Chief Constable and Deputy Chief Constable of North Wales Police. — Second Prize: £100 plus a certificate. — Third Prize: £75 plus a certificate.
Charity Donation As an added benefit to a community, the prize money is matched and donated to the community project or charity of the winners’ choice. Nominees of the winners also receive £50 donation for charity.
Launch Material Promotional material including posters and nomination forms have been sent to each school, and youth club in each of the local authorities. Nomination forms are also available from Police Stations and a copy has been sent to each station.
Dyna Ddigon—Policing the Night-Time Economy The scope of this area of policing is extremely wide. A number of recommendations are made later within this document. Two examples of our approach are described below. Example 1: Wrexham Town At the end of May 2004 violent crime in the town had shown a rise of over 80%. As a consequence, Operation Reclaim was drawn up as part of the town’s violent crime reduction strategy, £10,000 was obtained from Dyna Ddigon funds to allow the utilisation of extra staV at weekends. £8,000 was later obtained under the National Alcohol Misuse Enforcement Campaign, which was used to perform test purchases at oV-licences, and allow two oYcers to working high-visibility reassurance patrols on Fridays and Saturdays. At the same time, the local police Inspector purchased reflective coats for the door staV of the clubs and bars. A further £500 was spent on a lollipop campaign which has proven very successful. Recent crime figures showed that oVences of violence have now been reduced to 37%. The indications are that week on week on violent crime is falling. An important factor to note that in July and August last year there was a significant police presence in the town following on from the Caia Park disturbances. This resulted in very low numbers of violent oVences and distorted the usual picture with regard to violence oVences. The District Inspector is highly confident that the continued success of Operation Reclaim will yield an actual reduction in violent crime before the year’s end. A reduction of 204 oVences will make this a reality and this is achievable. The purchase of reflective jackets for door staV has been another great success. The £500 has been spent and the Inspector is currently seeking additional funding as an increasing number of premises wish to have them for their door staV.TheeVect at the moment is considered impressive. It has increased a high visibility uniform presence on the street. Voice boxes warning visitors that CCTV is in operation have been introduced. At every stage the press have been involved and the articles stemming from the local media have been almost exclusively positive in nature. Welsh Affairs Committee: Evidence Ev 261
The water bowser concept continues to be a hit with the public. The fact that its use has now been extended to tackle litter has been extremely well received. Soon it will have a day job as well—dealing with people caught allowing their dogs to foul footpaths. (Something that is top of the list for complaints to the council). Individuals are oVered the opportunity to clean up their mess and are issued a Yellow Card. Should they decline, the issue of a PND or arrest are further options that are being used. The introduction of night buses is now being pursued. Approximately two years ago the Wrexham Night Safe group looked at a Night Bus Scheme for the town. The only bus company willing to look at it was Arriva. The idea stalled as Arriva would not allow their drivers to handle money late at night. Arriva wanted the Local Authority or night clubs to fund the service. The club, bar and pub operators could not agree a fair method of paying for the scheme. Recently, oYcers have made a liaison visit to Blackpool where the local bus companies had been faced with the same problem. The solution has been found in providing ticket machines in the town centre. A person arrives in town and then places £2 in a ticket machine to purchase a ticket for the home journey. The purchaser has to select a Midnight, 1am, 2am, 3am or 4am ticket. These tickets are not transferable and there is a cut oV time to encourage people to buy the ticket early. The machine is then capable of sending information to the bus operator as to how many people need transport and at what time. A recent development has been a trial of a Night Bus Scheme in St Helens. One of the bus companies taking part is Arriva. The results have been extremely encouraging with considerable reductions in violent crime, reductions in anti-social behaviour while at the same time a substantial rise in people visiting the town centre at night leading to increased business. Wrexham now has 24 hour shopping with large supermarkets open seven days a week. This has resulted in some additional work with shoplifters now being taken outside what was traditionally their normal working hours. Newi College also continues to expand its courses targeting foreign students. Many new students have arrived for the new term. Some of these students come from areas where there is a bar culture and so they continue to come into town at night to make use of the growing numbers of small bars. Inevitably this does lead to occasional disorder. Ian Lucas MP, Eleanor Burnham and representatives of the Policing Standards Unit have recently accompanied oYcers at night, to experience the nature of policing the night-time economy. They have been given full access to our patrols and processes and the feed back has been extremely favourable. In the next fortnight, Example 2: Rhyl The use of a water bowser, on similar lines to that first introduced in Wrexham, has taken place. This, when combined with the Yellow Card Scheme, is proving a worthwhile deterrent to anti-social behaviour. The local District Inspector is eVectively using closure orders in Rhyl in respect of licensed premises. He is engaged with the managers of licensed premises and assists them by implementing action plans when failings are evident. He also meets on an almost weekly basis with the operators of the big eight nightclubs in Rhyl, in order to ensure that standards are maintained. Much of the basis for focussing on specific premises stems from intelligence provided by PCSOs and is supported by analysis of reported incidents. It is by concentrating on licensed premises and ensuring that a manager is responsible for the conduct of individuals not just on the premises, but in its environs, that standards of behaviour can be improved and a cultural shift (with a complementary drop in crime levels) can occur.
National Alcohol Misuse Enforcement Campaign The Police Standards Unit and ACPO spearheaded the summer alcohol misuse enforcement campaign aimed at tackling alcohol-related violence and disorder and targeting those who encourage under-age and binge-drinking. The force worked closely with partners such as Trading Standards, the Fire Service, environmental health oYcers, the licensing industry and others to ensure that concerted action was taken to combat the problems facing towns and cities across North Wales. The campaign was cited as a first step towards achieving the longer-term aims of the Government’s Alcohol Harm Reduction Strategy. It was intended to raise awareness of the issues and signal to those who sell irresponsibly and drink irresponsibly that the police and partners will no longer tolerate actions that fuel alcohol-related. This campaign is a first step towards achieving the longer-term aims of the Government’s Alcohol Harm Reduction Strategy. It is intended to raise awareness of the issues and signal to those who sell irresponsibly and drink irresponsibly that the police and partners will no longer tolerate actions that fuel alcohol-related violence and disorder. Ev 262 Welsh Affairs Committee: Evidence
NORTH WALES POLICE AREA—RESULTS FOR NATIONAL ALCOHOL MISUSE ENFORCEMENT CAMPAIGN
On licenses OV licences Total number of visits conducted by police and partners 459 275 Percentage of oVences identified from visits 3% 0%
On licences OV licences Total number of test purchase operations 0 9 Total number of Licensees identified as selling to persons 0 3 underage Percentage of oVences identified from test purchase operations – 33% Total number of arrests (not subject to FPNs) 130 Total number of disposals (subject to FPNs) 67 Total number of Fixed Penalty Notices issued for causing 25 harassment etc (S. 5 Public Order Act) Total number of Fixed Penalty Notices issued for drunk and 31 disorderly (S. 91 Criminal Justice Act 1967) Total number of Fixed Penalty Notices issued for other alcohol 11 related oVences Total number of disposals following arrest 53 Total number of disposals not leading to an arrest 14 Number of confiscations of alcohol from youths (Confiscation 16 of Alcohol (Young Persons) Act 1967) Number of confiscations of alcohol—alcohol exclusion zones 101 and designated areas (S.12 CJPA 2001 & S.155 LA 2003) Number of dispersal orders 3
From three participating BCUs within North Wales as of 20/09/04.
Tackling Anti-Social Behaviour:What More Do We Have To Do? Consolidate the implementation of our Dyna Ddigon initiative so that it is truly responsive to the needs of communities. Continue to forge ahead with innovative use of new powers, including parenting contracts and acceptable behaviour contracts. Maintain the commendable increases in performance of the force in priority crime areas. Raise awareness within our own organisation of the need to tackle anti-social behaviour and increase the community perception of safety, using a problem-solving approach. Provide appropriate training to those who are engaged on the “front line” in dealing with local community problems. Increase the number of individuals within the extended police family, in particular the numbers of Police Community Support OYcers, Accredited Wardens and Volunteers. Introduce a new system of occurrence management so that a high-quality, nationally recognised service to incidents of anti-social behaviour can be achieved. Improve our liaison with other forces in Wales, so that a unified approach to anti-social behaviour issues can be adopted and best practice disseminated. This will become a reality on the 19 October, when the first Wales police ASB forum meets involving all forces, including the British Transport Police. Refine our performance management process so that true qualitative data representing progress in community issues can be obtained. Further our strong relationships with Local Authorities and other organisations across North Wales, assisting and encouraging them to use the new powers available to them. Involve ourselves in the National Reassurance Policing Programme to ensure that we continue to lead the way in community policing. Publicise our eVorts and celebrate success. Lobby the Welsh Assembly Government to adopt the powers made available by the Anti-social Behaviour Act 2003, where it has presently failed to do so. Ensure that problems relating to the environment and night-time economy are tackled with vigour, in partnership. It is possibly these two areas that will soon begin to assume the greatest significance. Ensure that witnesses and victims are supported and encouraged to provide evidence. Welsh Affairs Committee: Evidence Ev 263
Ensure that far wider usage of fixed penalty tickets for appropriate oVences occurs. Work to establish the potential for joint anti-social behaviour units involving the police, local authorities and other organisations such as Youth OVending Teams. Firmly establish our model for community policing, involving all elements of the extended police family, across North Wales.
Tackling Anti-social Behaviour:The Impact of Devolution Devolution has undoubtedly led to challenges being encountered in the implementation of new powers to deal with anti-social behaviour. The most obvious diYculties present themselves when diVering elements of new enactments are introduced in England and not Wales. This situation does not appear to apply conversely. Prime examples of this are contained within the Anti-social Behaviour Act 2003: — The duty for landlords to publish policies and procedures. — Injunctions against anti-social behaviour. — Demoted tenancies. — Parenting Contracts for truancy and exclusion, as well as Parenting Orders on exclusion. — Penalty Notices for parents in cases of truancy. — Closure of noisy premises by approved Environmental Health OYcers. — National availability of penalty notices for noise at night. — Removal of graYti from street furniture and the like. — Waste and litter—powers for Local Authorities to tackle fly-tipping and enforce litter abatement notices. — Public Order and trespass. — High hedges. — Proceedings under Section 222 of the Local Government Act 1972: power of arrest attached to an injunction. Forces in Wales are faced with the often ludicrous situation of being advised that new powers are available (as listed above) only to later discover that they only apply to Wales. In particular, the power to issue penalty notices in the case of truancy is listed in Home OYce publications as applying to both England and Wales, yet this power has specifically NOT been introduced in Wales. This serves to create a frustrating and confusing predicament. The primary cause for concern is that these powers are perceived as being of great potential in alleviating communities from problems that have a significant detrimental impact, yet partner agencies and the police are unable to utilise them. We urge the Welsh Assembly Government to confer on relevant organisations the appropriate powers that will enable them to function unhindered and make a real diVerence in communities. The information relating to the introduction of new powers must be unambiguous and well publicised, to avoid further diYculties.
Tackling Anti-social Behaviour:What We Need Others To Do We are anxious to build upon the good relationships we hold with Local Authorities and other agencies and organisations throughout North Wales. We need to ensure that, where the appropriate powers have been granted, our partners are given all possible assistance to make use of them. When they do not, and it is to the detriment of a community, we are not willing to conceal inaction. Accountability is a key principle of our policing approach to local issues. We need to develop a shared understanding between the partner agencies, communities and North Wales Police about the definition of anti-social behaviour in a specific area and the role that each agency will play in tackling it. Shared ownership is vital. Joint action is the only way in which anti-social behaviour can be tackled eVectively. There needs to be government action to facilitate joint activity, down to a local fully integrated strategy—for us, this is Dyna Ddigon. Joint agency activity to tackle anti-social behaviour must have applied to it a set of common minimum standards. There must be methods of identifying, developing, evaluating and promulgating measures that work—for all the agencies and bodies involved. A common performance regime across all the agencies involved, with joint targeting and scrutiny functions, must be adopted. Ev 264 Welsh Affairs Committee: Evidence
There must be recognition on the part of all agencies that local people must be involved in the process of deciding what aspects of behaviour are causing them the most diYculties. Negotiation with communities as to how to prioritise and address local issues must become the norm. Multi-agency action consisting of a mix of help and enforcement, supported by the National Intelligence Model, will be eVective in reducing anti-social behaviour. The activation of local agencies in an intelligence led strategy must be enhanced and this means joint targets, explicit monitoring of performance against those targets, and proper levels of resources. Private landlords, as well as Registered Social Landlords, do have an important role to play and we urge for supportive action and positive enforcement to be performed. We support the ACPO position on policing of the night-time economy30, in that: — There must be support for local approached to be delivered through CDRPs in a holistic manner, taking into consideration preventative and educational matters, as well as powers of enforcement. — There must be more eVective integration and enforcement of licensing and planning laws. Resident’s views must be given a high priority in determining whether a licence is granted or renewed. — Saturation (the cumulative eVect) must be grounds for refusal of a licensing application. — Tighter regulation is required to prevent changes of use of premises, within and between classes. — There remains a need for the police to be able to object to issuing of personal and premises licenses. — The police and Local Authority must have stronger powers to close licensed premises temporarily (perhaps up to seven days) and permanently where they are creating crime and disorder problems and selling to those underage. — Policing the night-time economy creates a huge demand on police resources which are currently stretched in many town centres. The ACPO position is to support the “polluter pays” principle and the view that licensed premises should be responsible for the costs associated with crime and disorder problems resulting from the night-time economy. — Local Authorities must be empowered to promote mixed venues to prevent a pure youth drinking culture. — Good planning has a critical role to play in prevention, both in the overall environment of town centres and in licensed premises. Local Authorities use of planning and licensing regulations and the use of Section 17 of the Crime & Disorder Act must have more impact in this area. The ability to impose conditions to the grant of licenses relating to door staV, CCTV provision, etc remains critical. — A unified database of licensed premises and persons, rather than a series of local ones, together with a national inspectorate for licensing. — There must be available safe transport to deal with late night closing. — The administrative burden of schemes such as Pub Watch and CCTV must be removed from the police. They are supported, as is the promotion of a national proof of age scheme. — The Department of Health must be engaged more in addressing problems locally. — National chains should be tied into local issues through the licensing process. In terms of the environment and crime and disorder issues, the following have been included in the ACPO response to the recent DEFRA consultation paper: — Extend the objectives of Crime and Disorder Reduction Partnerships to include reference to local environmental crime — Extend the litter oVence to dropping litter on all types of land, including “aquatic environments”. — Extend local authority powers in respect of litter to cover graYti and fly-posting. They should be extended to “placarding”, prostitute carding and stickers placed on lamp posts and roadside furniture in addition, if this is not currently covered in the legislative definition of “fly posting”. All of these issues are similar and are viewed and dealt with here as “vertical litter”. They demand similar powers of enforcement, rather than addressing each of these problems in isolation. — Extend the scope of the Code of Practice on Litter and Refuse to include wider local environmental quality issues. — Extend GraYti Removal Notices to cover Fly-Posting. — Remove the restriction on the designation of land under litter control areas. — Extend the “Cleansing Notice” powers to local authorities outside London. — Extend Free Literature Distribution Controls to local authorities outside London. — Specifically define discarded chewing gum (including bubble gum) and smoking related materials as “litter”.
30 ACPO submission to Home AVairs Committee on anti-social behaviour 2004. Welsh Affairs Committee: Evidence Ev 265
— Make special event licences include street clean-up provisions. — Extend powers for dealing with abandoned shopping and luggage trolleys. — Introduce a new oVence and clear-up provisions for dealing with the illegal disposal of waste. — Introduce Fixed Penalty Notices for waste left out on the streets. — Introduce a more eVective system for stop, search and seizure of vehicles. The police service oVers general support to the proposal made here. However following the passage of the Police Reform Act 2002 it is no longer always necessary for a police constable to be needed to stop a vehicle on a road. Under section 40 PRA02 Schedule 5 para 8 a Chief Constable can accredit an employee of any other suitable organisation to stop vehicles on a road. This accreditation regime is currently in use to allow Vehicle Operator Services Agency (VOSA) staV to stop vehicles throughout the country. It would be a very simple matter to extend this power for the purposes now proposed. Such an extension would have police support and would enable an eVective regime to be created without the need to involve the police directly. — Create new oVences and powers in relation to nuisance vehicles. — The Home OYce and Department for Transport are currently collaborating over two Bills which will together significantly enhance police powers to deal with unregistered, unlicensed or abandoned vehicles. Both departments have indicated their intention to legislate as soon as possible. ACPO warmly welcomes these intentions and I suggest that the proposal in the current consultation document be discussed with us to avoid any possible duplication or omission in the legislation. — Streamline the dog byelaw system. — Give local authorities full responsibility for receiving stray dogs. This was a formal recommendation of the Police Reducing Bureaucracy Taskforce, already accepted by the Home OYce. — Give authorised oYcers the power to request names and addresses. The power to request name and address is already available to those persons Accredited by a Chief Constable under Schedule 5 PRA02. It may be that the simplest way to achieve this proposal is to extend the existing scheme. — Extend fixed penalty issuing powers to other bodies. — Extend statutory nuisances to include artificial light and nuisance from insects. — Extend the power to issue statutory codes of practice to nuisances other than noise. — Introduce new measures to reduce noise nuisance. There is no doubt that excessive noise is still regarded as a major problem by members of the public. This problem continues to cause the police significant diYculty and ACPO encourages the Government to strengthen the available powers to deal with the problem. However we do have some concerns about some of the proposals made in the consultation document, particularly that to extend the requirement under section 23 of the London Local Authorities Act 1991 to the whole of England and Wales. — Create new powers to deal with nuisance alleyways.
Tackling Anti-social Behaviour:Our Achievements So Far — Dyna Ddigon has been extremely well received by local communities and other agencies, and has been subject to praise at senior Government level. Twenty-one areas across the force will soon be included in the initiative. — Our Community Beat Managers are now in post force wide and working with the community to tackle anti-social behaviour and disorder. — Our Schools Liaison OYcer programme has been now been introduced and 16 oYcers are now in post. — We have increased our number of ASBOs to 54, and this figure is still increasing. — We were the first force in Wales to use leaflets to inform communities of those who have had ASBOs made against them. — We were the first force in Wales to introduce a dispersal order (curfew), in Holyhead, which is proving successful. We now have five such areas. — We led Operation Target to remove air weapons from circulation, resulting in 292 being surrendered across the country. — Operation Lifeboat has been expanded force wide, so that vehicles used in an anti-social manner can be seized by the police. 348 drivers have been warned and 43 vehicles seized, with several actually being crushed during the current YTD. We made the first seizures in Wales. — 506 Penalty Notices for Disorder have been issued this fiscal year, with the Force total now standing at 1,572. — Operation Reclaim in Wrexham is having a great eVect upon drunken behaviour. Ev 266 Welsh Affairs Committee: Evidence
— Crime significantly down in nearly every Dyna Ddigon area, when compared with last year. This fiscal year to date (to September 2004): — Holyhead: "1.4%. — Llangefni: "28.7%. — Peblig Ward: "33.6%. — Bangor: "2.0%. — Pwwlheli: "5.9%. — Porthmadog: "10.1%. — Barmouth: 27.5%. — Llandudno: 6.2%. — Colwyn Bay: "9.9%. — Kinmel Bay: "8.0%. — Prestatyn: "8.6%. — Denbigh: "17.2%. —BrynOVa: "23.5%. — Hightown: "30.7%. — Rhostyllen: "1.2%. — Chirk: "28.1%. — Bryn Gwalia: 14.9%. — Coleshll & Castle: 4.3%. — Connah’s Quay: "12.0% — Our Yellow Card Scheme has been introduced force wide, reiterating our message that anti-social behaviour is completely unacceptable. Other forces are now looking at this scheme. — We have just made our first awards under our Young Citizen Awards Scheme. — We have obtained our first closure order under the Anti-social Behaviour Act 2003, which has led to the immediate closure of a nuisance premises in the Flintshire area. More will follow. D A Roome October 2004
4. Written evidence from South Wales Police
1. Executive Summary 1.1 South Wales Police, with 3,313 police oYcers and 1,715 police staV, is by far the largest of the four Welsh police forces. The force area includes 42% of the population of Wales and the cities of CardiV and Swansea, which have a combined population in excess of the total population of Dyfed Powys. 1.2 The Home OYce accepts that socio-economic, demographic and geographical factors should be taken into account when comparing the performance of police forces and Basic Command Units. For comparative purposes, South Wales Police has been grouped with the police forces of Avon and Somerset, South Yorkshire, West Yorkshire, Lancashire, Humberside, Durham and Gwent. 1.3 The scale and complexity of incidents and events routinely dealt with by South Wales Police make it unique within Wales. CardiV, as the Welsh capital and one of the fastest growing cosmopolitan cities in Europe brings challenges comparable to those faced by the major metropolitan areas of England and frequently requires additional policing resources from across the force eg 901 police oYcers were required for the 2004 FA Cup Final. On average, South Wales Police deals with 52% of Welsh 999 calls, 40% of immediate response incidents, 14 murder enquiries and 28 suspicious deaths a year. 1.4 Strategic assessments have shown that the risk to South Wales from organised crime is significant and as a consequence the Chief Constable has committed substantial resources to combating criminality operating at both regional and national level. These resources are not only benefiting the communities of South Wales but also those in our neighbouring force areas. It is also the case that a high proportion of South Wales Police resources are required to combat organised and serious crime which in turn reduces numbers available for local policing. Welsh Affairs Committee: Evidence Ev 267
Chapter 3 National Policing Plan 1.5 Both force and Community Safety Partnership plans take account of targets set out in the National Policing Plan and priorities identified through local consultation. 1.6 Early national targets had the eVect of focusing police activity on a narrow range of crimes, sometimes at the expense of local priorities. The development of the Police Performance Assessment Framework is positive and seeks to take account of a wider range of policing functions. The challenge to Chief Constables is to ensure that strategies are not directed at a narrow range of activities that do not incorporate customer focus, community engagement and public reassurance. 1.7 Both police forces and community safety partnerships produce three year strategies whilst funding is based on a 12 month cycle. Short term funding and annual targets encourage gains that can be easily measured rather than more long terms strategies needed to address complex problems with deep rooted social and economic causes.
Chapter 4 Use and Availability of Resources 1.8 The policing style of the force is community and partnership based, intelligence led and focused on problem solving. 1.9 The force has seven Basic Command Units (BCU) each coterminous with a unitary authority boundary and commanded by a police oYcer of chief superintendent or superintendent rank who has considerable flexibility for the delivery of local policing. As well as a BCU’s own resources, additional support is available from a number of specialist departments. 1.10 The number of police oYcers has increased significantly in recent years as a result of the government’s Crime Fighting Fund, funding provided by the Police Authority and successful bids for funds made available by the Home OYce and Welsh Assembly Government for specific initiatives. The increase in police numbers has been accompanied by a civilianisation programme which resulted in 121 police oYcers being returned to operational posts during 2003–04. 1.11 Over the next three years the Chief Constable plans to widen the extended policing family by recruiting an additional 100 Police Specials, 200 volunteers and 300 accredited persons. The force has recently made a bid to the Home OYce for an additional 120 Police Community Support OYcers. 1.12 The force is currently piloting a 12 hour shift pattern for response oYcers which is aimed at better matching oYcer availability with demand. The force has also significantly reduced police oYcer sickness in recent years. 1.13 A number of factors continue to impact on oYcer availability not least of which is the exponential growth in demand for resources combined with the increasing complexity of policing. 1.14 Improving availability and accessibility to police services is a key aim of the force Crime and Reassurance strategy. The force has made considerable eVorts to improve its call handling service and recent results indicate good progress is being made. 1.15 Nearly half of the force’s 114 operational police buildings are more than 50 years old and many are no longer fit for purpose or in the right location. The force is working with partners to provide a policing presence in areas where there are none eg the many rapidly expanding out of town retail developments. In addition, a project is underway that will allow the public access to stations which are not currently open on a 24 hour basis. Inside they will be able to use technology to either make contact with a police oYcer or obtain information direct from a database. The force is also looking to make use of kiosk technology to give the public greater access to police services. 1.16 The four Welsh police forces are involved in regional collaboration initiatives which are aimed at increasing operational capability, improving eYciency and reducing costs.
Chapter 5 Performance and Comparison with other forces 1.17 Last year, in the South Wales Police area, overall crime fell by 4.4%, a reduction of 6,259 victims. During the first five months of this financial year, crime has fallen by 9% (5,218 fewer victims). 1.18 In comparison with its most similar family of forces, for the period to the end of July 2004 (latest figures available), South Wales Police had the third lowest level of recorded crime and the second highest detection rate. 1.19 In terms of the Police Performance Assessment Framework, which is based on comparisons with the Most Similar Forces group and incorporates a wider range of police work, the force bettered the family average in four out of the six measured domains. Ev 268 Welsh Affairs Committee: Evidence
Chapter 6 Local Government and National Assembly for Wales Strategies 1.20 Devolved government resulted in many statutory community safety partners coming under the responsibility of the National Assembly for Wales. As a result, a close interface has developed between the police and devolved services. 1.21 South Wales Police is committed to community regeneration and to the National Assembly’s “Community First” programme. Seventy two police oYcers in 14 teams have been deployed to seven Community First areas. The oYcers operate closely with both statutory and non statutory partners and have been instrumental in producing community action plans which are aimed at solving both crime and anti social behaviour. They are regarded as a resounding success by the communities they serve and the Chief Constable is looking at ways to increase the number of teams to 25 during 2004–05 and 35 during 2005–06. 1.22 A strategic assessment in 2001 identified that the Southern Wales area was being targeted by organised crime gangs dealing in drugs. In response the three southern Welsh forces, with financial support from the Home OYce and Welsh Assembly Government, created a joint task force known as Tarian. It is based on an intelligence led approach that targets criminals operating at a regional/national level. As well as robust enforcement, a large emphasis has been placed on tackling causal factors through partnership working eg education, treatment and support for communities. 1.23 The force Crime and Reassurance strategy is embedded in partnership working. The BCU commander is a key member of the local Community Safety Partnership and initiatives to tackle both crime and anti-social behaviour are based on a partnership approach.
Chapter 7 Strategies to Address Crime and Anti Social Behaviour 1.24 It is fully recognised that performance indicators that show falling levels of crime will not lead to increased public reassurance unless accompanied by tangible improvements that result in people feeling safer. The South Wales Police Crime and Reassurance Strategy is the overarching strategy adopted by the force and takes account of priorities identified in the strategic and annual plans. A process known as Compstat has been introduced to drive progress towards both force and local priorities. 1.25 In June 2004, an Anti-social Behaviour Framework was agreed by community safety partners across the force area. The framework is based on a graduated approach that ensures that individuals are made aware of the consequences of their behaviour. It has the flexibility to by pass stages depending on the severity of a case. It has proven eVective in raising parental awareness of a child’s behaviour outside the home and in the majority of cases first stage interventions have resolved problems. In some cases additional partnership based interventions, involving social services and education departments as well as the police, have been required and have also proved successful. In the most severe cases anti social behaviour orders have been utilised and in one area of CardiV a curfew and dispersal order has been introduced. 1.26 A definition of anti-social behaviour would enable a national performance monitoring regime to be introduced that would enable progress to be measured and meaningful comparisons between areas made. The lack of a nationally agreed definition has meant that alternative measures have been sought. The worst example has seen numbers of anti-social behaviour orders being taken as an indicator of success. It could equally be argued that an anti-social behaviour order represents a failure because earlier interventions did not resolve a problem.
2. IntroductioN 2.1 South Wales Police is by far the largest of the four Welsh police forces with an establishment of 3,313 police oYcers and 1,715 police staV. It is the 11th largest police force in Wales and England, only exceeded in size by the five forces covering metropolitan districts and some of those in its most similar family group. 2.2 The force area covers 10% of Wales, the former counties of South, Mid and West Glamorgan, and 1.3 million people, 42% of the Welsh population. The area includes the two largest cities in Wales, CardiV and Swansea, with a combined population larger than that of Dyfed Powys, and equivalent to 96% of the population of Gwent and 80% of North Wales. 2.3 The scale and complexity of incidents routinely dealt with by South Wales Police make it unique within Wales. For example, CardiV as the capital of Wales and one of the fastest growing cosmopolitan cities in Europe brings comparable challenges to those faced by the major metropolitan cities of England. The presence of the National Assembly for Wales has required a dedicated policing unit responsible for its security. In the year ending 31 March 2004, 544 separate events were held in the city centre alone. Some of these events required a significant policing presence eg during 2004, 197 police oYcers were required for Wales v Italy (rugby), 273 for Wales v Ireland (football) and 901 for the FA Cup Final (Manchester United V Millwall. This latter commitment involved a number of police oYcers close to the total strength of the Dyfed Powys and Gwent forces). The city centre’s licensed premises have capacity for 60,000 people and routinely attract 40,000 young people on a Friday and Saturday evening. The student population of CardiV is 37,000, a population larger than many towns in mid Wales. Welsh Affairs Committee: Evidence Ev 269
2.4 On an all Wales basis, during 2003–04, South Wales Police dealt with 52% of 999 calls and 40% of immediate response incidents. Over the past four years the force has dealt with an average of 14 murder enquiries and 28 suspicious deaths. 2.5 Former dependence on the coal and heavy industry has left a legacy of social deprivation that aVects many communities. Indeed, 44 of the 100 most deprived communities in Wales (and indeed Europe) are to be found in the force area. In addition to the wide range of social and economic problems associated with deprivation, many young people living in these areas have become drug abusers and victims of the associated criminality linked to drug addiction. 2.6 The Home OYce recognises that socio-economic and demographic characteristics as well as geographical coverage can have a profound eVect on policing performance. As a result, police forces and Basic Command Units (BCU’s) have been grouped on the basis of similar characteristics. (The groups are known as “most similar forces” and “most similar basic command units”). In doing so, the Home OYce considers that any variation in performance could result from other factors such as the eYciency or working practices of policing. 2.7 The most similar forces used to compare the performance of South Wales Police are Avon and Somerset, South Yorkshire, West Yorkshire, Lancashire, Humberside, Durham and Gwent. 2.8 The seven Basic Command Unit’s making up South Wales Police have also been grouped with comparable BCU’s. For example, CardiV and Swansea are grouped with Sunderland, Newcastle, Hillingdon, Luton, Plymouth, Portsmouth, Middlesborough and Bristol. Bridgend and the Vale of Glamorgan are included in the same family and are compared with areas such as Rotherham, Barnsley, Warrington, Wigan, Doncaster and Pontypool. Rhondda Cynon TaV, Neath Port Talbot and Merthyr Tydfil are also included in the same family and are compared with parts of Manchester, Lancashire, Rochdale, Hartlepool, Humberside, Newport and Caerphilly. BCU’s from Dyfed Powys and North Wales are not included alongside those of South Wales Police. 2.9 The South Wales Police area is of major strategic importance to southern Wales. The good road network (particularly the M4 corridor and A465 Heads of the Valley road) and rail links together with the sizeable market, present the force with an ever present risk that organised crime gangs from England and Europe will infiltrate the region. Evidence indicates that target hardening measures resulting from the Street Crime Initiative, which only applied to a small number of large cities in England, is resulting in organised crime seeking new markets and areas they consider to be vulnerable. 2.10 The relative proximity to Bristol, and other cities such as London, Manchester, Liverpool and Birmingham, which have levels of gun crime and drug related violence not seen in the cities of South Wales, is an ever present reminder of the seriousness of the threat from organised crime. As a consequence, the Chief Constable has committed significant resources to regional and national operations. At national level, 30 experienced detectives are currently seconded to the National Crime Squad, five to the National Criminal Intelligence Service and two to the Immigration Service. In addition, South Wales Police supplies 63% of the police oYcers seconded to the Regional Task Force, the Regional Asset Recovery Team and the Regional Intelligence Cell. 2.11 The significant commitment to combating criminality operating at regional and national level not only benefits the communities of the South Wales Police force area but also those in our neighbouring forces. The need for covert resources to be deployed and operations undertaken on a large scale does however reduce the number of oYcers available for duties at a local level. 2.12 The following chapters follow the terms of reference set out by the committee.
Pen Picture of the Chief Constable 2.13 Barbara Wilding joined the States Police in Jersey as a cadet in 1967 and became a police constable in 1970. In 1971, she transferred to the Metropolitan Police where she predominantly served as an operational detective throughout London and on specialist units in New Scotland Yard. She became an Assistant Chief Constable in Kent Constabulary in 1994, with responsibility for Personnel, and in 1997 took command of Crime Operations, Intelligence, Major Investigations and European Liaison. In 1998 she transferred to the Metropolitan Police as Deputy Assistant Commissioner and served in various roles, including the command of security and protection of ministers, the Royal family, Special Branch, Heathrow and the specialist firearms unit. 2.14 Miss Wilding was appointed Chief Constable of South Wales Police on 1 January 2004. 2.15 The South Wales Police Chief Constable job description recognises the complexity of policing demands and requires the post holder to have experience of policing at both force and national level. Miss Wilding is vice chair of the ACPO Terrorism and Allied Matters Committee, chair of the Counter Terrorism Technologies and Tactics Working Group for Deadly and Determined Attacks (suicide terrorism), chair of the Police Dogs Strategic Committee and chair of the Association of Chief Police OYcers’ Women’s Forum. She is a member of the Association of Chief Police OYcers’ Conflict Management Committee. Ev 270 Welsh Affairs Committee: Evidence
3. National Policing Plan
Introduction 3.1 The National Policing Plan resulted from the Police Reform Act 2002 and sets out the government’s framework and context for policing. It sets national priorities for the police service and the indicators against which performances will be judged over a rolling three-year period. 3.2 The National Policing Plan has the propensity to over ride local priorities. In recent years nationally set targets have contributed to policing activity being focused on a relatively small number of areas relating to only a few aspects of policing eg autocrime, violent crime and burglary. Whilst these were issues that aVected many communities, local police activity was often prioritised with national targets in mind and sometimes at the expense of more local concerns. Strategies and tactics that gave easily measured performance outcomes became increasingly important due to the need to improve performance as indicated through league tables which compared forces and Basic Command Units (BCU’s). Examples of tensions created by focusing on crime management at the expense of concerns identified as more pressing by local communities have arisen in areas subjected to anti-social behaviour. A requirement to meet national targets has sometimes skewed policing resources away from the lower level public nuisance issues. 3.3 In recent years funding for the police service has also been subject of increased central control. There are three elements to police funding, a Home OYce grant, a Department of Transport Local Government and Regions (DTLR) grant and council tax. In 2003–04 the Home OYce retained 36% of the national increase in police funding. The funds were retained for use by the Police Standards Unit. It resulted in short term funding being directed at particular issues of national concern. For example, £68 million was directed to ten forces to combat street robbery. None of the Welsh forces was involved in this initiative. The replacement of core funding by short term funding directed towards specific projects again carries with it the danger that centralist policies will be taken forward regardless of issues identified locally as more pressing to local communities. 3.4 By the time of publication of the second National Policing Plan 2004–07, at both national and force level, quantitative performance in terms of lower crime and higher detections had improved but this had not been accompanied by corresponding levels of public satisfaction with police performance. 3.5 The challenge for Chief Constables is to ensure that strategies are not directed at a narrow range of activities that do not incorporate customer focus, community engagement and public reassurance.
National Policing Plan 2004–07 3.6 The National Policing Plan provides a strategic overview against which each police Force and Authority must prepare a local three-year rolling Strategy Plan and an Annual Policing Plan which take account of local priorities established through local consultation. 3.7 In addition, each Crime and Disorder Reduction Partnership (CDRP) is required to provide a three- year strategy which states how local priorities will be delivered, which agency will take the lead and in relation to particular elements of the plan, which other agencies will be involved in delivery and the resources that will be available. 3.8 The Home Secretary’s key priorities for 2004–07 are: 1. Providing a citizen focused service to the public, especially victims and witnesses, which responds to the needs of individuals and communities and inspires confidence in the police particularly amongst minority ethnic communities. 2. Tackling anti-social behaviour disorder. 3. Continuing to reduce burglary, vehicle crime, robbery and drug related crime in line with the Government’s Public Service Agreement targets. 4. Combating serious and organised crime, both across and within force boundaries. 5. Narrowing the justice gap by increasing the number of oVenders brought to justice. 3.9 In order to better monitor performance against a wider range of factors the Policing Performance Assessment Framework (PPAF) has been developed. The PPAF is based on a number of domains centred on citizen focus and organisational capability (see chapter 5).
Integration of National and Local Policing Plans 3.10 The below diagram illustrates the linkages between local and national plans. The outer limbs of the diagram “views and consultation” and “policing with community” are key elements and are based on consultation undertaken by the Police Authority with local communities. In addition views of the public are ascertained throughout the year through a variety of public surveys undertaken independently by market research companies. Welsh Affairs Committee: Evidence Ev 271
3 year Strategic Plan
Best Value Policing and Government Performance Plan Ministerial Annual Plan Priorities Best Value Plan Local Priorities Efficienc y Plan
3 Year Crime and BCU and Departmental Annual Disorder Strategies plans
Sector Plans
Individual Employee Plans
3.11 At local level, BCU plans are developed through consultation with Crime and Disorder Reduction partners and communities and identify priorities at a local level. Each BCU is sub divided into sectors and each sector has its own plan which is based on policing priorities aVecting local communities. These plans can have a significant impact on relations with local communities as there is an expectation that local issues will be prioritised. Failure to do so carries a risk of public scepticism and disengagement from future consultation. The propensity for Government to engage in micro management through setting national targets and utilising league tables to compare performance at both force and BCU level creates tensions over which issues should be prioritised.
3.12 At force level, the annual Best Value Policing and Performance Plan, which sets out policing priorities for the coming year, is developed in consultation with the Police Authority. During the course of the previous year the Police Authority undertakes a series of consultative meetings which are aimed at identifying community safety issues across the force area. Findings are combined with priorities contained within the BCU plans and are considered alongside the National Policing Plan, Community Safety Partnership plans, National Criminal Justice Board plans, the Police Reform agenda and available funding. The last element is crucial in determining the range of activities and resources that can be allocated by the force in support of targets that are included within the plan.
3.13 The force operational Priorities for 2004–05 are:
— Confront anti-social behaviour.
— Tackle organised crime.
— Work with partners to increase the number of oVenders brought to justice.
— Fight the use and sale of class A drugs in Wales.
— Detect more domestic burglaries and vehicle crime.
It must be stressed however that the above priorities sit alongside the complex continuum of policing. Incidents classed as emergencies can re-order priorities on an hourly and daily basis eg murder investigations, fatal road traYc accidents etc.
The force organisational priorities for 2004–05 are:
— To provide strong leadership within the community and the force.
— To work in partnership with local authorities, the Crown Prosecution Service and other agencies to provide the best service. Ev 272 Welsh Affairs Committee: Evidence
— To use our consultation programme to give our communities a strong voice in what we do. — To be dynamic and flexible in our policing approach, through our structured change programme.
Three Strategy Plan 3.14 The three-year Strategy Plan sets out the medium term aims for policing in South Wales. It is a rolling plan, which is updated annually in accordance with Home OYce Guidance and local priorities. The strategic priorities are continually reviewed through the production of six-monthly strategic assessments. 3.15 The Strategic Plan 2003–05 gives the vision of the force, “To deliver Professional Policing that helps build safer communities”—through leadership, community involvement, partnership working and change management.
Community Safety Partnerships (known as Crime and Disorder Reduction Partnerships in England) 3.16 Community Safety Partnerships are required to produce a three year plan. These are based on a comprehensive consultation process or audit of people living in the unitary authority area and are aimed at identifying community concerns. The local BCU commander is a key member of the partnership and takes account of findings in developing the BCU plan. In light of the level of consultation with the same communities it is not surprising that priorities within BCU plans and Community Safety Plans are similar. The main diVerence is that Community Safety Plans normally include a broader range of issues and targets to be addressed by lead partner agencies. 3.17 It is of concern that funding for Community Safety Partnership plans is based on a 12 month cycle whilst the plan is based on a three year cycle. This can result in short-termism in that short term funding encourages gains that can be easily measured rather than the more long term strategies and investment needed to address complex problems with deep rooted socio-economic causes. Preventative action requires sustained investment in both funding and resources. In many deprived areas, public confidence and community engagement has been undermined by initiatives that promise much but are not followed through. As a consequence problems continue and the short term investment results in few gains. In some cases it can even be counterproductive in raising hopes that are not fulfilled.
Conclusion 3.18 It is fully recognised that if policing is to become truly citizen focused it must make the strategic shift toward providing customer satisfaction through a balanced approach that places equal importance on community engagement and operational performance etc.
4. Use and Availability of Resources
Introduction 4.1 EVective management of finite resources in the face of ever increasing demands and expectation is essential to a service that the public has become used to calling upon as the service of first and last resort. 4.2 The dilemma faced by many BCU commanders has been how best to allocate resources in order to meet the fairly narrow range of national targets against which success or failure is judged, in the face of growing evidence that public confidence is not directly linked to quantitative results. Time after time local consultation reveals a call for more uniformed police oYcers, a call that is often based on a perception that an increased uniform presence will improve the safety, security and stability of their areas. 4.3 The reality is that, despite an increase in police oYcer numbers, the complexity of demands and tasks required of the police means that resources are fully committed in tackling on-going problems and opportunities to “walk the beat” in the style of 20 years ago are very limited. 4.4 This section aims to outline the structure adopted for operational policing, how the force has increased operational resources and factors that impact on availability.
Personnel—Use 4.5 Within the South Wales Police area, operational policing is delivered via seven territorial Basic Command Units (BCU) supported by specialist teams of oYcers which have force wide responsibility. 4.6 Each BCU is coterminus with a Unitary Authority boundary and is commanded by a divisional commander of Chief Superintendent or Superintendent rank. Welsh Affairs Committee: Evidence Ev 273
4.7 The police oYcer establishment of each BCU is reviewed regularly and is based on formulae that takes account of factors such as, crime and incident levels, population, road mileage, level of deprivation, oYcer workload etc and is as follows:
BCU Establishment A Merthyr Tydfil 131 B Rhondda Cynon TaV 376 C CardiV 704 E Vale of Glamorgan 209 F Bridgend 229 G Neath Port Talbot 225 H Swansea 457
4.8 A BCU commander has considerable flexibility for the delivery of local policing within a corporately agreed strategy and in partnership with Community Safety Partners. To this end, following consultation at a local level, each division produces its own policing plan as outlined in the previous chapter. 4.9 The policing style of a South Wales Police BCU is community and partnership based and focused on problem solving. In line with this ethos, each BCU has been sub divided into sectors each commanded by a police oYcer of inspector rank who is responsible and accountable to the BCU commander for local delivery of a quality policing service. Each sector is supported by response oYcers who operate over a 24 hour period and community beat oYcers whose tours of duty are planned around community needs. 4.10 The community beat oYcer (CBO) is an integral element of the force’s problem oriented style of policing. Each ward throughout the force area has its own dedicated CBO. An integral part of the role is to co-ordinate partnership activity to solve problems aVecting communities. The CBO is an integral part of the community and the focal point for contact and consultation on local issues and day to day concerns. The Chief Constable has recently approved an enhanced role for the CBO who will take on a greater responsibility and have increased status. They will have a wider range of police resources available for service delivery including police specials, Police Community Support OYcers (PCSO’s), accredited persons and volunteers. The enhanced role will see the CBO become a specialist resource and encourage a career path that is based in community policing. The intention is to give them a much higher profile and to make them wider known within the communities they serve. Abstractions of these oYcers for other duties will be confined to exceptional operational issues and for training purposes and will be kept to an absolute minimum. 4.11 BCU’s are supported by a number of operational departments which have forcewide responsibility. OYcers within these departments have undergone additional training and posses a range of skill and expertise in their area of specialism which it would not be possible to provide on a generic basis. 4.12 Operationally, the main support departments are: — Crime Support Department, comprising — Volume Crime Department — Provides operational support as well as advice and guidance on investigative practices and processes. Forensic support is provided through the Scientific Support Unit — Serious and Organised Crime Team — Provides support for serious and organised crime eg the Fraud and Financial Investigation Unit, A High Tech Crime Unit and Special Branch — Major Crime Investigation — Provides senior investigating oYcers and specialist investigators for Major Crime Investigations including homicide , kidnap, extortion, serious and series crime, legacy and Major Crime Case Management Unit — Public Protection Bureau — Provides specialist support in respect of domestic violence, sex and dangerous oVenders, child protection and vulnerable witnesses, criminal records Bureau Vetting Unit — Central Authorities Bureau — Technical Support Unit, Witness Protection — Community Safety Department, comprising — Crime Reduction Unit — Minorities Support Unit — Provides specialist advice and resources on matters relating to the policing of diverse communities — Drug prevention Ev 274 Welsh Affairs Committee: Evidence
— Operational Support Division — Roads Policing — Armed Response Vehicles — Automatic Number Plate Recognition team — Police Dogs — Mounted section — Underwater Search Unit — Air Support — Airport policing team — Emergency Planning 4.13 The policing style of only a few years ago was largely based on reactive investigation after an event and an unsophisticated relatively ad hoc method of patrol. The approach was ineYcient and did not make best use of resources. The current style of policing is based around the National Intelligence Model (NIM). The National Intelligence Model is a framework that puts intelligence at the heart of everything that is done to reduce crime, disorder and road casualties. The model is based on the evaluation of intelligence to identify individuals and areas that require police attention. It enables directed patrol so that oYcers can target criminals and areas that are suVering from crime and anti-social behaviour with the aim of delivering an appropriate policing response at the right time and in the right place. The National Intelligence Model is at the heart of operational policing in South Wales. 4.14 Chapters 4 and 5 include examples of how operational oYcers are being deployed to combat and prevent crime and anti-social behaviour.
Personnel—Availability 4.15 In recent years, the number of police oYcers available for front line duties has increased significantly. This has resulted from the government’s Crime Fighting Fund, funding provided by the Police Authority and successful bidding for funds made available by the Home OYce and Welsh Assembly Government for specific purposes. As a consequence the overall establishment of South Wales Police currently stands at 3,313 oYcers, the highest police oYcer establishment since the creation of the force in 1969. 4.16 The force has also followed a policy of increasing numbers of oYcers of constable rank by reducing numbers of supervisors. The table below illustrates the growth in numbers of police oYcers over the past 10 years. It also illustrates how oYcers of managerial/supervisory rank have been reduced.
1994(1) 2004 Variance Chief Constable 1 1 — Deputy Chief 1 1 — Constable Assistant Chief 3 3 — Constable Ch Supt/Supt 55 29 "26 Chief Inspectors 57 48 "9 Inspectors 180 162 "18 Sergeants 529 467 "62 Constables 2,342 2,602 !260 Total 3,163 3,313(2) !150
(1) in 1996 local government changes led to the Rhymney Valley transferring to Gwent. This resulted in 174 police oYcers transferring from South Wales to Gwent. The 1994 establishment includes these 174 oYcers. (one Supt, one Chief Inspector, seven inspectors, 26 sergeants and 139 constables). The actual growth excluding the area covered by the Rhymney Valley is 324 oYcers. (2) This figure includes 79 posts funded for specific purposes by the Home OYce and Welsh Assembly government. 4.17 During 2002, the force undertook a review of police oYcers in non operational posts and introduced a civilianisation programme funded by the Police Authority that has resulted in police oYcers being released to operational duties from functions that can be undertaken by civilian members of staV. During 2003–04, 121 police oYcers were returned to operational duties. Of these, 94 police oYcers were returned to uniform duties and 27 to plain clothed duties. (see Appendix A). The recent recruitment of large numbers of police Welsh Affairs Committee: Evidence Ev 275
oYcers has meant that the proportion of oYcers with under two years service is relatively high. For example, at the end of July 2004, 21% of constables in Rhondda Cynon TaV BCU and 27% of the Vale of Glamorgan BCU had under two years service and were still in their probationary period when abstraction rates for training are particularly high. The civilianisation programme has also proved of benefit in returning experienced oYcers to operational duties to support less experienced colleagues. 4.18 The force currently employs 1,736 members of police staV, an increase of 433 since 1999. This growth partly reflects the policy that police oYcers should primarily be allocated to roles commensurate with their training and powers. It also reflects the need for specialist support from crime and incident analysts, human resource advisers and statisticians required to undertake the complex monitoring of performance issues. 4.19 Police StaV are highly valued for the wide ranging contribution they make in support of operational policing. Roles such as those undertaken by control room staV, scenes of crime personnel, tape summarisers and traYc wardens provide direct support whilst others such as crime analysts and statisticians provide sophisticated intelligence packages which enable police resources to be better targeted at key areas and individuals. 4.20 The introduction of Police Community Support OYcers (PCSO’s) has been warmly received in the communities they serve. PCSO’s undertake patrols on foot and focus on neighbourhood problems such as anti-social behaviour. Sixty-three PCSOs were appointed in 2003 including five posts which were funded in partnership with Rhondda Cynon TaV Borough Council. A partnership bid for a further five posts was approved by the Home OYce earlier this year (Swansea University, Royal Glamorgan Hospital—RCT, Prince Charles Hospital—Merthyr Tydfil, Princess of Wales Hospital—Bridgend and Brackla Community Council—Bridgend). The force has recently submitted a bid to the Home OYce for an additional 120 PCSO’s and intends to bid for as many of the proposed 20,000 national PCSO expansion as possible. 4.21 The force currently has 227 Police Specials (formerly known as Special Constables) all of whom are operational and are attached to Basic Command Units. They undertake duties as part of a local policing team and provide valuable support to regular oYcers. Until recently, opportunities to increase numbers of police specials have been restricted by a national requirement for a minimum standard of fitness required of operational oYcers. This eVectively barred many people who could have provided valuable support in a wide range on non operational tasks. The Disability Discrimination Act will remove the minimum fitness requirement and enable the force to recruit police specials who may not have A1 fitness but who could undertake non operational work eg crime prevention duties, scenes of crime duties etc. 4.22 The Chief Constable is also urging the business community to encourage members of their staV to become police specials who would be used to patrol primarily business areas such as retail parks under police supervision. An All Wales Seminar was held on 28 September 2004 involving members of the business community to this end. 4.23 The Chief Constable is also seeking to widen the Extended Police Family by encouraging sections of the community, who might not wish to undertake a uniformed role to assist the force in a voluntary capacity. Such volunteers would be utilised to improve customer focus by maintaining contact via telephone with victims and witnesses and updating them on the progress of investigations. 4.24 Over the next three years the Chief Constable intends to recruit over 200 volunteers, an additional 100 Police Specials and over 300 accredited persons. In addition the force intends to further develop Neighbourhood Watch and Victim Support Schemes and enhance support to communities, victims and witnesses. 4.25 South Wales is a multi-cultural area that is becoming more diverse each year. It is fully recognised that the staV profile of the force must reflect the make up of the communities it serves. South Wales Police has met its “Breaking Through” targets for 2004–05 and is committed to increasing numbers of minority ethnic staV through a wide range of positive action initiatives. At the end of August 2004, 50 police oYcers, 22 police staV and eight police specials were from minority ethnic backgrounds. In addition, the number of female police oYcers has grown significantly and now makes up 20% of police strength compared with only 9% in April 1994. 4.26 Whilst overall numbers of police oYcers have increased the force has also sought to maximise operational availability. 4.27 Historically, operational oYcers have worked a “continental” shift pattern based on three tours of duty, 0600-1400hrs, 1400-2200hrs and 2200-0600 hrs, with some variations. These tours of duty are relatively inflexible in that the same number of oYcers per shift will be on duty over a 24 hour period regardless of demand. In order to better match resource with demand a 12 hour staggered shift pattern was introduced as a pilot on 12 April 2004. It involves oYcers coming on duty at staggered intervals throughout the day in accordance with local need. 4.28 The force has also made a concerted eVort to increase availability through reducing sickness absence. In 2000–01, South Wales Police had an average sickness rate per police oYcer of 16.1 days, the highest of any force in Wales and England. Such a rate was impacting on service delivery. As a result of improved health and welfare provision, sickness absence has improved considerably and by 31 March 2004 Ev 276 Welsh Affairs Committee: Evidence
the average sickness per oYcer was 10.2 days. Since 1 April progress has continued to be made and during the first six months of the new financial year police oYcer sickness fell by 13% compared with the previous year.
Factors Impacting on Availability 4.29 Whilst the force has made significant progress in increasing numbers of personnel it should be noted that a range of factors can impact on their availability for local patrol . 4.30 A major factor impacting on availability stems from the range and complexity of incidents requiring South Wales Police attendance eg over the past four years: — The total number of incidents attended by South Wales Police increased by 18% from 580,354 to 607,608 — 999 calls increased by 18% from 233,642 to 276,411 — arrests increased by 4% from 48,195 to 50112 — drug seizures increased by 35% from 3,225 to 4,348 — incidents of domestic violence increased by 93% from 7,782 to 14,986 (this latter increase can partly be attributed to an increased focus on public protection and the creation of domestic violence coordinator posts in each division who have worked to increase victim confidence and have encouraged the reporting of incidents). 4.31 In 2001 a Home OYce Research Study concluded that 43% of a police oYcer’s time was spent in a police station and that at any one time over 50% of operational oYcers are in a police station. 4.32 Within force a project led by the Deputy Chief Constable has been directed at reducing bureaucracy and particularly unnecessary duplication. The project has made some progress but it remains the case that a police oYcer is accountable to both the legal system and for the safety of the public and much of the paperwork is directed to this end. 4.33 During the year 2000, a Best Value Review of custody handling identified that the average time spent per oYcer dealing with an arrested person was six hours. Contributing factors included: — Reception by custody sergeant—19 mins. — Average time taken for solicitor to arrive at custody suite—1 hr 11 min. — Average time taken for an appropriate adult to arrive was 3 hrs 7 mins. — Average duration of interview 27 mins. — Average duration process and charge 34 mins. As South Wales Police oYcers arrest over 50,000 people per year, the time spent dealing with prisoners can have a significant impact on availability. 4.34 The Best Value Review resulted in a number of measures being introduced to reduce the amount of time oYcers spend at a custody suite. These have included the appointment of full time specialist custody oYcers who seek to expedite the attendance of solicitors and appropriate adults. Jailer duties have been out- sourced to an external contractor. The civilian jailers have taken over process duties previously undertaken by the arresting oYcer (fingerprinting, DNA swabbing etc) thereby saving an average of 34 minutes. The extension of the fixed penalty notices scheme is also reducing time spent by oYcers in custody suites. 4.35 The Airwaves communication system is being rolled out across the force area during 2004–05. The system incorporates both radio and telephone functions and will enable operational police oYcers to spend more time on patrol. For example, the need to return to a police station to make telephone enquiries will be drastically reduced. 4.36 South Wales Police also faces many demands which are specific to the force area. For example, the growth of CardiV as both Capital and a venue for major social, sporting and economic events has made significant demands on police resources. In particular, the relocation of football matches from Wembley to the Millennium Stadium, including at least four cup finals and three divisional play oVs a year has required special arrangements. Unlike Wembley, the Millennium Stadium is located within a bustling city centre with tens of thousands of shoppers which adds to the complexity of the policing operation. These matches are in addition to the regular International rugby fixtures and football fixtures involving CardiV City. 4.37 A risk assessment process is undertaken for all events and determines levels of policing required. As highlighted in the introduction to this report, this year, 197 police oYcers were required for the Wales v Italy rugby international , 273 oYcers were required for Wales v N. Ireland international football match and 901 oYcers for the FA Cup Final, Manchester United v Millwall. 4.38 For major events, police oYcers from across the force area are required. Prior to 2003, to minimise the impact on local policing caused by abstracting oYcers from their normal duties, force policy had been to utilise oYcers who would normally be on a rest day on a paid overtime basis. However, in 2003 as part of the police reform process, the police service was required to reduce police oYcer overtime by 15% over 3 years. As a consequence, the force is now having to require some police oYcers to work on their scheduled Welsh Affairs Committee: Evidence Ev 277
oV duty days in order to have suYcient resources to police large scale events, including some matches involving CardiV City. The knock on eVect is that under Police Regulations these oYcers have to be given an alternative rest day and this can only be allocated from a period when they would normally be on duty. This reduces the number of operational oYcers available for local policing.
Other Resources 4.39 Improving availability and accessibility to police services is a key aim of the force Crime and Reassurance Strategy (see Chapter 5).
Call Handling 4.40 The growth in mobile phone ownership has contributed to a significant increase in the number of calls being received by the force. For example, over the past four years 999 calls increased by 18% from 233,642 to 276,411. Telephone calls to the main switchboard currently average over 450,000 per quarter. 4.41 To meet increased demand, and in recognition of the fact that most people make contact with the police by telephone, the force has put in place systems to improve call handling. 4.42 Response to 999 calls remains a priority and currently the force target of answering 85% within 10 seconds is being met. The force is also meeting its targets for calls received at the switchboard with latest figures showing that 86% of calls being answered within 20 seconds. 4.43 The force has received criticism for delays between the call being answered at the switchboard and the caller being connected to the requested individual/department. The force addressed this issue in 2003 through the creation of Information Management Units (IMU’s). The IMU’s are staVed by personnel who aim to deal with all calls seeking information. The units are based in the three area control rooms and are “virtually connected” so that a caller will automatically be transferred to an operator who is free regardless of where they are based. This is a critical area for the force and performance is being closely monitored. Figures for the last quarter showed that IMU’s surpassed their target which is to answer 85% of calls. Calls that are not answered are re directed by the switchboard.
Estates 4.44 The South Wales Police estate is very large and has 114 operational police stations. Many of these are old and were built to serve communities which are much less mobile than those of today (46% were built prior to 1959 and 87% are over 30 years old). As a result some of our police stations are not where we would place them if we were building today or in locations where we would not now build a station. Many of them are not fit for purpose. 4.45 The force is looking at areas where a presence is needed, such as the many rapidly expanding shopping outlets which see tens of thousands of people each week, and is working with the business community to provide police oYces in these areas. In Swansea new police oYces have opened on the Tesco and Asda sites at the Enterprise Park and in Fforestfach. Similarly, at the very large McCarthur Glen retail outlet adjacent to the M4 near Bridgend, a partnership arrangement with Sainsbury’s has resulted in the provision of a police oYce which has allowed two police oYcers and a PCSO being deployed to the area. Others will follow across the force. The force also utilises purpose built mobile police stations. In short we are looking to base our police oYcers where people gather in large numbers rather than expect them to come to police stations which may be many miles away. 4.46 The force is also looking at introducing new technology in the form of unmanned stations and kiosks that will enable the public to access services via telecommunication systems. This will mean that instead of members of the public finding a non-24 hour station closed, they will be able to enter part of it, in a similar way that some banks now operate. Inside they will be secure and will be able to access a range of services and information and speak with a police operator via a video conferencing link. In addition we are looking at kiosks, similar in size to a telephone box, that the public can use to contact us via the internet. These are relatively inexpensive and it is the Chief Constable’s vision that over time, the force in partnership with other agencies will have reached a position where a kiosk will be located within ten minutes travel distance of where people are.
Regional Collaboration 4.47 The four Welsh Police Forces have undertaken a number of initiatives to develop collaborative working across the region. A 3-stage approach has been taken: (a) Identification of the potential areas for collaboration (b) Scoping of these areas (c) Definition of firm proposals for making collaboration a reality. Ev 278 Welsh Affairs Committee: Evidence
4.48 A Collaboration Programme Board is in place with the Deputy Chief Constable of South Wales Police the programme manager. At a meeting in April 2004, eight key areas for collaboration were selected to start the programme based on strategic and organisational capability: (i) Strategic Capability: — Cross Border capabilities — Major and Serious Crime — Firearms — Covert Policing — Crime Information/Crime Recording (ii) Organisation Capability: — Human Resource Services — Finance — Information Management. 4.49 The above initiatives will result in increased operational capability, improved eYciency and reduced costs. In addition, the four Welsh forces are part of an all Wales Joint Emergency Services Group which is looking at opportunities for greater collaboration between the emergency services.
5. Performance and Comparisons with other Forces
Introduction 5.1 There are 43 police forces in Wales and England and, as highlighted in the introduction to this report, they vary in police oYcer numbers, geographical coverage and socio-economic and demographic characteristics. In summary, forces operate in very diVerent environments. South Wales Police covers 10% of Wales in terms of area but includes 42% of the population and has levels of deprivation, serious incidents and major events that are not experienced to the same level in the more rural areas of Wales. 5.2 The Home OYce accepts that it would be misleading to compare policing performance on a general basis. As a result the Home OYce has drawn up a list of forces that are most similar in terms of a range of socio and economic factors such as population density, unemployment, etc. In doing so it is considered that any variation in performance between areas that are similar in character could result in other factors such as the eYciency or working practices of policing. 5.3 The following police areas have been identified as the “most similar” to South Wales. It is against this group that the Home OYce judges the performance of South Wales Police. — Avon and Somerset — Durham — Gwent — Humberside — Lancashire — South Yorkshire — West Yorkshire 5.4 In a similar fashion, Basic Command Units have been grouped into most similar groups for comparative performance purposes as highlighted in the introduction to this report. 5.5 In April 2002, a new National Crime Recording Standard was introduced in Wales and England with the aim of promoting greater consistency between police forces in the recording of crime. The new system allowed for crimes to be reported without any form of corroborative evidence and resulted in an increase in recorded crime levels and a fall in detections for some crime groups. The change in recording standard has meant that comparisons pre and post April 2002 are no longer valid.
Crime Management Performance
Overall Crime 5.6 For the year ending 31st March 2004, in the South Wales Police area, compared with 2002–03, overall crime had been reduced by 4.4%, (6,259 fewer victims), dwelling house burglary had been reduced by 9.7%, (785 fewer victims) and vehicle crime by 11% (3,341 fewer victims). In terms of the three recorded crime targets, the force bettered its auto crime and burglary targets but did not achieve its target for violent crime which increased by 3.8%. However, the trend for violent crime was downwards having been up by 10.6% at the half year stage. Welsh Affairs Committee: Evidence Ev 279
5.7 During the first five months of the current financial year, the South Wales Police area has seen a 9% fall in overall crime compared with the previous year. This resulted in 5,218 fewer victims. The trend this year has been extremely positive and during August 2004, the force witnessed the lowest recorded crime levels since April 2002. 5.8 During the same period the force detection rate for overall crime increased by 0.2% to stand at 28.6%. South Wales Police was one of only two forces within its family of “Most Similar Forces” to achieve an increase. The force was ranked third best with a detection rate nearly 6% higher than the “most similar force” (MSF) average. 5.9 The below chart shows monthly recorded crime totals in South Wales since 2002. It can be seen that there has been a substantial decrease over the past year in total recorded crime and that the current trend is a downward one.
August’s Crime: Lowest Since NCRS
Monthly Totals Since April 2002 14,000
13,500
13,000
12,500
12,000
11,500
11,000
10,500
10,000 Offences Low Average High 9,500 11/03 11/02 12/03 12/02 01/04 07/04 01/03 07/03 10/03 07/02 10/02 02/04 03/04 04/04 05/04 06/04 08/04 02/03 03/03 04/03 05/03 06/03 08/03 09/03 04/02 05/02 06/02 08/02 09/02 5.10 In line with the National Policing Plan, and the force Annual Plan and Strategic Plans the key target crimes are domestic burglary, vehicle crime and auto crime. Performance against these crime is as follows:
Domestic Burglary 5.11 During 2004–05, domestic burglaries have been reduced by 18.5% compared with the same period last year, a reduction of 604 fewer victims. 5.12 During the same period the detection rate increased by 0.5% to 18.6%. This placed the force third best in its most similar family group.
Vehicle Crime 5.13 During 2004–05, autocrime has been reduced by 13.3%, a reduction of 1,454 victims. 5.14 During the same period the detection rate fell by 2.6% to 11%. However, the force has the second best detection rate for vehicle crime within the family.
Violent Crime 5.15 During 2004–05, violent crime has been reduced by 8.3% a reduction of 810 victims. 5.16 During the same period the detection fell by 0.2% to 64%.
Comparison with Other Forces 5.17 The following statistics show South Wales Police comparative performance for the target crimes prioritised within the Annual Policing Plan. Comparisons are with the most similar family grouping. These figures are the latest available and cover the period to the end of July 2004. (i) Recorded Crime per 1,000 population Ev 280 Welsh Affairs Committee: Evidence
The following chart shows the South Wales Police area had the third lowest levels of recorded crime per 1,000 population.
Crimes per 1000 Residents - all Crime - 01 May 2004 - 31 May 2004 45 40 35 30 25 20 15 10 5 0 Gwent Durham Lancashire Humberside South Wales West Yorkshire West South Yorkshire Avon & Somerset Avon MSF Average
(ii) Recorded domestic burglary per 1,000 households The following chart shows the South Wales Police area had the third lowest levels of recorded crime for dwelling house burglary per 1,000 population
Crimes per 1000 Households - Domestic Burglary - 01 May 2004 - 31 May 2004 6.
5.
4.
3.
2.
1.
0. Gwent Durham Lancashire Humberside South Wales West Yorkshire West South Yorkshire Avon & Somerset Avon MSF Average Welsh Affairs Committee: Evidence Ev 281
(iii) Vehicle crime per 1,000 population
The following chart shows the South Wales Police area had the fifth lowest levels of vehicle crime per 1,000 population
Crimes per 1000 Households - Vehicle Crime (excluding Vehicle Interference) - 01 May 2004 - 31 May 2004 6.
5.
4.
3.
2.
1.
0. Gwent Durham Lancashire Humberside South Wales West Yorkshire West South Yorkshire Avon & Somerset Avon MSF Average
(iv) Violent crime per 1,000 population The following chart shows the South Wales Police area had the third lowest levels of violent crime per 1,000 population
Crimes per 1000 Households - Violent Crime - 01 May 2004 - 31 May 2004 12.
10.
8.
6.
4.
2.
0. Gwent Durham Lancashire Humberside South Wales West Yorkshire West South Yorkshire Avon & Somerset Avon MSF Average Ev 282 Welsh Affairs Committee: Evidence
Detected crime
5.18 The following chart shows the South Wales Police area had the second highest detection rate for recorded crime per 1,000 population.
Barchart MSF - Detections per Crime-South Wales - All Crime - - 01 Aug 2003 - 31 July 2004 50% 45% 40%
35% 30% 25% 20%
15% Detections per Crime 10% 5% 0% Gwent Durham Lancashire Humberside South Wales West Yorkshire West South Yorkshire Avon & Somerset Avon MSF Average
5.19 Detected domestic burglary
The chart shows that South Wales Police had the third best performance.
Barchart MSF - Detections per Crime - South Wales - Violent Crime - 01 Aug 2003 - 31 July 2004
90%
80%
70%
60%
50%
40%
30% Detections per Crime 20%
10%
0% Gwent Durham Lancashire Humberside South Wales West Yorkshire West South Yorkshire Avon & Somerset Avon MSF Average Welsh Affairs Committee: Evidence Ev 283
5.20 Detected vehicle crime
The chart shows that South Wales Police had the third best performance.
Barchart MSF - Detections per Crime-South Wales - Vehicle Crime (excluding Vehicle Interference) - 01 Aug 2003 - 31 July 2004 35%
30%
25%
20%
15%
Detections per Crime 10%
5%
0% Gwent Durham Lancashire Humberside South Wales West Yorkshire West South Yorkshire Avon & Somerset Avon MSF Average
5.21 Detected violent crime
The chart shows that South Wales Police had the second best performance.
Barchart MSF - Detections per Crime - South Wales - Violent Crime - 01 Aug 2003 - 31 July 2004
90%
80%
70%
60%
50%
40%
30% Detections per Crime 20%
10%
0% Gwent Durham Lancashire Humberside South Wales West Yorkshire West South Yorkshire Avon & Somerset Avon MSF Average Ev 284 Welsh Affairs Committee: Evidence
Police Performance Assessment Framework 5.22 The previous charts have compared performance in terms of crime management. Until recently this was the main criteria used to compare force and BCU performance. 5.23 The Police Performance Assessment Framework (PPAF) arose from an acknowledgement that police activity incorporates a huge range of functions and that comparisons based on crime management alone are misleading. The PPAF is again based on comparisons with the Most Similar Forces Group but incorporates a much wider range of work undertaken by the police. The assessment is based on measurements which are grouped into six domains: Domain A; Citizen focus — Level of public satisfaction with the police as measured by the British Crime Survey. Domain 1 Reducing Crime — Number of burglaries per 1,000 households as measured by recorded crime. — Number of robberies per 1,000 resident population as measured by recorded crime. — Number of vehicle crimes per 1,000 resident population as measured by recorded crime. Domain 2 : Investigating Crime — Progress on detections and convictions. Domain 3 : Promoting Public safety — Level of fear of crime. — Level of feeling of public safety. Domain 4 : Providing Assistance — The percentage of police oYcer time spent on frontline policing. Domain b : Resource Usage — Number of working days lost through sickness. 5.24 Performance monitors have been devised as a visual representation of a force’s performance against the six domains. Scores are plotted as points along the axis of the monitor. A solid line is used to show the performance of the force. The average performance of the most similar forces is represented by a shaded area. Comparison with the shaded area indicates whether a force is performing well. A good performance is indicated by the bold line of the force being outside the shaded area. 5.25 Performance results for 2003–04 were published by the Home OYce during September 2004. The monitor diagram for South Wales Police is shown at the end of this section (Appendix A). 5.26 The monitor shows that, South Wales Police performance exceeded the most similar force average in four of the six domains ie: — Citizen focus. — Reducing crime. — Investigating crime. — Promoting public safety. In relation to the two other domains: — Resource usage: — the force was ranked sixth with an average of 10.2 days lost per year to sickness for police oYcers compared with a MSF average of 9.4 days and 12.9 police staV days lost to sickness compared with a MSF average of 11.3 days. The force is showing an improved performance this year for sickness management. — Providing assistance: — the force was again ranked sixth with 61% of police oYcer time spent on front line duties compared with a MSF average of 63%. This is again an area which the force is seeking to improve on this year.
Conclusion 5.27 In summary, South Wales Police is performing well in comparison with its most similar forces and, most importantly, is continuing to show improving performance. 5.28 Reasons for the improving performance include a strong focus on operational delivery and a robust monitoring system. This is developed further in the next chapter. 5.29 Strong quantitative results must be matched with a quality delivery. This is fully recognised and “Customer focus” is central to the philosophy of the force. Welsh Affairs Committee: Evidence Ev 285
ANNEX A
SOUTH WALES POLICE PERFORMANCE MONITOR 2003–04
South Wales Police Performance Monitor 2003/4
Citizen Focus
Reducing Promoting Crime Public Safety
Investigating Crime Providing Assistance
Resource Usage
Mean Average Year
6. Local Government and National Assembly of Wales Strategies
Introduction
6.1 Historically, policing in Wales and England has been based on a tripartite relationship involving the Chief Constable, Police Authority and Home Secretary. The Police Reform Act 2002 provided significant new powers to the Home Secretary via a stronger Inspectorate of Constabulary and the Police Standards Unit. The National Assembly for Wales was not mentioned in the Act. 6.2 The establishment of the National Assembly for Wales created a position where executive powers remained with the Home OYce but responsibility for police funding was split between the Assembly, local government and the Home OYce. 6.3 For the police, national policy flows from dialogue between the Association of Chief Police OYcers (ACPO), the Home OYce and the Police Standards Unit. In Wales, the four Welsh Chief Constables work closely through the Wales Region ACPO. Whilst the Assembly has no formal role, the Chief Constables of the Welsh forces meet regularly with senior Assembly Ministers and administrators. In addition, the forces have a liaison oYcer of superintendent rank based at the Assembly tasked to represent forces and to develop better working between police forces and the Assembly. 6.4 Although the National Assembly for Wales has no direct responsibility for policing, the establishment of devolved government in Wales has resulted in many statutory crime and disorder partners coming under the National Assembly for Wales. In practice this results in a close interface between the devolved and non- devolved services. 6.5 In summary, the Assembly has the ability to influence the thinking of the four forces and the police service has the ability to influence the Assembly. There are no better examples than the work being taken forward in relation to regenerating communities and tackling drug misuse. Ev 286 Welsh Affairs Committee: Evidence
(i) Regenerating Communities 6.6 The Welsh Assembly Government’s focus on regenerating disadvantaged communities ties in with a key strategic goal for South Wales Police. Wales, as with some other parts of the UK, has many areas which experience disproportionate levels of crime and anti-social behaviour. Factors such as social isolation, community disorganisation and family conflict add further pressures that render people more likely to become victims of crime. The lack of social skills, literacy and numeracy witnessed in these areas also increases the likelihood of young people becoming involved in oVending. 6.7 Whilst responsibility for developing and implementing the overall strategic direction on neighbourhood renewal lies with the Welsh Assembly Government, the police service shares that responsibility. Although our principal focus will be on crime reduction and reassurance, we also recognise a shared responsibility for supporting health, education, housing and other key partners who follow agendas which are cross cutting. Sustained success in achieving a secure stable environment that promotes both social and economic growth is heavily dependent upon identifying how the many parts of the jigsaw fit together and establishing firm and supportive relationships at local level, and with the Assembly.
Community’s First Dedicated Police Teams 6.8 The National Assembly for Wales “Communities First” programme sets out a long-term vision to regenerate the most disadvantaged communities within Wales. The programme is based on 100 communities identified as being the most deprived and which were included in the regeneration programme. Forty four of these communities are located within the South Wales Police area. 6.9 South Wales Police is the only Welsh police force that has made a substantial commitment to the Assembly’s programme in a tangible way. This has been through the creation of 14 teams involving 72 police oYcers, mainly financed by the crime fighting fund. The teams comprise a Sergeant and four Constables with at least two teams located in each of the seven BCU’s. The initiative has named these teams as the “Communities First Dedicated Policing Teams” and has been undertaken in two phases. Phase 1 started in April 2002 when 35 police oYcers were assigned. Phase 2 was fully implemented in May 2004 and brought the force’s commitment to 72 police oYcers. It is the Chief Constable’s intention to create further Community First teams but this to a large extent will be dependent on future growth in resources. 6.10 Prior to setting up the teams, consultation took place between the BCU Commanders and the respective crime and disorder partners from each Unitary Authority. This partnership approach was aimed at identifying the areas which would most benefit from this form of policing. As a result, it was decided that to be eVective, each team would be dedicated to a particular community and they would police accordingly. The selected communities were as follows: 6.11 A division—Gurnos/Dowlais/Penydarren/Bedlinog B division—Tylorstown/Pontgwaith/Moutain Ash/Rhydyfelen C division—Ely/Caerau/Splott/Butetown E division—Gibbonsdown/Casteland F division—Caerau (Maesteg)/Bettws G division—Upper Afan Valley/Pelenna/Sandfields H division—Portmead/Blaenymaes/Graigfelin 6.12 The oYcers forming part of these teams have been selected for their skills, experience and community knowledge and are responsible for working closely with partners in tackling crime and disorder issues. Importantly, these oYcers were provided as an addition to the BCU’s establishment and this allowed them to be eVectively “ring fenced”. They are only used outside their communities in extreme situations. 6.13 The Community First oYcers are visible, familiar, accessible and community focused and have been able to deliver a policing style that can deal with the diverse issues that are identified within each area. They operate closely with the relevant statutory/non-statutory partners, local authority Community First co- ordinators and selected community members and are instrumental in producing “community action plans”. These plans identify the problems within the community and are working together as partners, under the guidelines of the Assembly’s Communities First guidance document, putting in place remedial actions to improve quality of life. 6.14 The force is currently involved in an initiative with the University of Glamorgan which will see police oYcers from Community First areas and members of local communities learning together how better to achieve sustainable improvements within their communities. The initiative as well as identifying national good practice will also improve and strengthen community contact with the police. 6.15 The crime and disorder problems are tackled using intelligence led, community based and problem oriented policing methods and by producing short, medium and long term actions with the partners. Welsh Affairs Committee: Evidence Ev 287
6.16 The following is a quote from a Communities First Co-ordinator who, in his own words, was an active trade union representative and experienced ‘overzealous’ policing of industrial disputes and picket lines. “The style of policing currently being experienced bears no resemblance to those previous episodes and I am happy to be able to look upon the five police oYcers who form the Communities First Team as friends. Lest there be any misunderstanding, it should be recognised from the start that the Police Team spends a great deal of time on ‘traditional’ policing ie the arrest and conviction of criminals and lawbreakers. Crime such as burglary, car theft, theft from cars and drug dealing have been very significantly reduced. The sight of ‘bobbies’ on the beat is now commonplace and residents are beginning to develop a good relationship with the oYcers. When the village suVered the double murder of a mother and baby a few months ago and the alleged murderer had not at the time been apprehended, many residents remarked that it was comforting and made them feel safer to have ‘their own bobbies’ to talk to. The added ingredient brought to policing by the Communities First Police Team is a belief in community policing and an identity with the people and the area they police. Examples of how this approach manifests itself are given below: — The Team’s Sergeant is on the Partnership’s Steering Group and regularly attends meetings. — The idea of building a bike park on the outskirts of the village was suggested by the police who when worked with the Partnership to try to make it a reality. Members of the Police Team attended planning meetings and joined in on a visit to a bike park in Bristol to explore the possibilities. Unfortunately, the plans will come to naught as the Council has sold the land for private development. However, discussions are now taking place in the hope that something can be done there. — The Communities First Development Team, after liaison with the local secondary school, ran an Environment Day in the Welfare Hall for pupils from the school. Two of the Police Team called in to lend support and help to create an enjoyable atmosphere. — South Wales Police held their annual open day at Bridgend in July and the Police Team organised free transport for local children and young people and accompanied them to and from the venue. — Every weekday evening, the Welfare Hall opens the snooker and pool tables to local children and the police regularly drop in to play a few frames and chat with the kids. — The Police Team found the funds to donate £500 worth of play equipment to the Meithrin (nursery). — The Partnership aims to open a play area for older children, with youth shelters in the village and the Police Team has supported this from the start, getting fully involved in the planning process and even helping to visit every resident in the area to canvass their opinion. The Police Team are doing a fantastic job and are building a relationship with local residents that is a pleasure to see. They have even succeeded in winning over one very sceptical and hitherto disbelieving trade unionist.” An evaluation of the impact Communities First policing teams are having is currently being undertaken. What is already clear is that public satisfaction rates are higher in areas where the teams are located as are satisfaction rates from people who have had contact with the police.
(ii) Strategies to tackle Substance Misuse 6.17 In 2001, a strategic assessment of the Southern Wales region by the National Criminal Intelligence Service highlighted the scale of drug misuse. — 8,750 problematic users (an increase of 14% on 2001): — responsible for 54% of all acquisitive crime (4% above UK average); — three quarters of crack and heroin users claimed to be committing crime to feed their habit; and — 75% of persistent oVenders had misused drugs. — 32,000 recreational users. — Total drug related deaths 274 (year 2000) In the summer of 2001, 11 drug related deaths were reported in one of the divisions at South Wales Police in a two-month period. — Total annual retail value of heroin £53 million. — Potential amount of heroin bought from proceeds of crime (48 per cent) £25 million. Ev 288 Welsh Affairs Committee: Evidence
— Estimated total amount of drugs required to meet demand in Southern Wales: — 1.25 tonnes of heroin; — 0.75 tonnes of crack cocaine; — 0.5 tonnes of cocaine; and — three million ecstasy tablets. — Deprived communities were most under threat. 6.18 It was evident that the Southern Wales area was being targeted by drug dealers and organised crime groups as their next lucrative market. The analysis highlighted that the Welsh Substance Misuse Strategy introduced by the National Assembly was not suYciently robust for the worsening position. 6.19 From the outset a decision was taken to shape the strategic response around the structure of the Welsh Substance Misuse Strategy. A joint paper was prepared by the Chief Constables of the three southern Wales forces outlining police concerns and proposals to introduce a regional intelligence eVort to combat the influx of drugs. A cohesive and coherent approach to drugs traYcking, drug treatment and harm reduction and education were put together and presented to the Police Standards Unit, Home OYce Ministers, Assembly Ministers and local MP’s and AM’s. A bid for funding to support the proposed Regional Intelligence OYce and an Operations Unit was made to central government and to the Assembly. The Assembly, though having no duty to fund police activity examined its powers and agreed to assist over a three year period with funding for civilian staV and support equipment. The Home OYce agreed to provide funding on a matched funding basis on a 2:1 basis by the three forces. At the request of the Assembly Government’s Finance Minister, police involvement in schools was examined by the forces and in December 2002 a proposal to introduce an all Wales approach to schools was agreed by Wales ACPO. The result has been that the National Assembly, supported by the four Chief Constables and with the involvement of the Home OYce through the Crime Reduction Director is driving forward a comprehensive drugs strategy involving police, health, education, local authorities and others. 6.20 The joint task force created to tackle the Class A drug problem was known as Tarian and since its inception has been joined by North Wales Police. The enlarged task force is now known as Tarian plus. It is based on an intelligence led approach that targets criminals operating on a regional/national level. 6.21 The four Chief Constables have given their full support to a robust approach to both enforcement and prevention and a large emphasis is being given to tackling causal factors and education, treatment, and supporting communities.
Education
6.22 Initial assessment showed that the range of drugs education available ranged from very good to very little. There was a great deal of commitment from individual teachers, but few were properly trained and lacked the support that was needed to make a diVerence. The Welsh Assembly has committed £1.3 million each year to pay for 30 extra police constables across Wales to support school teachers and to establish an all Wales police/School Substance Misuse Programme and a high standard of substance misuse education across the whole of Wales. In addition, a teacher has been seconded to the initiative to act as an expert adviser and a liaison point with educationalists. It is considered an excellent example of partnership working.
Supporting Families and Communities
6.23 Tarian! has encouraged and supported the work of local communities which are working to combat drug misuse in their own communities. Families Awareness Drug Support (FADS) provides a good example and is made up of a group of parents in the Cynon Valley, who have formed a self help group. The group was started by mothers, whose children were drug users and has worked closely in partnership with local police.
Treatment
6.24 Previously the treatment services made available depended heavily on location. There was a reported shortage of treatment places, and in some areas users had to wait many months for treatment services. The Welsh Assembly Government has set aside additional funding over the next three years to improve treatment services in recognition that many prolific oVenders are drug abusers. Welsh Affairs Committee: Evidence Ev 289
Enforcement 6.25 The sophisticated regional approach includes the National Crime Intelligence Service, the Regional Task Force (RTF), and the Regional Asset Recovery Team, together with a host of other supporting agencies such as Her Majesty’s Customs and Excise, the National Crime Squad, the Crown Prosecution Service, Inland Revenue, the Asset Recovery Agency, and the UK Immigration Service. (There are 49 staV within the RTF made up of oYcers from the South Wales, Dyfed Powys and Gwent forces). Since its inception Regional Task Force operations have resulted in : — 105 Arrests. — 5.1 kilos Heroin seized. — 2.9kilos Cocaine seized. — 17,000 Ecstasy tablets seized. — £132K Cash seizures.
Police Service Funding 6.26 Concerns over funding arrangements for policing in Wales were outlined at Chapter 1. Funding for the police service in general is based on a mix of central and local monies from the Home OYce, DTLR grant and Council Tax. Police Authorities may raise council taxes via local precepts. Currently, the central government departmental grants comprise 78% of individual Police Authority funding and Council tax 22%. 6.27 In Wales, the DTLR channels funds for policing services via the Assembly. In eVect the Assembly may choose not to use all the funds allocated for policing or police forces and in doing so disadvantage Welsh forces compared to those in England. 6.28 Proposed changes to the way the police service is funded indicate that in future greater use will be made of Council Tax to raise revenue. For the Welsh forces this presents a dilemma as the Assembly Government retains the right to control or cap Council Tax levels. There is therefore a degree of uncertainty over the long term funding of police services in Wales.
Conclusion 6.29 It is the view of the Chief Constable that a closer relationship with the National Assembly for Wales is both desirable and inevitable. The Assembly government is concerned with an agenda that is particular to Wales and strategies and priorities that impact on Welsh communities. The police service has an integral part to play in the social and economic growth of Wales and is committed to working in partnership towards common agendas. Uncertainty over future funding is of concern.
Local Government 6.30 Prior to 1998, partnership working across the South Wales Police area existed on a relatively ad hoc basis. The Crime and Disorder Act 1998 transformed partnership working by placing a statutory duty on selected agencies to work in partnership to tackle crime and disorder issues. Primary amongst these agencies were the police, local authorities, probation and health services and the fire service. The impetus of the Act has focussed attention on co-operation and collaboration. There are seven Community Partnerships in South Wales (also known as Crime and Disorder Partnerships or CDRP’s in England) each being coterminus with a BCU boundary.
Overarching Leadership Group (OLG) 6.31 The establishment of seven Community Safety Partnerships in the South Wales Police area created a need for a collective strategic approach involving all the key partners at chief executive level. As a result, the Overarching Leadership Group was established with membership made up of the Chief Constable, the Chief Executives of the seven Unitary Authorities, the Chief Probation OYcer, and senior representatives of health authorities. Membership of the group has since been expanded to include the Crime Reduction Director for Wales, the Chief Fire OYcer, and senior representatives of the Prison Service, NACRO, the Youth Justice Board and the Church in Wales. 6.32 The Overarching Leadership Group has maintained a strategic overview of crime trends and shared community safety needs and has provided leadership and direction in all aspects of public safety. The work is greatly assisted by the fact that representation is at chief executive level. The OLG has shown itself to be an eVective mechanism for joint planning and policy making and has resulted in tangible outcomes including an information sharing protocol that all members signed up to. Ev 290 Welsh Affairs Committee: Evidence
Community Safety Partnerships 6.33 As outlined in Chapter 3 (para 3.16) Community Safety Partnerships are required to produce three year plans which identify priorities. The first plan covered 1999–2002 and the current one will end in March 2005. Before publication of plans there is a statutory requirement for Community Safety Partnerships to undertake an audit of crime and disorder that are of concern to communities. The majority of partnerships are currently undertaking the Audit process. 6.34 In addition, responsibility for drug strategies passed in 2002–03 to Community Safety Partnerships. In 2003–04 the partnerships were required to draw up substance misuse plans and appoint co-ordinators. Forces are currently briefing BCU Commanders and are requiring that the Commanders ensure that the plans reflect an agreed all Wales standard. 6.35 Whilst all Community Safety Partnerships are unique many are structured along broadly similar lines. The following is a broad overview of the Community Safety Partnership operating in Rhondda Cynon TaV.
Rhondda Cynon TaV Community Safety Partnership 6.36 Strategic Leadership is provided by the Strategic Leadership Group which is made up of the Chief Executive of the Local Authority, the police BCU Commander (Chief Superintendent) and senior oYcers of the statutory partners, health, fire, probation as well as voluntary groups. The current three year strategic plan is based around six key areas: 1. property crime; 2. violent crime; 3. substance misuse; 4. young people; 5. public reassurance; and 6. road safety. A second tier group—the Implementation and Monitoring Group is accountable to the Strategic Leadership Group for delivery of targets. To this end a partnership lead has been appointed for each of the main areas. A quarterly report is submitted to the Strategic Leadership Group showing progress against targets. 6.37 Funding of the partnership originates from a number of sources eg the Wales Safer Communities Fund, the Building Safer Communities Fund, the BCU Fund, ad hoc funding secured through a bidding process eg Fire Service Arson fund and Funding from the Welsh Assembly Government for specific community safety initiatives and again from a bidding process. All of the funding is short term and has to be spent within the financial year it is allocated. This inevitably means that strategies are developed around short term objectives linked to available funding. 6.38 The following are examples of initiatives and projects being taken forward by Community Safety Partnerships.
Examples of Communty Safety Partnership working CardiV Community Safety Partnership
Summer Social Cohesion Initiative A joint project (Government funded) involving the police and local authority focused on projects aimed at diverting young people away from anti social behaviour such as SPLASH and Crucial Crew. Sector inspectors were also given budgets during the late summer to target anti social behaviour “hot spots”.
Home OYce—Innovative Fund A joint crime reduction project involving the police local authority and the Universities of CardiV to reduce the likelihood of students becoming victims of crime. In recognition of the very large student population in the city, the CardiV BCU has based one community beat oYcer at the university and given three oYcers part time student community roles.
Small retailers in deprived areas A CardiV Community Safety Partnership managed fund that identifies premises, which have been subject to crime and disorder. Police crime reduction and architectural liaison oYcers and relevant local authority personnel work to identify vulnerable premises where security can be improved. Welsh Affairs Committee: Evidence Ev 291
Partnership Training A joint initiative between the police and local authority to raise awareness of statutory and non statutory partners of their responsibilities and obligations under Section 17 of the Crime and Disorder Act 1998.
Steering group against hooliganism A joint protocol between the police, local authority and CardiV City Football Club to improve the overall management of football matches and identify means by which associated crime and disorder incidents can be reduced.
Safer CardiV Safer CardiV is a limited company and registered charity. Its management board includes representatives of police, local authority and non-statutory groups and implements various community projects city-wide eg Home Safe, Child Safe Young Person Cafes, Homelessness and Re-start Projects.
Child Safe A multi agency initiative to ensure the safety of young children in the city centre, who may become separated from their parent or guardian. Partners include major city retailers, the city centre management team, local authority, Chamber of Commerce and police.
Abandoned Vehicles A project based on a joint protocol between the local authority, police and fire service to remove abandoned and dangerous vehicles.
Restart Youth Bus A youth crime reduction initiative that provides a fully equipped bus that attends areas in which there is little youth support. Partners include the community safety partnership, Safer CardiV, the local authority and police. It recently received a National Award.
Stray Horses A Local Initiative between local authority, police, RSPCA and gypsy travellers in which horses can be given a microchip to assist in identification of horses.
TAPPs (Targeted Area Priority Plan) A partnership regeneration project operating within a Communities First area. Involving the local authority, police, fire service and residents.
Human TraYcking and Child Prostitution Training CardiV Community Safety Partnership in conjunction with Centrex (Bramshill) contributed and sponsored the first, national, multi agency training on Human TraYcking and Child Prostitution. Attended by senior representatives of police, social services, housing, immigration service and other relevant organisations. Further training and research for 2004 has been supported by the CardiV Community Safety Partnership.
Vale of Glamorgan Community Safety Partnership
Romilly Park in Barry A problem solving approach to a large scale youth annoyance problem in a local public area. The project recently won the force Problem Oriented Policing prize. This partnership initiative resulted in: — A reduction in all incidents reported in the park and surrounding areas. — Theft from motor vehicles fell by 91%. — Reports of youth annoyances fell by 72%. —OVences of drunkenness fell by 74%. —OVences of criminal damage dropped by 68%. Ev 292 Welsh Affairs Committee: Evidence
— Reports of incidents of annoyance caused by vehicles fell by 52%. — The total number of incidents including miscellaneous incidents fell by 63%. A questionnaire completed by residents confirmed that quality of life in the area had improved and overall fear of crime had been hugely reduced.
GraYti project “Streetcare”
A partnership approach with the local authority to remove any racist, homophobic or obscene graYti within 24 hours. All other graYti will be removed within five days of notification. A Streetcare reporting form is available in relation to a number of public reassurance issues which include, graYti, damage, flytipping, abandoned vehicles, defective street lighting, road surface problems etc. Shops that sell spray paint have been visited to stress the need to be vigilant to whom they sell spray cans.
Bridgend Community Safety Partnership
Wildmill Initiative
The Wildmill area of Bridgend, is a social housing estate of approximately 1000 dwellings, which includes blocks of flats, maisonettes, detached and semi-detached houses; estimates of the population of the area vary but are put at approximately 2,500 people. The estate covers a relatively small geographical area, with high social deprivation, with higher than average levels of criminality and youth annoyance. Research commissioned by “Youthworks” Wildmill, (part of a National youth works programme, operating through local groundworks trusts) showed that the youth of the area believed there was little for them to do and that illegal use of and traYcking in controlled drugs played a significant part in developing a feeling of deprivation within the estate. Wildmill itself has, in comparison with the rest of the Bridgend County Borough, a higher proportion of single parents, many of whom are young mothers. It has become clear that this section of the population had become an easy target for drug traYckers, the selling of stolen goods and many were on the fringes of prostitution. In 2003, a decision was made to give a greater commitment to the policing of the Wildmill estate. A Problem Orientated Policing (POP) approach began in conjunction with others within the Bridgend Community Safety Partnership. Having defined the problem and set objectives, a targeted response was set. This was in relation to both law enforcement and in improving the surroundings of the area and the use of “distraction tactics” such as the development of the “Youthworks” centre, to reduce the youth annoyance problem. — CCTV cameras were installed throughout the estate; — the police presence was significantly increased. In June 2003, every special constable within the Bridgend BCU was seconded onto the Wildmill project. In total 17 Special Constables committed themselves to additional patrol time and over a six month period from June to December 2003, over 500-hours additional patrolling was carried out. The previous establishment of one community beat oYcer, was doubled and those oYcers were resourced in such a way that, (abstractions permitting) a Wildmill CBO would be on duty every day. Both oYcers were involved in highlighting the problems and targets within their area, by developing a profile of Wildmill which included identification of every resident who was known or suspected to be actively engaged in criminal activity. — The Youthworks programme was developed and continued to grow in both credibility and standing within the community. — The activities run by the “Youthworks” programme includes sports, computer sessions, art and craft sessions, photography/video projects and health related projects. In the summer of 2003, ten young people went on a camping trip and the programme has also included Duke of Edinburgh Award sessions. — A “Groundworks” project was invited into the estate, to help develop the environment by involving the youth of the area. Figures provided on the eVects of the programme, suggest that from January to September 2003, 123 young people became involved in 432 sessions, totalling over 1,000 hours and over 5,800 attendances. — A robust and pro-active approach was taken, to targeting known criminals operating within the estate and also those criminals resident within the area, but who were committing crime elsewhere. Welsh Affairs Committee: Evidence Ev 293
— In September 2003, three PCSOs were placed to work alongside a community beat oYcer, so that they could gain experience in working with the community and gain knowledge of the problems encountered in the area. Each PCSO began working closely with various groups in the area, ensuring closer liaison is maintained between the police and the Wildmill community and with almost immediate eVect, incidents of youth annoyance began to fall. — The Wildmill community has sponsored the purchase of mobile phones for each PCSO, so that the residents group can maintain close contact with each oYcer. The following graph indicates the make-up of crimes for the Wildmill area for 2003:
Wildmill Crime Figures 2003
50 OTHER 45 DRUGS
40 ASSAULT 35 CRIM DAMAGE 30 25 THEFT 20 BURG OTHER
15 BURG DWELL No. of Crimes 10 AUTOCRIME 5 0 JULY AUG SEPT OCT NOV DEC Month
Swansea Community Safety Partnership
Tyˆ SaV Anti-Burglary Initiative The Tyˆ SaV initiative was established in June 2003 and has developed with the assistance of South Wales Police, the City and County of Swansea and West Wales Fire Brigade. The agency has been designed to react quickly to victims of burglary by directing “target hardening” resources where they are required most. In addition to fitting improved security devices (eg doors, locks and lighting), the initiative also aims to reassure victims and empower them with the confidence and crime prevention knowledge to prevent the occurrence of repeat oVences. The main aims and objectives of the initiative are to reduce the incidences of domestic burglary and violence, provide reassurance and reduce the fear of crime, reduce incidences of repeat victimisation and promote feelings of safety and well being in the community. Although the initiative was primarily established to help and support individual victims, it also takes into account wider community safety issues, including whole street surveys and garden maintenance, reducing the threat of future burglaries and also to promote reassurance. By achieving charitable status, the project has been able to attract several sources of funding which has enabled target hardening to be carried out.
Local Beach initiatives Over the last 12 months there has been a noticeable increase in the number of theft oVences occurring at beach car parks in Swansea. To tackle this issue, the community safety department has undertaken a number of crime prevention initiatives. The team has recently provided a locker system to some of the beaches as a security measure. A large amount of the crimes being committed at these locations involved the theft of vehicles and also property from within vehicles. It was established that persons were leaving their car keys hidden on their vehicle, as there was no other means of storing them. The new system enables the secure storing of property and also the reduction in crime at the beach locations. This will be evaluated over the next 12 months and, during this time, students at Swansea Institute, are designing a purpose built system for use at beach venues throughout the year. Ev 294 Welsh Affairs Committee: Evidence
Vehicle Arson Recovery This is a scheme that has been running for four years and is aimed at the recovery of abandoned and burnt- out vehicles. Over 100 vehicles have been recovered during this time, and disposed of, thus improving the environment. Prior to the inception of the Vehicle Arson Recovery Initiative in March 2000, deliberate car fires were increasing at a rate of 12% per year in the Swansea area. In reducing the numbers of vehicle arson attacks by over 35% in the past four years and taking into account the stemming of the historic 12% annual increase, the VARI has achieved the following savings in the West Glamorgan area in attending over 1,479 less car fires. * Savings in turnouts % £591,600 Savings to society % £5.9M * Source “The Economic Cost of Arson” Home OYce Publication
Secured by Design Car Parks The scheme demonstrates through external independent assessment, a commitment to continuous progress in the reduction of car crime through a documented car park management system. Working in partnership with the local authority, the H BCU Architect Liaison oYcer and City planners have successfully achieved eight “Secured By Design” (SBD) car parks. Swansea now has the most SBD accredited car park schemes of any town or city in Wales. The eight car parks equates to seventeen hundred car parking spaces being provided to the public, with high standards of security being designed into the construction.
Operation Phoenix Operation Phoenix is a multi agency project tackling Crime and Disorder and improving the environment, it was implemented within a designated area on the outskirts of Swansea City Centre. Intelligence indicated that an open street “heroin market” was operating and that this activity was the root cause of acquisitive crime, violence and anti-social behaviour. Crime records showed this area to be one of the most crime-ridden streets in Swansea. The area had become a magnet for people who caused anti- social behaviour. The area’s appearance was one of neglect. GraYti, fly posting and tipping were commonplace, overgrown shrubbery created natural cover for drug dealers and criminals to use to their advantage. At the outset of this project Police and Local Authority met and shared specific information and intelligence. A public safety survey commissioned by the partnership produced alarming results: — 60% “Not at all safe” at night. — 20% felt “Not at all safe” during daytime. After consultation, a partnership led, phased response was planned and agreed upon, each agency playing a critical role in its delivery. The phases commenced with enforcement activity and progressed through to phases of reassurance, regeneration and finally sustainability. Phase One deployed covert test purchase oYcers to disrupt the “open” heroin market. Phase Two saw a highly visible police and local authority enforcement assault upon issues of crime and disorder. This presence preventing the resurgence of the disrupted drug market. Phase Three focused upon reassurance and regeneration, a programme of improvements to the environment combined with a reassuring and engaging police presence were its hallmarks. Phase Four capitalised upon the “reclamation” of this public space and its sustainability, the key features being the introduction of dedicated community beat oYcers and long term crime reduction initiatives eg CCTV and lighting. The successes were swift and dramatic. The drug dealing market was smashed and the orchestrators jailed for a total of 25 years. Reported crime and incidents fell dramatically. The visual appearance significantly improved with countless issues being addressed. Public perception of safety dramatically improved and gave the community a new air of confidence. Recorded crime dramatically reduced across the first three months of the Operation and has remained at significantly lower levels since. The headline successes during the operational period include monthly reductions of up to: — 32% in All Crime. — 47% in Violent Crime. — 70% in Auto Crime. Welsh Affairs Committee: Evidence Ev 295
It has been encouraging to note the continued reduction of recorded crime since the initial intensive three- month period. This reduction takes on greater significance when viewed against the BCU figures as a whole during this same period.
7. Strategies to Address Crime and Anti-Social Behaviour
Introduction 7.1 The need for people to feel safe wherever they are and wherever they live is an absolute right that all communities are entitled to. Fear of crime and anti-social behaviour is a factor that impacts on quality of life and it is fully recognised that performance indicators that show falling levels of crime will not lead to increased public reassurance unless accompanied by tangible improvements that result in people feeling safer. 7.2 Triggers for fear are wide ranging and can be influenced by perception of crime levels, environmental factors such as abandoned vehicles, broken windows, graYti as well as feelings of intimidation that result from people behaving in a drunken, aggressive or intimidating manner. What is clear, however, is that local problems are often interlinked and require strategies that aim to resolve causes as well as symptoms. 7.3 The challenge for South Wales Police and its partners is not only to reduce levels of crime and anti- social behaviour but also to improve feelings of safety at a local level. This requires witnesses and victims to be treated as partners and to be kept informed of police action. This has not always been the case as traditionally the focus of police activity has been on the culprit. The consequence of acting in isolation is a loss of confidence and scepticism over the value and worth of local police. 7.4 Good intelligence is the key to success and is at the heart of policing strategies in South Wales. A project is currently away to develop a community intelligence model that will promote the better sharing of information across the many community safety partnerships that operate in the force area and build on the information sharing protocols already in place.
Crime and Reassurance Strategy 7.5 The Crime and Reassurance Strategy is the overarching strategy for tackling crime and anti-social behaviour across South Wales. The strategy has three key elements and takes account of priorities identified in the strategic and annual plans:
1. Tackling drugs and organised crime — A partnership approach with the Welsh Assembly, statutory and other agencies in key social policy areas that have a direct bearing on the service through Education, Enforcement, Diversion, Active participation in community support schemes. — Targeting of Class A drug dealers. — Support of operations through the provision of a co-ordinated and intelligence led approach to drugs enforcement/misuse both locally and regionally. — Prevention and disruption of the formation and business of organised crime gangs into South Wales.
2. Provide public protection and reassurance. — Development of strategies and action plans to prevent crime and fear of crime and includes working with the community and partnerships to design out crime by developing situational and social methods of crime prevention. — Working in partnership with communities, local authorities, criminal justice agencies and other partners to target problem locations and oVenders in terms of both crime, anti-social behaviour and, in so doing, address the causes as well as the symptoms of crime and disorder. — Highest quality of service to victims and witnesses. — Increased visibility and access using people, IT solutions and by reviewing estates, processes and equipment. — A policing style which is community based and delivered primarily through specialist police oYcers and support staV who are accessible, visible and approachable. — Utilisation of the extended police family. Ev 296 Welsh Affairs Committee: Evidence
3 Providing a professional policing service — Priority in supporting personnel delivering front line services and ensure investment in them to underpin their capabilities to provide. — Reduction of bureaucracy by improving processes to increase eYciency and eVectiveness. — Professionalising the investigative process. 7.6 The Crime and Reassurance strategy is underpinned by separate strategies and tool kits and by a range of performance indicators against which progress is monitored. All are based on the principles of the National Intelligence Model and success is dependent on the quality of available intelligence. In addition a force Control Strategy which identifies intelligence, enforcement and preventative measures has been developed in relation to the following areas: — Serious and organised crime—class A traYcking and distribution. — Serious and organised crime—Gun Crime. — Serious and organised crime—distraction burglaries. — Volume crime—vehicle crime. — Anti-social behaviour—persistent oVenders. — Anti-social behaviour—town centre and youth disorder. — Terrorism—awareness consideration and response. 7.7 It is recognised that a strategy, no matter how well intentioned, will not lead to improvements unless driven forward with energy, enthusiasm and sustained vigour. A process known as Compstat has been introduced at both local and force level to monitor progress with the aim of supporting commanders to meet their targets. Compstat is an intrusive management tool that at force level focuses on BCU performance. It involves an initial inspection of a BCU by the force inspectorate followed by a formal meeting involving the Assistant Chief Constable (Crime and Operations) and the BCU management team. At the meeting the BCU commander is held to account for performance. Areas of weakness are identified and actions plans introduced which are monitored and subject of follow up inspections. Where necessary support departments can be allocated to assist the BCU commander. In addition to the above process a “Dynamic Compstat” meeting has been introduced which brings together all seven BCU commanders together with the crime and operations managers and is again chaired by the Assistant Chief Constable (Crime and Operations). These meetings also promote information exchange between neighbouring commanders and good practice to be shared. At BCU level, divisional commanders undertake a similar process holding their own sector inspectors accountable for performance against targets. The force is currently reviewing Compstat to ensure that all relevant areas of performance are included within the process. 7.8 Volume crime is the term used to identify the crimes that make up the bulk of reported crime ie autocrime, burglary, violent crime and general theft. In line with the National Policing Plan the three target crimes for the force are: 1. Autocrime. 2. Dwelling house burglary. 3. Violent crime. Whilst specific strategies and tool kits have been developed for each crime group, they also recognise that criminals are opportunists and commit a range of crimes. Each strategy provides gateways for tackling and investigating other areas of criminality eg vehicles are invariably used by criminals as preferred modes of transport and for carrying stolen goods and drugs. The autocrime strategy takes account of the fact that criminals are vulnerable in vehicles as driving behaviour, licensing irregularities and use of automatic licensing plate recognition can highlight them for attention. 7.9 In addition to day to day eVorts to reduce crime, the force has introduced “Operation Arrowhead” which takes place every two to three months. It is based on the principle that greatest impact can be achieved on reducing local criminality and boosting public reassurance by the combined eVort of the whole of South Wales Police, ie police oYcers and police staV. During 2004, four operations have resulted in 700 arrests. Each exercise includes a range of initiatives. For example, one exercise involved talks delivered to school children on the dangers of firearms; drugs awareness talks to local magistrates; domestic violence talks to a local college; a truancy operation where over 200 children were found absent from school in one day. On each exercise the Major Crime and Legacy Investigation Teams are disbanded and detectives go to divisions to assist as arrest teams, interview teams etc. Probationer constables (oYcers in their first two years service) along with their trainers leave the classroom and parade on division. Police staV also take part in crime prevention initiatives aimed at raising public awareness of leaving valuables in cars etc. 7.10 Autocrime accounts for the greatest proportion of crime in the South Wales Police area as well as a significant number of deaths and injuries. Research has shown that 22% of all vehicle crime takes place in car parks and that simple crime prevention measures can lessen risks of being a victim. The force Vehicle Crime Strategy is based around prevention and enforcement and follows an intelligence led approach. This year (1 April—31 August ) auto crime has fallen by 13% with 1,454 fewer victims compared with the same period last year. Welsh Affairs Committee: Evidence Ev 297
7.11 Strategies to reduce dwelling house burglary are based on raising awareness of crime prevention techniques, targeting prolific oVenders, forensic analyses and follow the principles of the National Intelligence Model. This year dwelling house burglaries have been reduced by 18% with 604 fewer victims compared with the same period last year. 7.12 Violent crime is often portrayed by the media as a single crime type, associated with street crime and stranger violence. Unlike burglary and auto crime, for crime recording purposes, violent crime is a category that comprises over 30 diVerent oVences ranging from murder to common assault and includes public order oVences. The inclusion of public order oVences creates a paradox in that preventative action (eg the arrest of persons who are behaving in a disorderly manner and are about to fight) has the eVect of increasing the overall category because arrests are counted as violent crimes. During 2003–04 in the South Wales Police area, 26% of violent crime, 5,944 oVences resulted from positive policing action (ie arrests) and accounted for 4% of total crime for that year. 7.13 During 2004, research into types of violent crime was undertaken within the South Wales Police force area. The research was based on a sampling exercise involving 1,724 oVences. The results were as follows : — 872 cases (equating to just over 50%) were related to domestic violence. Of these 410 were partner related (24%), 249 were ex-partner related ( 14%), 192 were family member related ( 11%), eight involved rape (0.5%) and 13 were acquaintance related (one %). — 852 cases were not related to domestic violence. Of these, 608 were related to an acquaintance (35%), 66 were neighbour related (4%), 17 assaults were on police oYcer during the arrest (1%), 14 were rape related (1%). — In over 70% of cases the culprit was known to the victim. The research provided clear evidence that stranger violence makes up a small proportion of violent crime. 7.14 The research also found that assaults committed by persons under the influence of drink and drugs had increased by 50% over the year. Alcohol related violence is being tackled through a range of strategies that can be best illustrated through a case study based on the city of CardiV. 7.15 CardiV is one of the fastest growing cities in Europe. As well as the Welsh capital, it is a thriving social and cultural centre. It has a large full time student population which has increased 100% in the last three years to 37,000, larger than the total population of many Welsh towns. The city centre has capacity within its licensed premises for 60,000 people (which can rise to 130,000 when the Millennium stadium hosts capacity events). On an average Friday and Saturday evening up to 40,000 young people attend the bars and night clubs. The presence of large numbers of young people, many of whom are intent on consuming large quantities of alcohol, congregating in a very small part of the city creates the potential for violence and disorder and policing strategies and resources have to take account of this. 7.16 The Targeting Alcohol related Street Crime (TASC) project was a Home OYce funded, police-led, multi agency scheme launched in July 2000 with the aim of reducing alcohol-related crime and disorder in Central CardiV and CardiV Bay. It was based on a partnership involving the police, local authority, licensing industry, health and a range of other agencies. The project led to an active Licensees Forum at which issues concerning licensed premises were addressed. It led to the introduction of standards for licensed premises door staV and bar staV and an education awareness programme for school children. It also led to closer working arrangements with the city’s accident and emergency unit which provided locations and times of assaults and enabled a more complete picture of crime patterns to be captured. The partnership approach has resulted in violence against the person being reduced by 8% this year—733 fewer victims. 7.17 In order to increase resources operating in the city centre, particularly on a weekend and during the night, A “CardiV After Dark” strategy was implemented. The partners are Police, Local Authority and CardiV Bus. The scheme has resulted in additional high visibility police patrols, the provision of late night buses to assist in removing people from the city centre and to reduce risks of confrontation over taxis and road closures in the vicinity of areas with high numbers of clubs. 7.18 The evaluation of the TASC project was undertaken independently and highlighted the importance of planning policies in slowing the expansion of licensed premises in areas that were already ‘saturated’ and experiencing high levels of disorder. This was an area that achieved little success during the course of the initiative despite police objections at planning applications. 7.19 The introduction to this report highlighted the emphasis being placed on combating organised and serious crime. In addition to operations conducted within force both Welsh and neighbouring English forces have wide ranging and eVective cross border arrangements in place based for collaboration. Examples include: — Operation Tarian—outlined in detail in chapter 4. — A Regional Asset Recovery Team—has already exceeded its three year target for cash seizures having seized over £1 million. In addition £4 million in assets have been seized. — An all Wales Distraction Burglary Policy is in place. Ev 298 Welsh Affairs Committee: Evidence
— Operation Eagle is a regional operation involving South Wales Police, Dyfed Powys Police and British Transport Police who on a bi-monthly basis pool their information and resources to target travelling criminals and provide public reassurance. The Operation has been conducted on three occasions to date. Total arrests to date number 115 for oVences ranging from class A drug supply, vehicle crime and burglary. 7.20. The risks from terrorism require ongoing vigilance to ensure that South Wales is not seen as a soft target, particularly in light of target hardening operations in London and other major cities. Within force a Security Review Group has been set up to co-ordinate actions to ensure that risks and potential targets are identified at the earliest stage and appropriate action taken. Each BCU has a lead co-ordinator who is responsible for collating intelligence and for ensuring that front line oYcers are properly briefed and that appropriate actions are followed through.
Strategies to Address Anti-Social Behaviour 7.21 The Home AVairs Committee is currently conducting an inquiry into Anti-Social Behaviour and have received a written submission from the President of the Association of Chief Police OYcers (ACPO). The Chief Constable of South Wales Police is in agreement with and fully supports the ACPO submission. 7.22 Traditionally, police activity has focused on preventing and detecting crime and has resulted in considerable success. This activity has been driven by national targets and local consultation. Significantly, and until recently, combating anti-social behaviour was not a national target for police forces. Indeed, there is currently no national definition of what constitutes anti-social behaviour and no national measurement framework that compares policing performance. 7.23 In recent years there has been a realisation at national level that anti-social behaviour can have as great an impact on the quality of life of people living in an area. Indeed, it can have a greater impact. Crime tends to be targeted at individuals whilst anti-social behaviour can aVect whole communities. In combination the eVects can be devastating. 7.24 National surveys have revealed the scale of the problem. Two years ago, the Home OYce conducted a national survey of anti-social behaviour over the course of one day. Over 66,000 incidents were reported, with 60% resulting from the actions of young people. It has been estimated that anti-social behaviour amounts to an annual cost of around £3.4 billion a year and that one in five people have reported a high level of disorder in their area. It is also clear, as highlighted in a recent survey published by the Times newspaper, that young people are as concerned about anti-social behaviour as those in older age groups. By tackling anti-social behaviour eVectively through early identification and intervention there are huge benefits and resource savings to be gained. 7.25 Whilst combating anti-social behaviour has taken on an increased focus in recent years the problem is not new. Indeed, the police service has faced this problem on an increasing scale over a very long period. What is new is the inclusion of anti-social behaviour alongside the national requirement to reduce crime. To some extent this is reducing local tensions experienced by the police in areas where anti-social behaviour is seen as a higher priority than some of the nationally measured crimes. The latter target has sometimes led to local policing resources being focused on the measured targets. 7.26 There is no doubt that drunken, aggressive behaviour, intimidation, vandalism and loutishness all undermine a civil society and often target the most vulnerable. Such behaviour is committed by a minority of people whose actions have a disproportionate eVect. Solutions need to be aimed at those responsible in a measured, proportionate and eVective way. 7.27 Young people in particular are often associated with anti-social behaviour and there is a growing tendency to associate any group of youths who congregate in an area with nuisance. There is a risk that unless measures to tackle problems are proportionate then young people will be demonised and alienated from the police and other agencies. Evidence within South Wales, as will be shown later in this chapter, is that parental influence can have a significant impact on reducing anti-social behaviour providing that the parents are made aware of their children’s behaviour. Solutions need to firstly stop problems and then make sure they don’t re-occur 7.28 Until fairly recently police actions tended to be focused on the first part of the solution. It was wasteful in resources and left complainants feeling a sense of frustration and despair. It is now recognised that tackling anti-social behaviour eVectively is about recognising the impact on victims and communities as well as looking at the factors which cause such behaviour. Most importantly it is about taking early action that recognises the needs of victims and witnesses alongside measures to deal with the culprit. Early intervention is critical and within force programmes are aimed at gathering community intelligence on a partnership basis so that those who are responsible can be properly targeted. Crucial to being eVective is the need to give victims and witnesses the confidence to come forward. Protection of communities, victims and witnesses is paramount. 7.29 The Anti-Social Behaviour Act 2003 provided a comprehensive list of measures to tackle the problem. It provided for quick and eVective responses to problems, which were previously diYcult to deal with due to unclear legislative powers. Experience has shown that solutions based on problem solving interventions are most likely to be successful if they: Welsh Affairs Committee: Evidence Ev 299
1. Address risk factors, which lead to anti-social behaviour and provide support. 2. Establish clear standards of acceptable behaviour within the community, ensuring that these are upheld and that victims’ needs are addressed. 3. Make an oVender aware of the impact and consequences of their behaviour, ensuring they stop and are supported towards a positive future. 7.30 To this end, an “Anti-Social Behaviour Framework—A Partnership Approach” was developed by South Wales Police and formally launched by the Chief Constable at a Seminar attended by Welsh Assembly Government Minister Edwina Hart and representatives of Community Safety Partnerships in June 2004. The framework was based on a consultation process involving the South Wales Overarching Leadership Group, all seven Community Safety Partnerships, Divisional Commanders and other practitioners. It provides a structure across South Wales aimed at enabling the police in partnership to make best use of intelligence, resources and available interventions in a co-ordinated, structured and consistent manner. 7.31 The framework sets out minimum standards that are required to eVectively tackle both cause and eVect of anti-social behaviour eg it requires an anti-social behaviour coordinator to be present in each BCU, along with a partnership oYce and a joint anti-social behaviour co-ordinating group. As a result, each BCU has a police anti-social coordinator sitting alongside a local authority co-ordinating in a joint partnership oYce. 7.32 Levels of interventions across the force area for the period 1 January 2003 to 1 September 2004 are shown in the table below. The adoption of the framework since June 2004 has resulted in a more consistent approach being taken across the force area.
ABCEFGH
1st stage letters 347 411 247 878 59 1,198 2nd stage letters 47 78 31 61 131 159 3rd stage 5 23 15 ABC 2 7 8 1 11 15 31 ASBO’s 17 10 24 3 2 10 3 7.33 The framework in based on a graduated flexible approach that treats each case on its own merit. It draws on lessons learned by the police service in the 1970s and 80s when enforcement action failed to address crime levels which were increasing at an exponential rate. The graduated response is aimed at ensuring that people are aware that their behaviour is causing a public nuisance and has the flexibility to by pass stages if the severity of the case warrants it. It has proved particularly eVective in raising parental awareness of their child’s behaviour outside the home. 7.34 In general terms, the graduated response operates as follows. Step one involves a warning letter being sent requiring the person to stop the behaviour. If the problem persists, step two would include a follow-up letter and a home visit by members of the partnership and a police oYcer. This visit would aim to identify and address any aggravating problems, such as diYculties within the family or at school, which might underlie the behaviour. If a third referral is received and the individual has not engaged with the process a case conference is called drawing together all the agencies and the individual to try to find a way forward. This would result either in an Acceptable Behaviour Contract (ABC) being drawn up or an application for an Anti-Social Behaviour Order (ASBO). (The ABC is a contract that identifies the behaviour that is required to be addressed and how this will be achieved. It is a formal document that is signed by the parties involved. Whilst it is not legally binding it provides additional evidence should there be a need to apply for an ASBO). 7.35 The following case studies illustrate how the framework operates in practice.
Case Study One June 2004. Involved a girl aged 14 repeatedly drinking alcohol in the grounds of a crematorium and behaving in a disorderly manner. A complaint received from a resident close by. The area and complainant was visited by a police oYcer and an anti-social behaviour report submitted. This resulted in a letter being sent to the individual’s home. Local police oYcers and trading standards oYcers were also advised that licensed premises in this area were selling alcohol to under age persons resulting in appropriate action being taken. The parents acknowledged receipt of letter and being unaware of their daughter’s behaviour thanked Safer Swansea Partnership for intervening. There was no repeat of this problem.
Case Study Two May 2003. A girl aged 15 was reported for persistent bad behaviour and aggression towards staV at a retail outlet. This resulted in a first warning letter. In October 2003 the bad behaviour resumed and the girl was again reported to the police. This resulted in a home visit from the Sector Inspector and representative of the Youth OVender Team (YOT). A risk assessment of future behaviour was undertaken and concerns were Ev 300 Welsh Affairs Committee: Evidence
identified in relation to her home life. This resulted in additional support being provided to the family by both the Education Department and an oYcer from Social Services. There was no repeat of the behavioural problems.
Case Study Three
January 2004. A girl was reported for causing alarm and distress to a member of the public by using obscene language towards them. A case conference was called with the following agencies in attendance— ASBRC, Police, Youth OVending Team, and Education. It was decided that an Acceptable Behaviour Contract would be drawn up. A police oYcer and YOT worker undertook a home visit and obtained agreement over the Acceptable Behaviour Contract with the girl and her mother who both signed the contract. In February 2004, a review of the ABC was undertaken and revealed that whilst it had not breached, the behaviour of the girl merited further attention. Further intervention resulted. As a consequence her behaviour improved markedly and she has also made better progress in school.
Case Study Four
April 2003. Involved a 13 year old boy who had been excluded from school due to his behaviour and who came to the notice of the police through a number of complaints from the public over his conduct towards staV and customers of local shops. The individual was subject of an advisory letter and visit from the local sector. Due to his continuing poor behaviour he was subject of an Acceptable Behaviour Contract and signed this in the presence of his mother. As a result his behaviour improved for a period of three months. However, following further problems including damage to neighbour’s property and further nuisance at the shopping precinct he was made the subject of an anti-social behaviour order which was applied for by the police Anti-Social Behaviour Co-ordinator and granted by CardiV Magistrates Court for a period of three years.
Case Study Five
January 2004. Involved activities of local youths subjecting residents of an estate in CardiV to intense anti- social behaviour. Residents were faced with a steady decline in the visual impact of the estate resulting from graYti and physical damage to property including paving stones, telephone lines and electricity boxes. Youths in groups of 10-35 were often involved and as well as anti-social behaviour were also engaged in criminal activities. Local policing initiatives focused on a problem solving approach including diversionary activities as well as enforcement. Several trips were arranged but met with a poor response. High visibility patrols were introduced, overt and covert CCTV utilised and other crime prevention measures introduced. Despite all eVorts the behaviour of the local youths did not improve. As a consequence and in order to restore stability and security to the community, Section 30 of the Anti-Social Behaviour Act 2003 was applied to the area on 17 August for a period of three months. Under the order a curfew has been introduced in the following terms, “If between the hours of 9 pm and 6 am a police constable in uniform finds a person in any public place in the designated area, whom he has reasonable grounds to believe is under the age of 16 years, and is not under the control of a parent or responsible person aged 18 or over, the constable may remove the person to their place of residence or other appropriate address, unless he/she has reasonable grounds for believing that if that is done the young person would be likely to suVer significant harm.” In addition ASBO’s are being applied for in respect of certain individuals. At the time of writing, the Section 30 Order has been in eVect for over a month and has already had a positive eVect. The number of complaints of anti-social behaviour have dropped from an average of 1.5 a day to nil. The Dispersal Order has proven eVective and as a result it has not been found necessary to introduce the curfew element. The BCU commander is hopeful that the Section 30 Order will be withdrawn ahead of its expiry date. To that an end an exit strategy is currently being developed by the partnership with the aim of ensuring that the progress made is maintained over the long term. 7.36 The following are examples of other initiatives that have been undertaken or are in the process of being developed in order to reduce anti-social behaviour.
(i) Closure of Crack House
Utilising S1 of ASB Act 2003 to close a property in Swansea following investigations regarding drug abuse. Welsh Affairs Committee: Evidence Ev 301
(ii) Operation Blakey
This involved Police OYcers and Police Community Support OYcers travelling on the First Cymru buses in the Penlan, Blaenymaes and Gorseinon areas during the month of March 2004, in order to reduce the number of incidents of nuisance and anti-social behaviour. The initial reaction from the public and the bus company seems to be very positive, with fewer annoyance incidents being reported. The operation is currently being evaluated which will provide more specific information with a view to extending the scheme to other parts of the City as and when the need arises.
(iii) Vehicle Arson Recovery
This is a scheme that has been running for four years and is aimed at the recovery of abandoned and burnt- out vehicles. Over 100 vehicles have been recovered during this time, and disposed of, thus improving the environment. Prior to the inception of the Vehicle Arson Recovery Initiative (VARI) in March 2000, deliberate car fires were increasing at a rate of 12% per year in the Swansea area. In reducing the numbers of vehicle arson attacks by over 35% in the past four years and taking into account the stemming of the historic 12% annual increase, the VARI has achieved the following savings in the West Glamorgan area in attending over 1,479 less car fires. Savings in turnouts % £591,600, Savings to society % £5.9M.( Source ‘The Economic Cost of Arson’ Home OYce Publication). In addition the ability to remove illegal and abandoned vehicles, which have long been trigger factors for crime, has been improved through the Partnership appointing two individuals to deal with the removal of vehicles. (iv) Swansea City Centre Christmas Operation 2003
This is a seasonal operation, which ran for six weeks from the middle of November to the end of December 2003, and involved a wide range of police resources. Its main function was to oVer public reassurance with a greater uniformed presence on the streets and to take positive action in respect of anti-social behaviour and criminal conduct. The operation had a constructive eVect in the area with 141 arrests for a wide variety of oVences and a vast amount of intelligence was gathered. The emphasis on public safety and reassurance has also been a main feature of the continuing eVorts of partnership agencies to build on the success of the city centre being the first in Wales to receive a Home OYce approved Safer Shopping Award. By targeting known criminals and issuing Exclusion Orders on the most persistent shoplifters has demonstrated that Swansea will not tolerate this type of behaviour. As part of the Christmas operation, an emergency triage centre was introduced in the city centre. It was staVed by medical personnel and police to treat people with minor injuries on site, thus reducing the number of people who would otherwise have gone to the Accident and Emergency Department at Morriston Hospital. This proved to be very successful and was welcomed by all concerned and it is something that we will be looking to repeat in the future. 7.37 The force is also involved in working with young people to encourage the positive contributions they can make to society. The Prince’s Trust Volunteers Scheme provides a good example. The South Wales Police Princess Trust Volunteers franchise was established in 1998 and since then has administered over 100 team programmes. The Trust targets young people who are considered disadvantaged and the South Wales Police franchise attracts a high proportion of young oVenders. An evaluation of the scheme has that 66% of persons whom enter the scheme with a conviction do not go on to reoVend and that 43% progress from the scheme into work, education, training or voluntary work. 7.38 Whilst significant progress is being made in reducing anti-social behaviour increased eVectiveness could be achieved through the following: (i) There is a need for a national definition of what constitutes anti-social behaviour. This would promote a better understanding amongst partner agencies and the role that each agency can play in combating it. (ii) A clear definition would enable a performance monitoring regime to be introduced that would allow for meaningful comparisons to be made. Unfortunately, the current lack of a nationally agreed definition means that alternative measures are sought. The worst example is the use of the anti-social behaviour order as an indicator of success. As explained earlier in this section, an anti- social behaviour order is only one part in a tactical range of options. It could equally be argued that an anti-social behaviour order represents a failure in that intervention has not resolved the problem at an earlier stage. (iii) Any performance regime must include partner agencies and defined common minimum standards of working. It should seek to reward integrated working across agencies. (iv) There needs to be universal recognition that anti-social behaviour can only be tackled eVectively by joint action “across the piece”. This means for instance, cross cutting government action from the top to direct and facilitate joint activity down to a local fully integrated strategy. Ev 302 Welsh Affairs Committee: Evidence
(v) There must be more eVective management of the night- time economy that recognises the social responsibility of the licensing industry. This requires more eVective integration and enforcement of licensing. Residents views must be given a high priority in determining whether a licence is granted or renewed. Saturation of any area must be a ground for refusal of a licensing application. Police and the local authority must have stronger powers to close licensed premises temporarily. (vi) Policing the night-time economy creates a huge demand on police resources. ACPO supports the “polluter pays “ policy and the view that licensed premises should be responsible for the costs associated with crime and disorder problems resulting from the night-time economy.
8. Conclusion 8.1 This paper has been prepared to assist the Welsh AVairs Select Committee in its inquiry into the police service, crime and anti-social behaviour. Barbara Wilding QPM Chief Constable, South Wales Police 8 October 2004
5. Letter from the Chief Constable of Gwent police
Submission to the Welsh Affairs Select Committee In responding to the issue of anti-social behaviour within Wales the Chief Constable’s of the four Welsh forces will necessarily deal with the issues as they specifically pertain to their area. We all have a collective responsibility in professionally advancing “policing” within England and Wales as members of the Association of Chief Police OYcers (ACPO) (not printed here). The Association has similarly been asked to submit evidence to the Home AVairs Committee Inquiry into Anti-Social behaviour and I preface the Gwent submission with the submission of ACPO dated 27 September 2004. The President of ACPO, Mr Chris Fox will be appearing before the Home AVairs Select Committee during November in order to provide verbal evidence to the Committee on this issue. The stance of our Association on the issue of Anti-Social Behaviour is one that transcends force boundaries and I have concentrated on the more local dimension in the Gwent submission within the context of our National stance which will be aired during the Home AVairs Committee Inquiries. I therefore commend both documents to you and look forward to the opportunity of dialogue with the Committee on this very important issue. Mr Mike Tonge BA Dip APP Crim 6 October 2004
Written evidence from Gwent Police
Anti-Social Behaviour
Introduction The demands from our communities for the police and the Community Safety Partnerships to eradicate anti-social behaviour grows stronger each year. In many areas this demand is fuelled by sensationalist reporting by the media of individual incidents. If we were to believe this reporting, our towns and cities would be over-run with unruly young people whose sole aim is to cause misery to the elderly and vulnerable on every street corner. Thankfully, for the vast majority of communities this image is not a reflection of the true picture. However, anti-social behaviour is a reality and one that aVects many of our communities to a greater or lesser extent. In this submission, I have set out my views on the nature and extent of anti-social behaviour, current and future initiatives to deal with anti-social behaviour and the needs of the service to eVectively tackle this problem. This submission should be read in conjunction with the ACPO submission to the Home AVairs Committee Inquiry into Anti-Social Behaviour. Welsh Affairs Committee: Evidence Ev 303
The Nature of Anti-Social Behaviour There is no strict definition as to what constitutes anti-social behaviour. It may be expected to include graYti, litter, intimidating groups in public places, drunken behaviour, nuisance neighbours and young people with air guns among many other things. The Anti-Social Behaviour Act 2003 certainly includes powers to deal with these issues. It also brings in powers relating to Class A drug use in premises and parenting orders relating to children who have or are likely to commit a much wider range of oVences. From this we might infer that the Government perceives anti-social behaviour as being any behaviour that impacts detrimentally upon the quality of life of other members of the public at large, even if that behaviour itself is not an oVence. Whilst this view is laudable because it seeks to create communities that feel, and actually are, safer, it brings with it some problems. Firstly, our society appears to be becoming less tolerant, in particular of young people. The police are receiving a significant number of calls regarding young people congregating in public places where they are engaged in behaviour that in all probability falls below criminality. In the national anti-social behaviour one day count in September 2003, between 25–36% of calls related to nuisance or rowdy behaviour or people feeling intimidated. Many of these calls are likely to relate to people’s perception of behaviour rather than its actual intent. Young people in groups may feel intimidating, but they may not intend to intimidate. We are in danger of criminalising and alienating a section of society who would otherwise grow to be law- abiding citizens. This is linked to, and compounded by, a changed society that has left few of us knowing our neighbours. People are therefore more reluctant to address the behaviour of their neighbours or their children, and neighbours (and their children) are less inclined to accept criticism. This has resulted in the public turning to statutory agencies to resolve their diYculties rather than communities solving their own problems. The result has been an increased call upon the resources of the police and other agencies. This is not simply a cry for the halcyon days where society took on more responsibility, it may also be a key to dealing with some aspects of anti-social behaviour in the future. The second problem relates to dealing with the occurrence of crime and disorder, including anti-social behaviour, and people’s perception and fear of its occurrence. There is a shift in performance measures, in particular for the police, to take into account the latter, as well as the former. This is understandable when we want to deal with quality of life issues, ie making society safer and feel safer. Traditionally, we have addressed both issues by trying to reduce the actual level of crime and disorder. The philosophy has been that by bringing recorded levels of burglary, robbery and violent crime down people will inevitably feel safer. However, there is no clear correlation between occurrence and perception. For example, if you look at Gwent and its seven most similar forces (MSF) in respect of violent crime per 10,000 people and the level of worry about violent crime from the British Crime Survey for the same period, there is no correlation.
Table 1
OCCURRENCE OF CRIME AGAINST LEVELS OF WORRY FOR 2003–04
Force Area Violent Crime High Level of Per 10,000 Worry Indication* Gwent 246 10 South Wales 188 9 Kent 144 13 Hertfordshire 135 16 Humberside 327 13 Lancashire 206 16 Durham 122 16 Northamptonshire 201 12
* This figure represents the percentage of people who stated that they had high level of worry about certain types of violent crime, including stranger violence and racially motivated violence. Those agencies charged with addressing anti-social behaviour therefore need to deal with its occurrence and the fear of it in two entirely separate ways. This will become more apparent if the issues of tolerance and community and neighbourly cohesion become weaker. Again, a recognition of this fact may be key to looking for a solution.
The Extent of Anti-Social Behaviour Nationally there has been an increase in both disorder and violent crime over the past three years. Within Gwent, disorder (including public order oVences) has fallen. Crimes of violence are relatively static looking over the longer period, however, drink-related violence continues to increase. Ev 304 Welsh Affairs Committee: Evidence
Table 2
ANTI SOCIAL BEHAVIOUR TREND
OVence 2002–03 2003–04 2004–05* Section 4 POA** 1,015 971 905 Section 5 POA** 3,056 2,068 1,652 Disorder incidents 43,665 36,075 35,574 Violent Crime 15,812 13,577 14,316 Drink related violence 2,832 2,974 3,964
* Projected ** OVences involving threatening and intimidating behaviour. This is relevant in looking at the initiatives currently underway in Gwent to deal with anti-social behaviour. It also highlights the problematic drink culture that exists and that results in violent crime being committed. Drink-related incidents contribute significantly to anti-social behaviour and it is therefore useful to understand the age profile for those involved in such incidents in order to look for solutions. Table 3 sets out the age range of oVenders involved in drink/drug influenced violent crime in 2003–04. It shows that 42% of such crimes were committed by people between the ages of 18 and 25. The broader age group of 18 to 35 are responsible for 64% of alcohol/drug influenced violent crime.
Table 3
VIOLENT CRIME COMMITTED BY PEOPLE UNDER THE INFLUENCE
Age Range No of OVenders % of Total OVenders
10–18 263 14 18–25 878 42 26–35 477 22 36–45 326 16 46–55 107 5 56–65 27 1 Over 65 13 1 Total 2,091 100
In terms of the lower level anti-social behaviour incidents, the one day count held on Wednesday 10 September 2003, showed the following picture:
Table 4
ONE DAY COUNT DATA
Incidents Proportion of Total Proportion of Total Incidents Nationally % Incidents in Gwent %
Drug/substance misuse 4 0 Street drinking and begging 5 2 Prostitution/other sex acts 2 2 Intimidation/harassment 12 6 Noise 8 3 Nuisance behaviour 8 2 Rowdy behaviour 8 14 Hoax calls 12 34 Animal related problems 4 3 Abandoned vehicles 8 2 Criminal damage 12 30 Litter 16 6 Total number of calls 64,851 51
Whilst there are some diVerences between the national results and those in Gwent in the proportion of calls relating to the specific incident types, there are common concerns in relation to the environmental issues of abandoned vehicles, criminal damage and litter amounting to 40% of calls and physical intimidation/poor behaviour issues amounting to 25–36% of calls. Welsh Affairs Committee: Evidence Ev 305
Dealing with Anti-Social Behaviour
Current Work Gwent Police has always maintained close links with its community through our sectional community policing style. This has undoubtedly contributed to our success in crime investigation. It has, however, placed a significant onus upon the sectional inspector to co-ordinate and undertake community consultation and problem solving with the support of relatively few community oYcers, with the result that only higher level community problems are dealt with. Resourcing issues have left the majority of oYcers to respond to “mainstream” policing issues as they have occurred. The Crime and Disorder Act 1998 placed a legal responsibility on specific statutory authorities to become involved in dealing with anti-social behaviour along with other aspects of crime and disorder. This co- operation has developed significantly and there now exist very eVective partnership at the strategic and tactical level. The introduction of Crime and Disorder Reduction OYcers at Inspector level in each territorial division has assisted in taking forward and formalising partnership arrangements, in particular crime and disorder strategies. What has been lacking has been community oYcers on the ground to allow the use of these strategies to address “lower priority” issues, within which the majority of anti-social behaviour problems tend to fall. However, there are extensive examples of current joint working good practice. For example, joint initiatives with local authority Community Safety Wardens in Newport; arrangements between services for the rapid removal of abandoned vehicles in Torfaen; problem solving meetings between Crime and Disorder Reduction OYcers (CADRO’s) and housing managers from the local authorities and private housing companies in Caerphilly and Newport. Some specific case studies are set out below:
Case Study One
Tackling low level anti-social behaviour with multi-agency ward meetings Issue—There was a lack of information sharing amongst agencies to identify perpetrators of anti-social behaviour (ASB) at an early stage, prior to the situation becoming serious enough for Anti-Social Behaviour Orders (ASBO’s). Approach—Police (Crime & Disorder Reduction OYcer, Ward OYcer), Anti-Social Behaviour OYcer, Community Safety Warden, Housing OYcer, Registered Social Landlord, responsible for the Ward, now meet monthly to discuss ASB hotspots and perpetrators, conforming to an Information Exchange Protocol. By information sharing and taking a partnership approach, the problem can be dealt with from all perspectives, whilst preventing duplication of work. Specific example—A gang of youths on a Newport council estate were starting to cause harassment to local residents by loitering in gangs, causing minor damage and noise nuisance. As a result of discussing this issue at the Low Level ASB Ward Meeting the perpetrators were identified and a joint action plan was drawn up. Partnership warning letters were sent to their parents, and a joint home visit was made by the Crime & Disorder Reduction OYcer and Council Housing. It became apparent that the youths were not aware of the eVect their behaviour was having on others. Their parents were not aware where their children were during the evenings. By addressing the problems at an early stage; explaining the ASBO Process which would be used if the anti-social behaviour continued, and involving the parents in the process, their behaviour improved. No further action was required.
Case Study Two
Youth OVending Team intervention methods dealing with youths involved in anti-social behaviour Issue—Acceptable Behaviour Contracts (ABC’s) were being introduced by Newport Community Safety Partnership as part of their Anti-Social Behaviour Strategy. Approach—Where an Anti-Social Behaviour Conference has decided to work with a youth on an Acceptable Behaviour Contract, the Newport Youth OVending Team Council ASB OYcer and Police meet with the youth and parents. The ABC meeting gives the individual involved in the anti-social behaviour and his or her family the opportunity to discuss the impact the behaviour has on others. The meeting can be used as an early intervention process to stop the inappropriate behaviour becoming worse and outline possible repercussions should their behaviour be repeated. It can also be used as an opportunity to provide support to address underlying causes, and to oVer intervention methods to steer the individual away from their anti-social behaviour. Specific Examples—A youth who was part of a large gang causing serious anti-social behaviour in a residential/shopping area has been placed on an Acceptable Behaviour Contract. The youth agreed to disassociate himself with the gang and is successfully managing to do this. He also agreed as part of his contract to be referred to a Motoring Project. Ev 306 Welsh Affairs Committee: Evidence
This project has been set up by the Newport Youth OVending Team. It involves participation from the YOT, Police, Education and Probation: Placing youths on stages of the scheme provides training in basic mechanics, advanced mechanics and road/vehicle safety education. The ABC referral to the YOT has also allowed the youth to be mentored by one of three Community Service Volunteers who are working with the Newport YOT. They look at constructive use of the individuals leisure time through an Individual Support Package. They seek to get them involved in activities that can be maintained and sustained after intervention by YOT. Similar arrangements exist in Torfaen. In one case there an 11-year-old boy was responsible for theft and starting fires. His behaviour was deteriorating and he, together with friends, were harassing neighbours. The multi-agency Problem Solving Group, including the YOT, met, and an Acceptable Behaviour Contract was agreed with the boy and his family. This included an input to the boy from the Fire Service. The behavioural problems have ceased. The existing powers to deal with anti-social behaviour are significant and form a menu of options to intervene at all levels of behaviour. In many cases intervention at an early stage through parental engagement prevents escalation to a point that requires Acceptable Behaviour Contracts or Anti-Social Behaviour Orders. Regarding the latter, 50 have been gained throughout the Force, however, they are viewed by the partnerships as a last resort and not a performance indicator of success. New powers introduced in the Anti-Social Behaviour Act 2003 will add to this menu of options. Some also bring with them significant resourcing implications. For example, the power to convey people to their home if used would take oYcers away from the scene of an incident and result in oYcers providing a taxi service for anti-social members of the public. It can be anticipated that this power will be used sparingly. Others, such as the use of fixed penalties, will be used more. The partnership approach has had significant success in dealing with anti-social behaviour within Gwent. By itself it will never solve all societies anti-social behaviour problems. The final section of this submission looks at what the police, the broader partnership and the community can do to address these problems.
Future Initiatives and Needs
Police Within this document, I have already identified the divides between the successful Crime and Disorder Partnership working at the higher level and its selective successes in addressing anti-social behaviour. To allow this success to permeate to a broader range of anti-social behaviour problems, Gwent Police are moving to “Neighbourhood Policing” by introducing Ward Managers/OYcers across each territorial division to be the Neighbourhood OYcer at ward level and to assist the partnership in managing community problems. This initiative has required additional funding to introduce 66 new oYcers to meet this commitment. It is fundamental to our approach to neighbourhood policing. In addition, we are bidding, through Home OYce funds, for an increase in Police Community Support OYcer (PCSO) numbers to allow PCSO’s to work alongside Ward OYcers in ensuring a physical presence and reassurance at a local level. The funding for existing PCSO’s is not guaranteed beyond 2008 and that of the additional PCSO’s beyond 2007. It is essential that forces are funded suYciently to maintain PCSO numbers for their presence to impact on public confidence. Within the opening section of this submission, I identified the lack of correlation between the actual occurrence of crime and disorder and public concern about it. This points to the need to have distinct strategies to deal with both issues. In Gwent our focus has been on occurrence, in which area we have been very eVective. We are now also putting in place a more co-ordinated approach to addressing public fear concern. A large part of this approach will be communication related, particularly through the media. We are therefore developing a communications strategy to ensure that the public, and our own staV, are aware of what Gwent Police and local partnerships are doing to improve the quality of life in their area. In addition to ensuring that the public have a more accurate picture of the crime and disorder issues in their area, we also recognise the need to provide feedback to members of the public who call us, where this is appropriate. In doing this, we aim to ensure that those who call on the service of the police can have confidence in our delivery of that service.
Partnership Seven years after the introduction of the Crime and Disorder Act there is, in general, good partnership engagement in addressing anti-social behaviour within Gwent. It must be acknowledged that the majority of the burden of this work falls to the Local Authority and the Police. The pattern for Local Anti-social Behaviour and broader Crime and Disorder Strategies has been to aim for greater intervention at an earlier stage and this has successfully prevented the requirement to resort to ASBO’s on a number of occasions. Where there is a weakness it is in respect of intervention/prevention work for oVenders who have received custodial sentences. This requires greater engagement of the Prison and Welsh Affairs Committee: Evidence Ev 307
Probation Services whose resourcing diYculties focus their attention on more serious oVending behaviour, in particular prolific/persistent oVenders and sex oVenders. This leaves little time for intervention for anti- social oVenders. Much of the focus of legislation has been to address perceived or actual weaknesses in tackling those responsible for anti-social behaviour. The Anti-Social Behaviour Act 2003 has also begun to aVect third parties who may be able to impact upon the behaviour of others, for example, landlords and parents. A significant problem that remains relatively untouched relates to the supply of alcohol. As can be seen in the crime data, a large proportion of violent anti-social behaviour is drink related. Local Authorities, as members of partnerships, find themselves in a diYcult situation. They are statutorily compelled to act to prevent crime and disorder and they must also maintain independence when dealing with relevant licensing decisions. Consideration needs to be given as to how this divided role can be managed in the future to ensure that the Local Authority can play its full role in tackling drink related anti-social behaviour. Other issues relating to the impact of alcohol form part of the ACPO submission to the Home AVairs Select Committee on Anti-Social Behaviour (Para 23). Many of these relate to the legal constraints that face Local Authorities when considering planning decisions and their inability to place certain conditions on licensed premises. These issues are also of relevance in the Gwent Police area. Committing access to the resources of a broader partnership can impact positively on the perceived and actual ability of the partnership to tackle community issues. The experience of joint problem solving meetings needs to be expanded to provide one-stop-shop facilities within local communities where the police, housing and other agencies (for example the Benefits Agency and Health) are housed together at a specific time to provide a single point of call for a community. Such arrangements need not be permanent, but can be arranged on a weekly or monthly basis to bring together various agencies to overcome individual and community needs. Local partnerships can organise these facilities, however, support from the Welsh Assembly Government and local MP’s would be advantageous.
Community
Within the opening section of this submission, I set out the problem faced by the Police addressing increasing reports of anti-social behaviour in a society that is less able to address neighbourhood disputes and is less tolerant of other people’s needs. Unless this pattern is reversed, the Police and partnerships will not be able to respond eVectively to appropriate anti-social behaviour issues. Similarly, if community trends continue, the expectation that “someone else” should deal with low level community problems will become so ingrained that we will not be able to reverse that expectation. In many communities eVective bodies to address local needs and to eVect community mediation already exist. Community Councils, local youth organisation/groups, Church or other religious groups (including Parochial Church Councils) and Neighbourhood Watch do or can provide resolutions to local problems with minimal intervention from the Police. Neighbourhood panels could also become a mechanism for achieving community resolution of community problems. This is not an abdication of the responsibility of statutory agencies, it is an acceptance from society that it needs to become engaged in its own community. This might also have an impact in preventing youth alienation and the criminalisation of young people at a critical stage in their lives.
Conclusion
For all organisations to be eVective in reducing anti-social behaviour, their work needs to be co-ordinated, and this is a key role for Government. I would therefore draw your particular attention to the final section of the ACPO submission to the Home AVairs Select Committee which highlights this issue. There is a danger that separate strategic documents produced by diVerent Government departments and linked to separate targets will waste the energy and resources of partnerships and produce competing demands. Within Wales the devolvement of responsibility for health, education and other key areas both reduces and exacerbates this problem. On the one hand, Forces and CDRP’s work closely with the Welsh Assembly Government on crime and disorder, for example with the All Wales School Project, Tarian (tackling regional organised crime) and Kaleidoscope (a drugs referral scheme). On the other hand, there is the potential for additional regional strategies, linked to targets to justify local funding streams, producing yet more competing demands. CDRP’s have co-operated well and the case studies provided in this submission are a testament to this. However, greater uniformity in Government approach would result in greater equality of accountability and involvement of each of the partners. For example, anti-social behaviour problems set at a national level do not impinge upon the Probation Service, Prison Service or Health Service to any significant degree. They therefore do not compel their full engagement in tackling anti-social behaviour. Ev 308 Welsh Affairs Committee: Evidence
No single agency can address anti-social behaviour eVectively. It will require each agency, each partnership, the broader community and joined-up Government planning to create the impact we require to improve the quality of life for the majority. Gwent Police is committed to fulfilling its role in achieving this aim. 6 October 2004
6. Written evidence from Home OYce
INQUIRY INTO POLICE AND ANTI-SOCIAL BEHAVIOUR
Government’s Response
Overview 1. The Government welcomes the opportunity to set out information with regard to our policing policies, including the National Policing Plan, progress in tackling crime and anti-social behaviour and information on the working relationship between the UK Government and the National Assembly for Wales on policing matters. The chance of being a victim of crime in England and Wales is historically low and we are making inroads into people’s fear of crime. The resources available for policing, including the resources to tackle anti-social behaviour, are at an unprecedented high—we have nearly 140,000 frontline oYcers (as at the end of May 2004) and record numbers of police civilian staV.OYcer numbers in each of the Welsh forces have reached record levels in the past 18 months. There are also over 3,500 Community Support OYcers on our streets (including 122 in Wales as at August 2004) now providing a visible, reassuring presence, particularly in combating anti-social behaviour and this number will rise substantially by 2008. 2. We have increased Government police funding by 21% in real terms since March 1997. Forces are experiencing the benefits of technological and scientific advancements such as DNA and the Forensic Integration Strategy and more joined up systems of communication. The complementary work of Her Majesty’s Inspectorate of Constabulary and the Police Standards Unit is also yielding positive results—as is the partnership work being undertaken by the police and others within Crime and Disorder Reduction Partnerships and Community Safety Partnerships. Above all, a positive performance culture is really embedding itself within the police service and this is leading to sustained progress in tackling crime and anti- social behaviour. 3. The Government is not complacent about any of this progress. As we signalled in last year’s Building Safer Communities consultation paper the Home OYce Strategic Plan and the White Paper, Building Communities, Beating Crime, published earlier this month, we will continue to improve the way in which the police service operates to tackle crime and anti-social behaviour. We will take forward the police reform programme and build on the firm basis of success that has been achieved to date, through the hard work of the police service, police authorities and their partners from the community and voluntary sector and local and central government. We will ensure that there is greater focus on the law-abiding citizen and that local people have the opportunity to engage directly with their forces to tackle local priority issues. 4. A strong focus on performance remains at the heart of the Government’s agenda to tackle crime and anti-social behaviour. But as we have already made clear, it is also reliant on certain fundamental issues such as the service that the police provide to communities; how policing is structured; how community engagement in policing can be increased and how the police can better reassure local communities. We must see these elements as being very much inter-linked. We must also look at things in the round—from policing at the neighbourhood level and tackling anti-social behaviour, to improving the eVectiveness of crime reduction at national and increasingly international level. 5. The vision behind the White Paper, Building Communities, Beating Crime, published earlier this month, reflects our wider determination for continued improvements in policing, to help build safer, more secure and stable communities, where law-abiding citizens and families are better protected against crime. The main emphasis of our reforms is to pass power from the political centre of England and Wales to local citizens and communities, to create new democratic systems of accountability and scrutiny and to reinforce the role of elected councillors in local policing.
The National Policing Plan
Overview 6. The Police Reform Act 2002 amended the Police Act 1996 to require the Government to lay before Parliament by the end of November each year a National Policing Plan (NPP) for the following three years. It was judged that the NPP should set the strategic direction for policing in England and Wales and establish the performance framework, including any indicators and targets against which police performance would be measured and compared to similar forces. Welsh Affairs Committee: Evidence Ev 309
7. The first NPP (for 2003–06) was issued in November 2002 and built on the proposals in the December 2001 White Paper. It established a single place where the Government’s priorities for policing; initiatives in place or under development for the delivery of those priorities; and the performance indicators for measuring progress against those priorities all came together. The Plan acknowledged the achievements of the police over recent years in England and Wales, especially in crime reduction and the early stages of implementation of the police reform programme. It placed this work in the context of the delivery of Public Service Agreements and rested on the Policing Performance Assessment Framework (PPAF) as the means by which police performance would be measured. 8. The second NPP (for 2004–07), published in November 2003, represented an incremental change in Home OYce expectations for police planning. It was broadly welcomed by the police service as a coherent and focused Plan that supported their local planning activities. The Plan set a national framework of minimum standards against which policing should be delivered locally. It also signalled the direction of travel for the ongoing police reform agenda. Once again, it set out the Home Secretary’s key priorities and reflected the considerable progress that had been made over the previous year as well as relevant changes in the policing environment. It described the significant PPAF developments and how it would be used to account for performance. 9. The Home OYce intention for the third NPP (for 2005–08) is to make it a strategic and succinct document, which will provide genuine flexibility for the identification of local policing priorities within a national framework. The 2005–08 Plan will be developed alongside a new set of Home OYce Public Service Agreements from the Spending Review 2004 and with the contents of the Home OYce Strategic Plan firmly in mind. The intention to put the law-abiding citizen at the heart of policing in England and Wales will be central to the Plan’s message.
Relationship between National Priorities and Local Decision Making 10. The NPP seeks to strike a balance between local and national priorities in England and Wales, by setting a clear framework of national minimum standards and performance assessment, while leaving suYcient flexibility for locally identified priorities to be addressed. An overall national reduction in crime and anti-social behaviour and improved feelings of public safety can be achieved by the police service engaging closely with local communities and partners, to identify priorities and the best means of tackling them. The Policing Performance Assessment Framework then measures how eVective and eYcient forces have been in tackling both local and national issues. 11. Tackling anti-social behaviour is a key priority for the community and for the police and we will continue to work with them and other public services to challenge behaviour that is unacceptable and take action if it continues.
Tackling Anti-social Behaviour and Reducing Volume Crime
What is anti-social behaviour? 12. Anti-social behaviour is defined in the Crime and Disorder Act 1998 as behaviour that is likely to cause alarm, harassment or distress. This manifests itself in a number of ways—nuisance noise, verbal intimidation, criminal damage or vandalism, abandoned cars, kerb-crawling, street drinking and begging, or groups of people intimidating others. 13. An indicator of public perception of anti-social behaviour has been developed using data from the British Crime Survey (BCS). Using this measure, the proportion of people estimated to perceive a high level of anti-social behaviour in their local area fell from 21% to 16% between 2002–03 and 2003–04. 14. The BCS indicator brings together perceptions of abandoned and burnt-out cars, noisy neighbours or loud parties, people being drunk and rowdy in public places, people using or dealing drugs, teenagers hanging around on the streets, rubbish or litter lying around, vandalism, graYti and other deliberate damage to property. Between 2002–03 to 2003–04, as well as the overall fall in perception, all of the seven individual anti-social behaviour measures showed a decline (Dodd, T et al (2004) Home OYce statistical bulletin 10/ 04). 15. The BCS shows that people within council estates and low-income areas, multi-ethnic, low-income areas and council estates with greatest hardship perceive high levels of anti-social behaviour. Analysis of the 2002–03 BCS showed that people living in council estates and low-income areas were more likely than people in all other types of areas to perceive teenagers hanging around, rubbish, vandalism and drug use or dealing as very or fairly big problems. For example, 64% of people living in multi-ethnic, low-income areas identified vandalism as a very or fairly big problem. This figure for vandalism was also high amongst people living in council estates with greatest hardship (61%) compared with 35% of the population in England and Wales (Thorpe and Wood 2004). Ev 310 Welsh Affairs Committee: Evidence
16. There is also variation in diVerent types of area in the type of behaviour that was considered to be the “biggest problem” in their local area. People in aZuent urban areas are more likely to perceive rubbish (19%) and vandalism (19%) as the biggest problem, while those in council estates were more likely to mention teenagers hanging around (28%) and drug use or dealing (21%). (Thorpe and Wood, 2004). 17. In addition a one-day count of anti-social behaviour was undertaken to obtain a snapshot of reported anti-social behaviour. Over a single 24-hour period in September 2003, 66,000 reports of anti-social behaviour were made to participating organisations (police, fire service and local authorities) in England and Wales (see Annex). This is equivalent to approximately 13.5 million reports per year or one report every two seconds. More than 1,500 organisations took part and information was received from every CDRP and CSP area in England and Wales. 18. Anti-social behaviour is also typified by repeated acts perpetrated by an individual or group and also the proximity between “victim” and “perpetrator” (neighbours, for example). 19. The cumulative eVect of this behaviour has a damaging eVect on the welfare and safety of individuals. A recent report by SheYeld Hallam University (“What works for Victims and Witnesses of Anti-Social Behaviour” July 2004) outlined the impact of anti-social behaviour on individuals and showed that fear of reprisals was the largest deterrent to victims reporting incidents and acting as witnesses. 20. The vast majority of people behave in a way that does not cause other people to feel intimidated or unsafe. However, anti-social behaviour holds back the regeneration of deprived areas and the safety and progress of the community as a whole.
The Government’s response
21. Tackling anti-social behaviour is a priority for the Home OYce and for many Departments across Government. 22. The Government’s response to anti-social behaviour can be summed up as a “twin-track” approach—providing help and support to the individuals and communities and using the full range of powers to ensure acceptable standards of behaviour are upheld. The Government rejects the view that tackling anti-social behaviour is a choice between prevention and enforcement; a successful response involves both. Work to tackle anti-social behaviour should be seen in the wider context of investment in health, education and regeneration and in the reform of public services. 23. In March 2003, we published the White Paper “Respect and Responsibility—Taking A Stand against Anti-social Behaviour”. This outlined the main steps we had taken, including increasing the number of police oYcers, introducing community support oYcers, wardens and Crime and Disorder Reduction Partnerships, and putting in place Anti-social Behaviour Orders and Fixed Penalty Notices to address anti- social behaviour. 24. The Anti-social Behaviour Act 2003 also gave new powers to the police, local authorities and other agencies, including social services, environmental health oYcers, schools and businesses. 25. In October 2003 the Home OYce published “Together: Tackling Anti-Social Behaviour”the Government’s Action Plan and launched the Government’s TOGETHER campaign to improve performance across England and Wales. 26. People working in the field of anti-social behaviour and the general public drive the TOGETHER campaign. When local people have confidence that their concerns are listened to and acted upon they then are more confident and determined to help tackle anti-social behaviour. The campaign supports eVorts at a local level to drive up community involvement, ownership and responsibility. 27. The Action Plan sets out the priority areas for action for reducing anti-social behaviour over the next two to three years. Key areas include reducing the impact of nuisance neighbours, environmental crime and begging. We are working with 10 Trailblazer areas to develop best practice and take action in these areas. Funding was provided to every Crime and Disorder Reduction Partnership and practical help and support was provided to front-line practitioners. 28. Taken together—the existing steps we had taken, the new legislation and the rollout of the TOGETHER campaign are working to ensure the anti-social behaviour of a minority is tackled, not tolerated. 29. Other Government Departments are also playing a key role in reducing anti-social behaviour. For example, the “Cleaner Safer Greener” communities agenda, launched by ODPM in July 2003, brings together a range of Government activities aimed at improving the quality of life for everyone by making our streets, parks and public spaces better. “Cleaner Safer Greener” programmes are addressing key issues, including creating attractive and welcoming parks, play areas and public spaces, improving the physical fabric and infrastructure of places and engaging and empowering local people and communities. Welsh Affairs Committee: Evidence Ev 311
National Standard for Incident Recording
30. The National Standard for Incident Recording (NSIR) is being developed to bring about consistent process and practice in relation to the recording of non-crime and non-notifiable crime incidents within the police forces of England and Wales. The lack of a consistent approach in the past has resulted in the data at a force level being of limited value and worthless at national level. The three themes of the NSIR are Road Related, ASB and Public Safety. The ASB area is seen as fundamental to future eVective control and reduction of such behaviour. 31. The project has moved from a feasibility study, to Standard design, to pilot and then independent pilot review. The current thinking is that the next stage of Standard development should be the introduction of a “baseline year”. This will, subject to ministerial and stakeholder approval, involve all forces formally adopting the Standard during 2005. 32. A key element of the approach is that during the baseline year, statistical analysis and other reviews should be carried out. This will facilitate and support informed decision making in relation to what the data should or could be used for and identification of which factors might influence such issues. 33. The current pilot involves 11 forces, including Dyfed Powys. A further seven forces have also progressed to the “adoption” phase, whilst the majority of remaining forces have made their intention clear to participate in the baseline year (commencing early 2005). 34. There is complete support amongst forces for the introduction of the Standard, including strong support from amongst the four Welsh forces. However, there are still some significant concerns, most notably, the potential cost of the programme, the eVect on recorded crime and the eventual use of the data. Evidence has shown that the first two concerns are unfounded. The third concern will be addressed via the baseline year work, as mentioned at paragraph 31.
What is Volume Crime?
35. Volume crimes are the three types of crime specifically measured in the current Home OYce PSA 1 (vehicle crime, domestic burglary and robbery). PSA 1 set an overall target to reduce vehicle crime by 30% from 1998–99–2004; domestic burglary by 25% from 1998–99–2005; and robbery in the 10 Street Crime Initiative areas by 14% from 1999–2000–05; and to maintain that level.
How is the Government tackling Volume Crime?
36. According to Home OYce research, 100,000 oVenders (10% of all oVenders on the OVenders Index) in England and Wales, are responsible for over half of all crimes, with their actions also having an enormous eVect on fear of crime and feelings of community safety. Tackling a small number of oVenders, and particularly the most prolific oVenders, will therefore have a disproportionate eVect on cutting crime. 37. The Government’s approach to tackling crime and the causes of crime is based on the management of oVenders, with the explicit aim of crime prevention. There is an important focus on locally identified priority oVenders, who cause the greatest harm to communities throughout England and Wales. The Police work closely alongside and share information with the Probation service to manage prolific priority oVenders and there are various schemes in place to identify this type of oVender and turn them away from crime. 38. The most recent British Crime Survey (published early November 2004) showed that the overall level of vehicle crime has fallen by 12% for the year ending June 2004 and the levels of domestic burglary are down 2% compared to the previous year. The levels of worry about car crime and domestic burglary have also fallen in the year to June 2004, compared with the previous 12 months. 39. Recorded crime figures show an overall fall of 23% in domestic burglary between April–June 2004, across England and Wales and compared to the same period the previous year. Recorded robbery has fallen 15% in the latest quarter compared with the previous year and vehicle thefts dropped by 18% from April–June 2004 compared with the same quarter last year. 40. The performance of the four Welsh forces against PSA target One is mixed. Performance data across the target crimes for Dyfed-Powys shows increases in the financial year 2003–04 in all three volume crime types. Gwent shows an increase in two of the crime types (domestic burglary and vehicle crime), with a decrease in robbery. North Wales and South Wales police forces meanwhile both show significant reductions in all three volume crime types (a breakdown of the volume crime data is listed later on in this document.) Ev 312 Welsh Affairs Committee: Evidence
Tackling Serious and Organised Crime 41. Organised crime reaches into every community, ruining lives, driving other types of crime and instilling fear. It manifests itself most graphically in drug addiction, in sexual exploitation and in gun crime. It is also big business. TraYcking in people and drugs, counterfeiting and financial crime have a UK turnover of many billions of pounds annually. Organised crime groups are highly sophisticated, working in tight-knit structures and prepared to use ruthless measures to achieve their objectives. Their illicit activities are underpinned by money laundering operations, which turn the proceeds of crime into bankable profits. 42. A successful approach to organised crime is therefore inseparable from our wider eVort to improve the overall eVectiveness of policing in England and Wales and to make vulnerable communities and law- abiding citizens safer.
The Serious and Organised Crime Agency (SOCA) 43. The Home Secretary has announced his intention to create a Serious and Organised Crime Agency. This agency will be operative by 1 April 2006. It will bring together staV, expertise and skills from Customs and Excise, the National Crime Squad, the National Criminal Intelligence Service, as well as from Immigration Crime Teams. 44. SOCA is neither a police nor a customs/immigration organisation. It is a new body that will be driven by the intelligence assessment of what will be most eVective in reducing the enormous harm caused by organised crime to individuals, to communities and to the well-being of the country. 45. The Agency will oVer specialist assistance to local police forces and other law enforcement agencies, both in terms of analysis of intelligence and operational support. This will ensure that there is an eVective link between the Agency’s eVorts to combat organised crime at national level and the work being done by police forces at local level. 46. A Home OYce programme team has been set up to ensure that SOCA is established on time, working in concert with staV in the existing agencies and other interested stakeholders. Work is now moving from the scoping and set-up phase into the substantive issues aVecting implementation.
The Reassurance Agenda
Community Engagement 47. Increasing community engagement underpins the drive to increase the citizen focus of the police service and implement neighbourhood policing across all forces. Our aim is to mainstream community engagement so that it becomes a part of core business for all forces. This is about involving all communities in the process of identifying which problems are local priorities, finding solutions and being able to hold local police and agencies to account for their actions. 48. Customer responsiveness is about fully understanding the needs of citizens and local communities and redesigning and delivering services around those needs. Improved engagement helps forces to do their job more eVectively and increased public participation will help to increase levels of trust, confidence and reassurance. 49. There is no “one size fits all” approach to community engagement. Home OYce and other research indicates that there are many barriers to eVective engagement in the policing environment, including a need for better support for practitioners and a lack of accessible information on eVective engagement practice techniques. To overcome this, we have invited a group of experienced practitioners from forces and authorities to form the National Practitioner Panel for Community Engagement to look at how best to support eVective engagement in policing.
Neighbourhood Policing 50. EVective and responsive policing at neighbourhood level is essential to sustaining the confidence and trust of the public and tackling crime and anti-social behaviour. A key feature of this will be dedicated neighbourhood teams of police oYcers and Community Support OYcers working in concert with wardens and other members of the extended police family to drive down crime in local communities throughout England and Wales. 51. The Home Secretary has announced his intention that there should be 25,000 CSOs and wardens by 2008. This represents a five-fold increase on current CSO numbers and will be funded from the Neighbourhood Policing Fund. 52. Unlike previous community policing initiatives, neighbourhood policing means more than putting additional “bobbies” on the beat, or installing an extra community oYcer. We need a police service that is capable of responding to the challenges of crime and anti-social behaviour in the 21st century and which makes full use of the increased powers of enforcement, better equipment and modernised working practices. Welsh Affairs Committee: Evidence Ev 313
We also need a police service that is able to harness the energy of its local communities and partners, to exchange information and work together to drive down crime and anti-social behaviour and increase the ratio of oVences brought to justice. 53. Above all, we are seeking to change the relationship between the individual citizen, the local neighbourhood and the police service so that they work in partnership to deal with crime and anti-social behaviour. This does not mean prescribing a particular approach. There is already much good practice in a number of areas and we will build on this to ensure that community safety issues are tackled in the most eVective way possible.
The National Reassurance Policing Programme (NRPP) 54. The National Reassurance Policing Programme is a joint ACPO/Home OYce programme. It aims to establish whether a reassurance policing model based on the concept of “signal crimes” can impact upon the public perception of risk and insecurity. The policing model is designed to address the gap between falling crime levels and rising fear of crime. 55. Community Support OYcers (CSOs) can play a key role in making community members feel reassured and evidence from the NRPP evaluation shows that they are starting to supply large amounts of good quality intelligence to mainstream police oYcers. 56. In addition to the evidence on CSOs being gathered by the NRPP, forces have also carried out local evaluations of CSOs. These evaluations have suggested that: — CSOs have proved popular and eVective in the communities that they serve, including communities throughout the four Welsh force areas; — CSOs can have a substantial impact on some types of anti-social behaviour and crime. For example, in the 12 months following the introduction of CSOs into Leeds city centre, vehicle related crime fell by 31% and personal robbery fell by 47%; — CSOs are having a positive eVect on public reassurance. Research carried out by the MPS indicated that 50–70% of residents felt more reassured about their safety after the introduction of PCSOs. 57. We are currently carrying out an evaluation of CSOs throughout England and Wales, which will build on the work undertaken through the NRPP and local evaluations. An interim report is expected in December 2004 and a full report in summer 2005.
Partnerships
Local Authorities 58. Section 17 of the Crime and Disorder Act 1998 recognises that certain key authorities have responsibility for the provision of a wide and varied range of services to and within the community. In carrying out these functions, section 17 places a duty on them to do all they can to reasonably prevent crime and disorder in their area. 59. The purpose of section 17 is simple: the level of crime and its impact is influenced by the decisions and activities taken in the day-to-day business of local bodies and organisations. Section 17 is aimed at giving the vital work of crime and disorder reduction a focus across the wide range of local services and putting it at the heart of local decision-making.
Crime and Disorder Partnerships 60. The Crime and Disorder Act 1998, as amended by the Police Reform Act 2002, set out statutory requirements for responsible authorities to work with other local agencies and organisations to develop and implement strategies to tackle crime and disorder and misuse of drugs in their area. These statutory partnerships are known as Crime and Disorder Reduction Partnerships in England and Community Safety Partnerships in Wales. 61. The responsible authorities are: — the police; — local authorities (including social services, youth oVending teams etc); — fire authorities; — police authorities; — primary care trusts (this was commenced by order with eVect from 30th April 2004); and — health authorities in Wales. Ev 314 Welsh Affairs Committee: Evidence
62. There are 354 CDRPs in England and 22 Community Safety Partnerships in Wales. In Wales Community Safety Partnerships already have responsibility for crime and disorder and substance abuse reduction. In England there are 149 Drug Action Teams (DATs) and these teams are required to work more closely or integrate with their local CDRP by 1 April 2004. 63. Many partnerships have already begun the integration/loser working process and, rather than prescribing structures, the Home OYce recommends that local partners should decide locally on structures which best meet local circumstances and which will enable these agreed outcomes to be delivered eVectively. 64. Responsible authorities (in practice usually Crime and Disorder Reduction Partnerships) are required by law to carry out audits every three years to: — identify the extent of crime and disorder problems in their community; and — develop strategies to deal eVectively with these problems. 65. The Anti social Behaviour Action Plan sets out why it is important to tackle ASB and change the culture that lets it go unchallenged. CDRPs are required to audit the extent of ASB in their area and include priorities to address ASB in their strategies. 66. In the White Paper, Building Communities, Beating Crime, the Government announced its intention to enable local communities to hold the police and community safety partners to account for their responsiveness. This means ensuring that local people know how to engage with CDRPs and understand what they can expect from the agencies working on community safety issues. To facilitate this, the Government will formally review the partnership provisions of the Crime and Disorder Act 1998. 67. The Review will be conducted by the Home OYce, the Local Government Association, the Association of Chief Police OYcers and the Association of Police Authorities and will involve all key stakeholders and practitioners. The Review will report its conclusions by January 2005.
Use and Availability of Resources
Police Funding Settlement 2004–05 68. The total provision for policing in 2004–05 in England and Wales is £10,099 million. This is a cash rise of £416 million 4.2% (!1.5% in real terms) over 2003–04. This increased provision also builds on significant additions of 10.1% in 2001–02, 7.3% in 2002–03 and 6.2% in 2003–04. 69. Between 2000–01 and 2004–05, the total provision for policing to be supported by grant or spent centrally on services for the police has risen by over £2.3 billion or over 30%. The Home Secretary decided exceptionally this year, to provide a standard increase in general grant of 3.25% for each police authority in England and Wales. This took account of the pressures on police authorities and expectations on them to deliver budgets that ensured further improvements without placing excessive burdens on local taxpayers. Wales 2004–05
2004–05 Grant CFF Rural BCU Airway CSO DNA Ex Total General increase Prog 2004–05 Grant
£m%£m£m£m£m£m£m£m
Dyfed- 50.89 3.25 2.29 2.63 0.27 0.04 0.11 0.24 56.47 Powys Gwent 71.81 3.25 2.36 0.20 0.48 0.18 0.88 0.47 76.38 North 75.77 3.25 3.01 1.54 0.43 0.07 0.43 0.67 81.92 Wales South 168.18 3.25 4.63 0.00 1.11 0.43 0.67 1.26 176.28 Wales
TOTAL 366.65 3.25 12.29 4.37 2.29 0.72 2.09 2.64 391.05
70. Welsh forces are receiving a total of £366.65m in general grant (comprised of Home OYce police grant and WAG Revenue Support Grant and National Non Domestic Rates). Each Authority is receiving a general grant increase of 3.25 per cent. 71. Because the Welsh Assembly does not—unlike ODPM for English local authorities—operate a grant “floors and ceilings” system, the Home Secretary agreed to provide additional funding to ensure Welsh Authorities are treated in the same way as English authorities. That is, where a Welsh Police Authority would otherwise receive a lower policing grant increase than the minimum or “floor” percentage increase set for English police authorities, the Home Secretary has in the past agreed to extra payments, outside the Settlement totals, to bring Welsh forces up to the English floor. Payments were made in 2002–03 and 2003–04. For this year, 2004–05, a total of £13.7 million has been allocated to Dyfed-Powys (£1.41 million), Welsh Affairs Committee: Evidence Ev 315
Gwent (£2.12 million), North Wales (£1.51 million) and South Wales (£8.63 million) to bring their allocations up to the “floor” level of 3.25% Decisions on this special arrangement are made annually and Ministers are now considering the position for 2005–06. 72. On top of general grant, they are receiving allocations from specific grants totalling £24.4m from the main specific grants: the Crime Fighting Fund, the Rural Policing Fund, BCU Fund, Airwave, Community Support OYcers and the DNA Expansion Programme.
Budgets and Precepts 2004–05 73. The average Welsh budget increase in 2004–05 was 8.1 per cent (Average across England and Wales was 5.7 per cent).
1999–00Annual 2000–01Annual 2001–02Annual 2002–03Annual 2003–04Annual 2004–05Annual change change change change change change
£m % £m % £m % £m % £ % £m %
Dyfed- 55.7 7.6% 59.0 5.9% 62.9 6.5% 65.3 3.9% 71.2 9.0% 77.0 8.1% Powys Gwent 71.4 6.7% 76.1 6.6% 80.7 6.0% 84.4 4.6% 92.0 9.0% 98.2 6.8% North 79.6 7.6% 84.0 5.6% 89.5 6.5% 93.5 4.5% 104.6 12.0% 115.2 10.1% Wales South 170.0 5.5% 1791 5.4% 188.9 5.5% 195.0 3.2% 201.0 3.1% 216.6 7.8% Wales Average precept in England was £121 for a shire authority and £93 for a metropolitan authority). 75. The average Welsh precept increase was 15.3 per cent.
1990–00 Annual 2000–01 Annual 2001–02 Annual 2002–03 Annual 2003–04 Annual 2004–05 Annual change change change change change change £%£%£%£%£%£%
Dyfed 72.99 22.5 85.41 17.0 90.90 6.4 98.10 7.9 124.11 26.5 142.65 14.9 Powys Gwent 59.74 9.9 74.97 25.5 84.03 12.1 95.17 13.3 119.11 25.2 139.13 16.8 North Wales 66.33 13.3 78.49 18.3 82.72 5.4 96.53 16.7 126.94 31.5 151.57 19.4 South Wales 65.36 16.2 80.42 23.0 85.57 6.4 89.85 5.0 103.51 15.2 115.71 11.8
76. No Welsh Police Authority was capped by the Assembly in 2004/05.
Police Funding Settlement 2005–06 77. The provisional police funding settlement for 2005–06 in England and Wales will be announced later this month. 78. Home OYce Ministers are currently working through the detail of the settlement to generate a realistic police grant increase. In deciding on the grant level in the settlement, the Home Secretary is taking into consideration estimates of financial pressures on police authorities from a recent ACPO/APA survey and the importance of keeping council tax increases to reasonable levels. 79. The Welsh Assembly Government will determine capping policy in Wales.
Police Numbers in Wales
Year Police OYcer numbers in Wales Dyfed North South Wales Powys Gwent Wales Wales Total
March 1996 991 1,044 1,378 3,027 6,440 March 1997 1,005 1,243 1,369 2,976 6,592 March 1998 1,002 1,233 1,396 2,986 6,617 March 1999 1,026 1,247 1,391 2,981 6,645 March 2000 1,040 1,264 1,403 2,926 6,633 March 2001 1,055 1,274 1,444 3,154 6,927 March 2002 1,132 1,333 1,506 3,222 7,194 March 2003 1,149 1,341 1,539 3,239 7,268 March 2004 1,160 1,372 1,603 3,279 7,414 August 2004 1,165 1,394 1,591 3,264 7,414 Ev 316 Welsh Affairs Committee: Evidence
80. Dyfed Powys and Gwent were at record levels of police oYcers as at 31 May 2004. Both forces are only two oYcers below that level now. North Wales was at record levels in August 2003. Numbers have fallen by 16 since then—only 1% of force strength. South Wales is 15 below its record level, which was reached in March this year. This is a very small decrease and amounts to only 0.5% of force strength. 81. Small fluctuations in force strength are expected from month to month. Wastage from each force is calculated every month, however recruitment intakes are less often so fluctuations can occur in force strength because of this. 82. Police numbers in Wales increased by 822 between March 1997 and August 2004. The Home Secretary is committed to maintaining record police numbers in England and Wales while putting in place a total of 25,000 CSOs and wardens over the next three years. The recruitment of the next phase of CSOs has already begun.
Year Police Support StaV numbers in Wales Dyfed North South Wales Powys Gwent Wales Wales Total
March 1997 322 452 476 1,206 2,455 March 2002 459 570 645 1,435 3,109 March 2003 499 607 703 1,343 3,152 March 2004 523 623 832 1,415 3,393
83. Police support staV numbers in Wales have increased by 938 between March 1997 and March 2004 to reach 3,393. Police staV may be deployed to duties formerly carried out by police oYcers to release them for front line duties.
Community Support OYcers
Dyfed North South Powys Gwent Wales Wales
August 2004 4 47 8 63
Response to the O’Dowd Report on Bureaucracy 84. The O’Dowd report was published in September 2002 and contained 52 recommendations. A steering group, co-chaired by ACPO and the Home OYce and with representatives from all key police stakeholders, was set up to take forward the action plan arising from the report. To date, 27 recommendations have been delivered, 21 are underway and it has been collectively agreed that four should not be taken forward nationally. The recommendations still underway mostly require legislation, developments in IT or wide- ranging changes to the criminal justice system. The steering group has since widened its remit to address issues relating to bureaucracy as they arise, in addition to the recommendations contained in the O’Dowd report. 85. EVective communication to front line oYcers of the good progress being made nationally remains central to the success of the drive against bureaucracy. Each force has a named oYcer to oversee the implementation of the Taskforce recommendations, ensuring that the progress being made nationally is assimilated into the lives of oYcers on the beat. The Home OYce is also continuing to take every opportunity to raise the profile of the work that is being done. For example, articles on reducing bureaucracy are included in each Police Briefing and regular updates are added to the e-bulletin to all forces. We have also appointed a National Bureaucracy Advisor at Acting Assistant Chief Constable level to enhance our capacity in this area. He is visiting forces to provide practical assistance in their work to reduce bureaucracy, raise awareness of the whole agenda and, where necessary, challenge existing practices and assumptions. 86. In terms of evaluating progress, HMIC’s baseline assessment provides a summary of the progress made by forces in terms of reducing bureaucracy. The outcome of forces’ work in this area is being quantified in force eYciency plans. This will enable us to assess the overall impact of our initiatives to reduce bureaucracy in terms of additional time spent by police oYcers on front line duties. 87. There have been a number of achievements to date: — Over 7,700 forms have been made obsolete across all 43 forces. — All 43 forces now undertake video identity parades to speed up the identification of suspects. This greatly reduces bureaucracy, is welcomed by forces and, over five years, will deliver an overall saving of £143 million to the police service. — Over 70,000 police oYcers and staV now use Airwave radios in 40 forces and 20 forces are using mobile information. Welsh Affairs Committee: Evidence Ev 317
— The national roll out of the penalty notice for disorder scheme was completed in April 2004. Over 20,000 tickets had been issued at the end of August, each representing a file for court not having to be prepared. — There are 198 Livescan Units, which enable electronic fingerprint images to be taken from people instantly in 35 forces. — We are investing £13 million over two years into 10 pilot projects which test out new ways of using police staV, thereby freeing up oYcers’ time to go back on the beat. — HMIC’s assessment of force 2003–04 EYciency Plans noted that 25 forces had between them identified eYciency gains of £25.2 million attributed to implementing Bureaucracy Taskforce recommendations. — We have set up a Reducing Bureaucracy Awards Scheme with the Police Federation that encourages frontline oYcers to come up with suggestions for reducing bureaucracy. The first awards ceremony took place at the Police Federation Conference in May. — Good progress is being made to address the concerns around the Regulation of Investigatory Powers Act 2000 (RIPA) including new forms and codes of practice. — The Policing Bureaucracy Gateway began to operate on 1 September 2004. This identifies, challenges and influences the demands made by new policies, legislation and procedures that aVect the police service. — In the White Paper, Building Communities, Beating Crime, published earlier this month, the Government announced its intention to set up an action-line for oYcers, to raise any questions they might have about bureaucracy.
Progress in Dyfed-Powys 88. Dyfed-Powys police force has civilianised its custody functions, employing 15 staV with powers designated under the Police Reform Act, and releasing the equivalent number of police oYcers back to the front line. As well as putting more oYcers onto the streets to fight crime, the creation of a team of specialists is leading to more eYcient and cost-eVective handling of prisoners. The new team has integrated well with local oYcers who have found the new system allows them to process prisoners far more quickly, saving them hours of paperwork and letting them get back out on visible patrol.
POLICE PERFORMANCE IN WALES AND COMPARISON WITH OTHER FORCES
General Overview—Embedding Police Performance 89. A stronger focus on performance is now firmly embedding itself in the police service and will continue to drive forward the delivery of policing. The requirements for improving overall police performance in England and Wales and for closing the gap between the best performing forces and others—as set out in the Public Service Agreement targets set at the time of the Spending Review 2002—are key to ensuring high standards of policing and consistent professionalism across the country. This is central to the Government’s sustained programme of police reform. 90. The embedding of a performance-focused approach to policing is encompassed in both the national arrangements for assessing eVective performance and in the steps to enhance the capability of the police service to deliver performance improvements. Key components of the approach to shaping this performance drive have been: — arriving at a more comprehensive and informed view of what comprises eVective police performance; — a greater emphasis on assessments of force performance which are objective, independent and data driven; — more use of comparative performance information which highlights variations in achievement between forces, Basic Command Units and their peer groups; — an increase in the capability to access up-to-date performance data at both the national and local level. 91. The inception of the Police Standards Unit (PSU) was a strong feature of December 2001 White Paper. The focus of PSU’s activities is to: — Measure and assess police forces performance. — Understand the underlying causes of performance variations. — Provide support and focused assistance to forces where a problem with performance has been identified. — Sponsor and disseminate proven good practice. Ev 318 Welsh Affairs Committee: Evidence
The Policing Performance Assessment Framework (PPAF) 92. The 2002 National Policing Plan explained that the Home OYce, in partnership with ACPO, APA and other key stakeholders, would be developing a balanced performance assessment framework for policing—the “Policing Performance and Assessment Framework”. PPAF will facilitate the monitoring of policing performance across seven key domains: citizen focus; reducing crime; investigating crime; promoting public safety; providing assistance; resource usage; and local priorities. The Home OYce sets Statutory Performance Indicators (SPIs) for the first six domains and police authorities set indicators for the local domain. 93. PPAF is intended to provide a comprehensive, fair and rigorous assessment framework for policing in England and Wales. The first publication of PPAF assessments will take place next year, in the autumn. Three Police Performance Monitoring reports (on 2001/02, 2002/03 and 2003/04 performance) have been published using interim measures and presentation methods while PPAF is being developed. 94. PPAF “release 1” in April 2004 introduced 13 Statutory Performance Indicators consisting of 36 measures. These included an improved focus on “user satisfaction” and measures have also been introduced to monitor any irregularities in operational performance (eg detection rates for violent crime by ethnicity of victim). A measure on front-line policing has also been introduced. Work continues to develop new and revised measures for statutory introduction on 1 April 2005. The intention this year is to undertake consultation as part of the process to prepare the National Policing Plan 2005–08. This should enable us to advise police authorities and forces on 2005/06 measures on publication of the National Policing Plan at the end of this month. PPAF has been accepted by ACPO and the APA as a fair means of assessing the complexities of police duties. iQuanta 95. Another key development that PSU have driven over the past year has been the development of iQuanta. Rather than having to rely on old crime statistics, iQuanta provides real-time data on the performance of all forces and BCUs across all major crime types. iQuanta is an internet based performance management tool for policing. It has been live since October 2003. Access to iQuanta is password-protected. iQuanta now has more than 2,500 users. These include police oYcers and other police staV involved in performance management in forces and BCUs, and members of CDRPs. 96. Force, BCU and CDRP performance are displayed in several diVerent types of charts, including bar charts, projection charts and comparison charts. The diVerent chart types allow performance to be seen relative to past performance, peer performance and performance targets. Forces are compared with their “most similar forces”. BCUs and CDRPs are compared with their most similar BCUs and CDRPs. This comparison method allows meaningful judgements to be drawn about performance. The most similar groups were created through analysis of variables that correlate statistically with the likelihood of crime in any given force, BCU or CDRP area. 97. Data is available on crime rates, detections, sanction detections, oVences brought to justice, public satisfaction and fear of crime. Charts also track success in meeting relevant PSA targets and compliance on PNC timeliness compliance at force level.
Performance Support 98. PSU is engaged with eight under-performing or “target” forces: Avon & Somerset, Cambridgeshire, Cleveland, GMP, Humberside, Nottinghamshire, Northants, and West Yorkshire. This proactive role has changed the dynamic of the Department’s relationship with the police service—underpinned by a sound analytical and evidence-based footing—demonstrating a new and eVective way of doing business. 99. Each engagement has been diVerent. In some PSU has helped a force’s own improvement regime to go further and faster. In others, the Unit has been a catalyst for change. In the third category, PSU’s involvement has a more fundamental process of attempting to put the force on a path towards recovery. 100. Over 2003/4, the forces with which PSU was engaged reduced volume crime by 13.3%, which is twice the rate of the other forces in England and Wales. Three of the five largest reductions in crime across the 43 forces were in PSU’s target forces. PSU’s funding amounts to only around 0.33% of the total force resource budgets suggesting PSU’s interventions are cost-eVective. PSU’s budget has allowed the provision of prompt funding and evaluation for cutting-edge projects, particularly around how forces drive performance improvements. 101. In liaison with ACPO, PSU has launched the high profile, national Alcohol Misuse Enforcement Campaign. This links in to the government’s Alcohol Harm Reduction Strategy and aims to crack down on alcohol-fuelled disorder, through the use of tough enforcement measures taking action against irresponsible drinkers and vendors who are fuelling anti-social behaviour. To date, 39 police forces are involved, as well as other related partners including Trading Standards and the Department of Health. This campaign has been positively received and early data has provided a baseline to measure the impact and success that this campaign will have throughout the summer. Welsh Affairs Committee: Evidence Ev 319
102. PSU’s work on national projects, such as Automatic Number-Plate Recognition (ANPR), National Video Identification (NVIS) and the Policing Priority Areas (PPAs) have been widely recognised as a success. In the period June 2003–May 2004, during the ANPR project, 173,000 vehicles were stopped, 13,000 arrests made, 51,000 FPNs issued and £8 million property recovered. £1 million in hypothecated income has been generated and the rate of 100 arrests per full time oYcer is 10 times the national average.
103. PSU’s role in police use of forensic science has been successful, in particular on DNA and NAFIS (Fingerprint Automation) and through reviewing and changing force-level forensic processes. This has helped the 62% increase in the number of DNA matches achieved and the 34% increase in the number of “DNA detections” delivered. PSU have lead development of a computer simulation model for forces to identify blockages in their forensic processes. A work-package of good practice is to be disseminated to all forces in August 2004.
104. Launched in March 2002 the Policing Priority Programme was aligned to the Government’s Strategy for Neighbourhood Renewal and sites were first piloted in Bradford, Bristol, Camberwell, Rhyl and Stoke. Each demonstrated how working with small communities suVering from crime, the fear of crime and anti-social behaviour can bring about significant improvements in police and partnership working. This police-led programme has now been extended and is in its fourth phase where Forces were invited to submit expressions of interest. Neighbourhood Renewal funding was no longer part of the selection criteria although Forces needed to make a business case as to how similar their areas were to Neighbourhood Renewal funding criteria. There are now 29 identified sites. There has been significant success in reducing crime and providing public reassurance in the existing PPAs and the programme continues to build on the progress made so far.
Performance of the Welsh Forces
105. The Police Performance Monitoring report for 2003/04, published in September 2004, looks at performance over six domains of policing. This report shows that performance in North Wales and South Wales is generally improving. Performance in Gwent and Dyfed-Powys shows an apparent decline, but in the domains of “Reducing Crime” and “Investigating Crime” these two forces remain above the average for comparable forces.
Dyfed-Powys
Financial year 2003/04
106. The most similar forces to Dyfed-Powys are Devon & Cornwall, Lincolnshire, Norfolk, North Wales, North Yorkshire and SuVolk.
107. Performance data across the target crimes shows rises in the financial year 2003/04: — 41.7% increase in Domestic Burglary — 14.6% increase in Vehicle Crime — 35% increase in Robbery.
108. Increasing compliance with the National Crime Recording Standard has contributed to a large increase in crime numbers and a reduction in detections per crime from the previous year. However, performance on Investigating and Reducing Crime is still greatly above that of the most similar forces. — Dyfed-Powys has the lowest rate of crimes per 1,000 population in England & Wales. — The percentage of oVences brought to justice fell by 4.3%. — The percentage of oVences brought to justice fell by 4.3 per cent. — The percentage of oVences detected and sanctioned fell by 33.2 per cent. — Performance is better than its peers in all domains except Resource Usage (sickness levels.) — Dyfed Powys was considered “excellent” in dealing with Volume Crime, Hate Crime and Crime and Disorder Reduction Partnerships, but “poor” in Human Resource Management by the HMIC baseline assessment. All other performance domains were considered “good” or “fair”. Ev 320 Welsh Affairs Committee: Evidence
Gwent
Financial year 2003/04 109. The most similar forces to Gwent are Durham, Hertfordshire, Humberside, Kent, Lancashire, Northamptonshire and South Wales. 110. Performance data shows a mixed picture across the target crimes in the financial year 2003–04: — 6.6% increase in Domestic Burglary — 7.1% increase in Vehicle crime — 16.7% decrease in Robbery — The percentage of oVences brought to justice rose by 2.7%. — The percentage of oVences detected and sanctioned fell by 11.7%. — Gwent”s performance is above that of its peers for the domains of Reducing Crime, Investigating Crime and Promoting Public Safety. — However, the Reducing Crime and Investigating Crime domains have seen a decline in performance since 2002–03. — Gwent is one of a small number of forces to have had an increase in numbers of the target crimes (domestic burglary, vehicle crime and robbery) since 2002–03. — Sickness rates for police oYcers and other staV in 2003–04 were the highest in England and Wales, and had increased from the previous year. — Gwent was considered “excellent” in dealing with Reassurance by the HMIC baseline assessment. All other performance domains were considered “good” or “fair”.
North Wales 111. The most similar forces to North Wales are Devon and Cornwall, Dyfed-Powys, Gloucestershire, Lincolnshire, Norfolk, North Yorkshire and SuVolk. 112. Performance data indicates improvements in performance in the current financial year, with year on year comparisons showing: — 23% decrease in Domestic Burglary — 5.9% decrease in Vehicle crime — 10.3% decrease in Robbery — The percentage of oVences brought to justice rose by 6.1%. — The percentage oVences detected and sanctioned unchanged. — North Wales is performing better than its most similar forces in the area of Reducing Crime and has also had an above average reduction in the number of target crimes. — Performance is slightly below average for its most similar forces in the other five domains. — The investigating crime domain shows an improvement from the previous year, with an increase in oVences brought to justice per crime. — Sickness levels have increased from the previous year. — North Wales was considered “excellent” in dealing with Critical Incident Management, but “poor” in Call Handling. All other performance domains were considered “good” or “fair”.
South Wales 113. The most similar forces to South Wales are Avon and Somerset, Durham, Gwent, Humberside, Lancashire, South Yorkshire and West Yorkshire. 114. Performance data indicates improvements in performance in the current financial year, with year on year comparisons showing: — 9.7% decrease in Domestic Burglary — 11% decrease in Vehicle crime — 4.2% decrease in Robbery — The percentage of oVences brought to justice rose by 3.1%. — The percentage of oVences detected and sanctioned fell by 1.3% — In 2003/04 South Wales performed better than its peers for the domains of Reducing Crime, Investigating Crime, Citizen Focus and Promoting Public Safety. Welsh Affairs Committee: Evidence Ev 321
— South Wales has seen an improvement in performance from the previous year. — Performance on Resource Usage and Providing Assistance was slightly below average, but sickness rates have fallen slightly from the previous year. South Wales was considered “excellent” in dealing with Hate Crime, Professional Standards and Crime and Disorder Reduction Partnerships. All other performance domains were graded “good” or “fair”.
Science and Technology
115. The 2001 Police Reform White Paper identified the need for a coherent Science and Technology strategy for the police service in England and Wales. The first “Police Science and Technology Strategy” was published in January 2003, covering the five-year period from 2003 to 2008. Its overall aim was to ensure that “the police service is equipped to exploit the opportunities in science and technology to deliver eVective policing as part of a modern and respected criminal justice system.”
DNA
116. The UK is currently the world leader in the use of DNA to identify criminals. We have the largest DNA database, currently holding 2.73 million DNA profiles taken from 2.45 million suspected oVenders, as at the end of September 2004. The National DNA database has made a significant contribution to crime detection in England and Wales by conclusively linking DNA found at crime scenes to oVenders. In 2003–04, the overall detection rate was 23%, but where DNA was successfully recovered from a crime scene and loaded onto the DNA database, the detection rate rose to 43%.
National Automated Fingerprint Identification System (NAFIS)
117. The IDENT1 project will take forward the existing National Automated Fingerprint Identification System (NAFIS) capability and provide a strategic platform for future biometric capabilities and a wider range of identification services, including palm print searching in England and Wales. This project is closely aligned to PALM1, its counterpart project in Scotland. 118. IDENT1, continuing from NAFIS and AFR (Automated Fingerprint Recognition), will be an essential tool for the wider criminal justice community. It will help with the identification, bringing to justice and successful conviction of oVenders. 119. The legislative changes in the Criminal Justice Act 2003 enable fingerprints to be taken on arrest. This with the use of technology to digitally scan and check prints in custody suites means that there is less chance that the police will arrest and then release a suspect only to find that they gave a false identity and were wanted for a much more serious charge.
Airwave
120. Airwave is the new radio communication system for the police service in England, Wales and Scotland. Airwave is based on terrestrial trunked radio technology (TETRA), a European standard that was agreed in the 1990s by the European Telecommunications Standards Institute. 121. Airwave is not simply a replacement for existing systems. Airwave uses digital technology, and so oVers very clear quality signals. Airwave will enable more of the country to be covered: far fewer “holes” in coverage that can endanger police oYcers. Thanks to its sophisticated encryption techniques, TETRA technology is secure. Criminals can no longer eavesdrop on police communications. Airwave also provides high capacity. TETRA can cope with major incidents, when many users will want to use their radios at the same time, without overloading the network. TETRA can transmit voice and data communications at the same time so that police oYcers can use their radios to connect with facilities such as the Police National Computer. 122. Airwave is now available in 38 forces and has more than 60,000 users. Airwave is expected to be available to all forces by mid-2005, with all forces being fully operational by mid-2006. 123. Feedback from oYcers and senior staV is that they are very much impressed with the clarity of the signal and the improvement in coverage. Some oYcers already have access to the PNC Vehicles database through their Airwave handset, more will get such access and oYcers will access to the PNC Names database over the summer. Ev 322 Welsh Affairs Committee: Evidence
ViSOR 124. ViSOR is a software application that stores information about oVenders with convictions for violent and sex oVences. It is also a management system that enables police and probation services to manage these oVenders. The data is stored in encrypted form and access to the system is only permitted to named individuals who meet the stringent tests for access to this sensitive material. It has been developed at a cost of about £10 million and will be rolled out to Police forces by the end of 2004.
THE DIVISION OF POWERS AND THE WORKING RELATIONSHIP BETWEEN THE UK GOVERNMENT AND THE NATIONAL ASSEMBLY FOR WALES ON POLICING MATTERS 125. Under the devolution settlement for Scotland, the responsibilities for the Secretary of State for Scotland for policing transferred to the Scottish Parliament and to its executive. Policing was never part of the portfolio of the Secretary of State for Wales and no transfer of responsibility for policing to the National Assembly for Wales was contemplated in the Labour manifesto 1997 or the subsequent legislation and proposals put to a referendum. Scotland has always had a separate criminal justice system within the United Kingdom while that of Wales has always been common with that of England.
Current Position 126. We still maintain that the benefits accruing to the people of Wales from sharing a common criminal justice system with England outweigh those from devolving responsibility for elements of the criminal justice system such as policing the National Assembly for Wales. We fear diseconomies of scale, for example in the provision of training, a loss of impetus through opting out of police reform and a diversion of energy through readjusting planning and performance management. 127. The current devolution settlement was set out in the 1997 manifesto and validated in a referendum and in legislation. Ministers are happy to work with the National Assembly for Wales on issues of common interest. 128. We recognise that the Richard Commission is an important initiative by the National Assembly for Wales. It is worth noting however, that the Commission report did not, in the end, propose that devolution of policing or criminal justice functions to the National Assembly for Wales. 129. The quality of policing is important and the Government is driving a major programme of police reform and a wider reform of the criminal justice system to drive up the number of oVences brought to justice and to reduce crime and anti-social behaviour. Ministers want to put the interests of victims at the heart of the criminal justice system. It will not benefit the people of Wales if they were excluded from these important reforms. 130. Welsh forces and police authorities benefit from the work done by the national representative organisations such as the Association of Chief Police OYcers and the Association of Police Authorities. Forces benefit from the economies of scale available through a national service of training centres. 131. Various mechanisms exist for co-operation and information sharing between the National Assembly for Wales and the Home OYce. There is significant contact at a Ministerial level. For example, Caroline Flint met with Edwina Hart in June to discuss how best to assist the delivery of shared strategies and objectives across Wales and the UK, particularly in respect of drugs, alcohol and prostitution. There are also regular meetings and contact at oYcial level on specific policy areas, often to discuss matters of common interest and reciprocal arrangements.
Annex
One Day Count of Anti-Social Behaviour:10September 2003 One in five people perceive high levels of disorder in their area. This has a considerable impact on public services such as the police, local authorities and the fire service. The Anti-Social Behaviour Unit has undertaken a snapshot count of reports that were made to agencies in England and Wales on one day. On 10 September 2003 agencies collected the number of reports from the public on a range of diVerent areas, including litter, vandalism and intimidation. Over 1,500 organisations took part and information was received from every Crime and Disorder Reduction Partnership area in England and Wales. Whilst reports are not the same as incidents of anti-social behaviour, the snapshot is indicative of the large number of contacts concerning the issue on a typical weekday. Between midnight on Tuesday and midnight on Wednesday, 66,107 reports of anti-social behaviour were made to participating agencies. This equates to more than one report every two seconds or around 16.5 million reports every year. Anti-social behaviour recorded on the day of the count cost agencies in England and Wales at least £13.5 million, this equates to around £3.4 billion a year. Welsh Affairs Committee: Evidence Ev 323
Day Count Results
Reports Estimated Cost to Estimated Cost to Agencies per day Agencies per year (000s) Litter/rubbish 10,686 £1,866 £466m Criminal damage/vandalism 7,855 £2,667 £667m Vehicle related nuisance 7,782 £1,361 £340m Nuisance behaviour 7,660 £1,420 £355m Intimidation/harassment 5,415 £1,983 £496m Noise 5,374 £994 £249m Rowdy behaviour 5,339 £995 £249m Abandoned vehicles 4,994 £360 £90m Street drinking and begging 3,239 £504 £126m Drug/substance misuse and drug dealing 2,920 £527 £132m Animal related problems 2,546 £458 £114m Hoax calls 1,286 £198 £49m Prostitution, kerb crawling, sexual acts 1,011 £167 £42m Total 66,107 £13,500 £3.375bn
7. Further written evidence from the Home OYce
JOB DESCRIPTION OF THE CRIME REDUCTION DIRECTOR (CRD) FOR WALES
Overall Aim To reduce crime and disorder in Wales by improving the eVectiveness of Community Safety Partnerships, and by working with other agencies which contribute to the partnerships’ work. To promote measures m support of substance misuse, youth justice and family welfare issues. The CRD for Wales will account to the Home OYce and the Crime Director’ for his/her work in crime reduction and other non-devolved matters in which Home OYce Regional/Welsh Directors are involved. The CRD will act on behalf of the Home Secretary as required in relation to the Home Secretary’s functions in Wales.
Specific Functions 1. To develop and implement an agreed business plan for identifying and delivering the training and development needs of the partnerships to improve performance, including national targets set out in PSA 1 (see Annex A). (Plan to include timetable and targets for reducing crime, in particular vehicle crime, domestic burglary, robbery and violent crime, street crime, fear of crime and anti-social behaviour). 2. To build and maintain strong working relations with all the key members of the partnerships, oVering advice and guidance on crime reduction matters. To develop similar relationships with the Youth Justice Board, Youth OVending Teams, NACRO Cymru and other practitioners in the youth justice field. Ensure eVective working relations with the police forces, local authorities, police authorities, health and probation services, youth oVending teams, business, prison service, Crown Prosecution Service, Criminal Justice Intervention Boards including the Voluntary and Community Sector, particularly black and minority ethnic groups. 3. To contribute to the development of Home OYce policy on national crime reduction initiatives, and help achieve their successful implementation at the local level. 4. To improve the performance of Community Safety Partnerships (CSPs) in reducing crime and disorder and the misuse of drugs by. — Developing strategy to improve the performance of priority CSPs, including Community First areas, and particularly focusing on those in the High Crime Quartile, monitoring performance using quanta data, stocktakes, self assessments and other appropriate tools. — To work with Community Safety Partnerships in order to monitor and drive up their performance in relation to substance misuse. — Focussing on the High Crime Quartile partnerships, identifying and helping to resolve their capacity requirements. — Helping CSPs make eVective use of s17 and working with partners to get them to mainstream community safety. Ev 324 Welsh Affairs Committee: Evidence
— Representing the Home Secretary as necessary on reserved issues and responding to ad hoc Home OYce commissions. — Identifying capacity requirements of partnerships. — Working with Home OYce oYcials to ensure good practice is identified and used; and to take action in Wales on impediments to improved delivery, or raise as necessary at national level. — To agree and implement a plan for the audit of the partnerships’ crime reduction strategies, taking account of the work of HM Inspectorate of Constabulary and the Audit Commission. To take into account the new arrangements being set up under the Crime Director’s Regional Performance Team. 5. To advise and brief Assembly Ministers and senior oYcials on crime reduction, substance misuse, youth justice, secure accommodation, and domestic violence issues within Wales. Details set out in Annex B attached. 6. To administer Home OYce funding programmes in line with guidance and ensure delivery of targets. To manage and advise on the allocation and use of Crime Reduction Programme and other funding that may be allocated in the future to support crime reduction activity. 7. To represent other non-crime Home OYce interests, including voluntary and community sector and race equality issues. 8. To contribute to the wider policies of the National Assembly aimed at promoting health, education and social development of all young people. 9. To manage and develop staV within the Crime Reduction Team within the Assembly. To provide eVective and supportive management for the Business Crime Reduction Adviser and review activities quarterly and provide Home OYce with progress reports 9 November 2004
Annex A
PSA Targets PSA Target 1: Reduce crime and the fear of crime; improve performance overall, including by reducing the gap between the highest crime CDRF areas and the best comparable areas; and reduce: — vehicle crime by 3,000 from 98–99 to 2004; — domestic burglary by 2,500 from 98–99 to 2005; — robbery in the 10 Street Crime Initiative areas by 1,400 from 99–00 to 2005; and maintain that level. PSA Target 6: Reduce the harm caused by drugs by: — reducing the use of Class A drugs and the frequent use of any illicit drug among all young people under the age of 25 especially by the most vulnerable young people; — reduce drug related crime, including as measured by the proportion of oVenders testing positive at arrest. PSA Target 8: To increase Voluntary and Community Sector activity, including increasing community participation, by 500 by 2006. PSA Target 9: Bring about measurable improvements in race equality and community cohesion across a range of performance indicators, as part of the Government’s objectives on equality and social inclusion.
Annex B
WALES SPECIFIC FUNCTIONS
Substance Misuse — To support and advise the Minister of the substance misuse strategy and policy for Wales. — To manage the Substance Misuse Policy Teams and Welsh Team. — To develop a Substance Misuse Business Plan. — To manage all substance misuse funds for Wales. — To work with Community Safety Partnerships in order to monitor and drive up their performance in relation to substance misuse. — To represent the Welsh Assembly Government on United Kingdom and international drug development forums. Welsh Affairs Committee: Evidence Ev 325
Domestic Violence — To provide support and advice to the Minister on domestic violence strategy and policy. — To manage the Domestic Advice Team. — To manage the Domestic Violence Funding Streams. — To support and advise Community Safety Partnerships, health and the voluntary sector in relation to domestic violence issues. — To represent the Welsh Assembly Government on United Kingdom and international government groups dealing with domestic violence.
Youth Justice — To provide support and advice to the Minister in relation to the Welsh Assembly’s strategies and policies made in support of youth justice. — To manage the Youth Justice Teams. — To support Community Safety Partnerships, YOT, WAG policy groups, and other stakeholders in relation to youth justice. — To represent and Welsh Assembly Government on United Kingdom groups. — To manage Welsh Assembly funding streams. — To support and advise the Minister on criminal justice matters as they touch the Welsh Assembly Government. — To provide a contact point for the wider criminal justice agencies to link with the Welsh Assembly Government.
8. Written evidence from Ceredigion Community Safety Partnership
1. Local Background The County covers an area of 1,795 square kilometres, which makes it one of the largest Counties in Wales. It has 97 kilometres of coastline, much of which is designated as Heritage Coast. It has over 203 square kilometres of areas of Special Scientific Interest and 13 Conservation Areas. The County also has two Communities First designated areas, Aberystwyth & Penparcau and the Upland Villages of the Tregaron Areas. Ceredigion is rural, with a population density of 41 people per square kilometre. The population of 77,000 (mid 2002 estimate) live in some 30,972 households, mainly located in the six market towns of Aberystwyth, Aberaeron, Cardigan, Lampeter, Llandysul and Tregaron. Only three towns have a population of more then 2000; Aberystwyth (13,000 to 14,000 non-student population, plus c 7,000 students), Cardigan (4,000) and Lampeter (2,000 non-student population, 1,500 students). However, the majority of coastal towns and villages do experience a significant increase in visitors during the summer months. 19% of the population is over retirement age (65). There are 51 Community Councils and 40 electoral wards. There are two designated Communities First areas within Ceredigion; Aberystwyth & Penparcau which covers part or all of Aberystwyth Penparcau, Aberystwyth Rheidol and Aberystwyth Central electoral wards and The Upland Villages of the Tregaron Area which covers all or part of Lledrod, Llangeitho, Ystwyth, Melindwr and Tregaron electoral ward.
2. Key Crime and Disorder Issues for Ceredigion The key issues arising from a Crime Audit being undertaken are: — Fear of crime remains a significant issue for the people of Ceredigion, even though there are comparatively low levels of crime combined with high levels of detection. — The influence of alcohol misuse particularly in respect of violent crimes and criminal damage. — Most crimes are against property, through theft and criminal damage, although violent crime is the second highest category of crime being recorded. — Most violent crimes consist of harassment and wounding. Other wounding accounts for 45% of total violent crime and harassment at 17%. — Nearly two thirds of vehicle crime involves theft from vehicles. — The most significant single crime is criminal damage to vehicles. There were 427 crimes of this nature recorded in Ceredigion last year. — During 2003–04, 51% of violent crime was drink related. Ev 326 Welsh Affairs Committee: Evidence
— Domestic violence is often a hidden crime. It can seriously impact on the well being of an individual’s life. The Ceredigion Division of Dyfed Powys Police has a “Domestic Violence Action Plan” for reducing incidents of domestic violence, particularly with regard to repeat incidents of domestic violence. In 2003–04 an arrest was made in 82.9% of domestic violence incidents. — Domestic burglary constitutes only 2.5% of all recorded crime within Ceredigion. — During the period of 2001 to 2004 total drug seizure amounted to £111,289, compared to total drug seizure for the period 1998–01, when total drug seizure amounted to £60,777.
3. Ceredigion Crime and Disorder in the National Context The proportion of reported crime that has been recorded by the Police has continued to rise since 1998–99. Year on year crime levels have steadily increased. Comparisons between the series suggest that the increases seen in recorded crime continue to result largely from the changes in recording practice. Although the National Crime Recording Standard was introduced in April 2002, it appears that ongoing auditing and continuing improvements may be resulting in further inflation in the recording of crimes. On average crime detection rates remain higher in Ceredigion than nationally. The average detection rate for the period of 2001–04 stands at 59.1%, which compares to an England and Wales clean up rate of 27.5%. The most significant types of crime vary in Ceredigion from the national picture. Total recorded violent crime accounts for 27.3% of total recorded crime and criminal damage is 21.3%, which is higher than England and Wales average (14.2% and 18.6% respectively).
4. Role of the Community Safety Partnership The partnership has continued to evolve in a positive and constructive manner with key partners willing to work in a multi disciplinary way to solve problems of crime, disorder and anti social behaviour. Successes and examples are: — Reducing suspicious and accidental fires and related injuries. — Reducing domestic violence and forming a Domestic Abuse Forum. — Geographical Information System Mapping and sharing of crime data. — Establishing CCTV schemes in three towns linked to a central monitoring point. — Employing an Anti-Social behaviour Co-Ordinator. — Establishing an Arrest referral Scheme. — Establishing a Restorative Justice Schools project — Developing Bi-lingual Intervention Programmes. — Establishing a Distraction Burglary project. — Appointing a joint Substance Misuse Co-Ordinator with the LHB. — Producing a multi agency newsletter for fear of crime reduction. — Developing joint submissions and bids with multi agency support across the community for the benefit of communities. — Providing opportunities to analyse events on a multi agency basis to improve risk awareness. — Seeking mutually beneficial solutions in the partnership eg violent patient problem was solved this way. — Working together to reduce Anti-Social behaviour and graYti problems. — Seeking solutions by agencies working together. — Analysing cause and eVect to reduce the impact on services. — Health, Social care and Well-being Strategy has assisted in pooling multi agency resources recognising the crime and disorder element through drug misuse. Bidding together to prevent misuse and provide corrective behaviour. “What’s best for communities not individual organisations”. — Opportunities to seek solutions together eg targeting “boy racers” in towns.
5. Issues and Problems for the Partnership — Rural crime and the mechanics of rural Community Safety partnerships are diVerent than urban areas. Community consultation is more diYcult with low density of population and scattered communities across vast geographical areas. Resources are far fewer in the agencies involved in Community Safety. Welsh Affairs Committee: Evidence Ev 327
— Ceredigion is a very low crime area as compared to many areas of Wales and England, however, people’s perceptions are of crime and disorder being prevalent. The local media giving high prominence to crime incidents perpetuates this myth. Much of the Government policy is focussed at reducing crime with much less undertaken to reduce the fear of crime. In a rural area such as Ceredigion more of an emphasis on reducing the fear of crime would bring greater benefits to the health and well being of the population. This would mean providing funding streams for public relations so that good news stories could be generated and a constant reassurance message provided. Reducing the fear of crime is not often considered as an equal part of Community Safety work. — The residents of Ceredigion have an expectation that reducing crime depends on seeing Police patrol their areas. Research has shown that many factors make for successful crime reduction, not just Police patrolling. However, much of the central policy push is for more “uniformed” presence. Consultation after consultation with residents reveals that they expect more uniformed presence. If this is the answer than much greater funding is needed in a rural area like Ceredigion to employ Community and Street Wardens and additional Police OYcers. — Central Government policy on crime and disorder is appears to be driven by the demands of inner city urban areas and what is happening in those areas. This does not equate to the problems and issues within rural areas. Further consideration of policy is required to identify what works in rural areas. Recognising that rural areas are diVerent and need diVerent solutions is a prerequisite. — Ceredigion has many related crime incidents which are alcohol related. The new Licensing Act will undoubtedly have an impact, although, the Partnership is yet unclear what impact this will be. This Act driven by central Government policy is being placed upon local government to implement. The Partnership is very concerned that adequate resources to oversee the Act are not being identified by Government. The Ceredigion Partnership is concerned at “Under Age Drinking” and associated issues—there is a proliferation of outlets whereby youngsters can obtain alcoholic drinks, there is a relationship to the social acceptability of drinking alcohol, binge drinking and drinking in public places. EVective control is needed to control and limit all of these, which require adequate resources and funding. — Innovative methods and ways should be explored in tackling crime and the fear of crime, however, explicit guidance is not provided on how to do this. The next generation will be computer literate and broadband networks will have been rolled out to many parts of rural Ceredigion. Technologies should be exploited much more fully in tackling crime and the fear of crime. This requires resourcing and central policy direction so that all areas learn from pilot projects. Examples are: video conferencing, low cost CCTV across broadband networks, use of e-mail and remote access points—to reduce both the exclusion that can be caused by requiring people to travel and reducing the amount of paperwork. — There is constant concern with regard to youth behaviour especially by elderly residents. The partnership recognises that much youth behaviour, whilst not law breaking, is often seen as intimidating. This behaviour may well fall well below Anti Social Behaviour concerns. There is a need for more joined up policy direction and resourcing to ensure young people have an outlet for their energies. Owen Watkin Chief Executive Ceredigion County Council, Chair of the Ceredigion Community Safety Partnership 9 November 2004
9. Written evidence from Denbighshire Community Safety Partnership
POLICE SERVICE, CRIME AND ANTI-SOCIAL BEHAVIOUR IN WALES INQUIRY SUBMISSION ON BEHALF OF THE DENBIGHSHIRE COMMUNITY SAFETY PARTNERSHIP This submission details the role of the Community Safety Partnership in Denbighshire is respect of addressing crime and anti-social behaviour.
1. Structure/funding The Community Safety Partnership is Chaired jointly by the County Council Chief Executive, and the Divisional Police Commander. Membership comprises representatives from agencies such as Probation, Local Health Board, NHS Trust, Magistrates Courts, Fire Service, Youth OVending Team. There is also one county councillor who is the Cabinet member whose portfolio includes community safety and also sits on the North Wales Police Authority. The Partnership’s primary source of funding is from the Home OYce “Building Safer Communities”, and “Substance Misuse Action Plan” funds and the National Assembly for Wales “Safer Communities” Fund, as follows: Ev 328 Welsh Affairs Committee: Evidence
Building Safer Communities: £156,835.50 Safer Communities Fund: £140.000.00 Substance Misuse Action Plan £285,120.00 Substance Misuse Action Plan Coordinator’s Post £20,000.00 Anti-social Behaviour Order Coordinator’s Post £25,000.00 Basic Command Unit Fund £136,000.00 (approx)
The use of this funding has been hindered in the past by delays in approving expenditure plans or in releasing funds. The diVerent funding streams and their diVering conditions such as restrictions relating to the levels of revenue and capital expenditure have also lead to diYculties in introducing initiatives. In addition, Denbighshire provides administrative support and time of oYcers: about 1.2 full time equivalent are engaged solely on crime and disorder work and many others in education, housing, social services etc. are engaged in dealing with crime and disorder issues for part of their time. Part of the partnership’s resources each year is given to four area-based crime and disorder groups to spend on local initiatives. The groups are administered by the Council and bring together local bodies, such as businesses and community councils, and other interested individuals who wish to tackle crime and disorder problems. The community warden service is provided by STARS, a not-for-profit body with its headquarters in Rhyl, and supported by funding from the Partnership. There are eight wardens in four towns.
2. Achievement The Partnership recently completed its crime and disorder audit, which will drive its strategy for 2005–08. The audit demonstrated that overall crime levels in the County had fallen by 7% in 2003–2004 when compared to the previous 12 month period. In the same period recorded numbers of some crimes have fallen by such an extent that they are now below the levels which existed prior to the introduction of the National Crime Recording Standard in 2002. For example burglary fell by 28%. Unfortunately there has been an increase in respect of some oVences, such as alcohol related violent crime and juvenile crime, and particularly with regard to anti-social behaviour. Some of this can be attributed to eVorts to increase reporting but there seems to be an underlying real increase in the levels of these oVences. They are the focus for proposed action in the 2005–08 strategy. Encouraging progress continues to be made. Figures for crime from April to October 2004 compared to the equivalent period in 2003 show a reduction of 15%, although incidents of disorder have fallen by only 1% in the same period. In 2002 a Policing Priority Area was introduced in the West Rhyl ward which was used to enhance a number of joint working arrangements between the Police and the County Council as well as specific initiatives such as alleygating schemes. This helped to reduce levels on both crime and disorder in the area both during the period of the scheme and afterwards, and the lessons learnt from it have been replicated in other parts of the County.
3. Anti-social Behaviour The Partnership has for some time sought to address anti-social behaviour as one of its key priorities, but has not sought to use anti-social behaviour orders as the only solution to the problem. Frequently it has been found that the behaviour has been addressed by the use of other solutions such as acceptable behaviour contracts. It has also sought to address the issue of juvenile nuisance by providing a number of alternative activities for young people to divert them away from activities which would create a nuisance to other members of the community. Schemes such as summer play activities and training initiatives through “Splash” schemes for example have been introduced, and have been shown to reduce levels of juvenile nuisance. A number of community safety wardens have been introduced throughout the County, and recently Police Community Support OYcers have been employed in the Rhyl area. These provide reassurance to many people, particularly the elderly so as to reduce the fear of crime. The Council and North Wales Police have supported British Transport Police in introducing a Dispersal Order in and around the railway station in Rhyl so as to combat problems in respect of nuisance, mainly caused by juveniles, and petty crime. The crime and disorder audit has shown, however, that juvenile nuisance is only part of the problem and that alcohol related disorder is also a major issue. This is likely to be reflected as a priority in the next Community Safety Strategy. The Partnership will be seeking to ensure that the licensing powers being transferred to the Council are used eVectively to address these issues. Welsh Affairs Committee: Evidence Ev 329
Although the Partnership has sought not to pursue ASBOs in many cases it recognises that these are the only solution is some instances. It has particularly sought to use the powers contained in the Police Reform Act to seek ASBOs in connection with convictions for other oVences. The use of such orders has been led by the Partnership Anti-Social Behaviour Co-ordinator who is employed by North Wales Police. There appear to be significant inconsistencies, however, between courts in North Wales and courts elsewhere with regard to their willingness to grant such orders and this seems to have resulted in a lower number being issued in Denbighshire. The statistics as at 31 October 2004 are: Acceptable behaviour contracts implemented: 16 Anti-social behaviour orders issued: 5
4. Future Strategy The Partnership’s future priorities will be to continue the reductions in levels of crime which have been achieved over the last few years whilst concentrating on the areas of concern that have been identified in the crime and disorder audit namely alcohol related crime, juvenile crime and anti-social behaviour. In seeking to achieve these local priorities it will have to ensure that it meets its requirements to achieve national initiatives such as the Prolific and Priority OVender Programmes as well as implement new legislation such as the Domestic Abuse Act. Indications from both the Home OYce and the National Assembly are that, although there will be a new funding stream entitled the Safer and Stronger Communities Fund, this will include little additional new funding. It is likely to be the case that funding which is available to partnerships in England in the form of a single stream—and at a higher level—will not be replicated in Wales, where we will still face a minimum of two funding streams. If this is the case it may restrict the Welsh Partnerships’ ability to deliver the national crime reduction targets which are to be introduced by the Home OYce in 2005. Ian Miller Joint Chair
10. Written evidence from Monmouthshire Community Safety Partnership This report is an addendum to the oral evidence submitted by John Palmer, the joint chair of the Monmouthshire Community Safety Partnership and Assistant Chief Executive of Monmouthshire County Council. In 2002 the Crime and Disorder Reduction Partnerships throughout Wales were renamed Community Safety Partnerships as part of a concerted eVort to widen their base. As such they are still very much in their infancy as they seek to develop and engender trust between partners and the community they serve. The last Community Safety Audit, conducted in 2001, was very much a Police/Local Authority collaboration, although the Partnership was subsequently broadened to include other agencies who had played only a small role in the audits and the development of the subsequent strategies. It must therefore be appreciated that in this respect they have questioned their commitment and role in a partnership, whose strategy may not complement that of their own agency. This cannot be fully resolved until the current audits are completed and all partners contribute to the development of the new strategy for 2005–08. This will hopefully provide a more robust local focus for the Partnership. The unprecedented growth in legislation by central Government has raised expectations in crime and disorder reduction during the past five years. However the rapid succession of related legislation (Criminal Justice and Police Act 2001, Police Reform Act 2002, Anti Social Behaviour Act 2003, Fireworks Act 2003, Licensing Act 2003), guidance (Prolific & Other Priority OVender Strategy) and associated white papers asking for comment has increased the demands on community safety partnerships. This plethora of legislation has come at a time when processes are still being established, and individual agencies are themselves subject to legislation. Additionally, over the past three years, we have seen an extension of responsibility for the partnerships to include Substance Misuse, Domestic Violence and other hate crime. To accommodate these additional responsibilities the Partnership will need to further evolve. The partnership is actively seeking to co-locate the diVerent agencies to provide a closer structured working environment although the expansion of responsibilities exceeds the resources available. From this expansion has arisen the problem of how to integrate the work of the partnership to complement the work of other partnerships within the area. Each agency and partnership has their own objectives and performance indicators, sometimes these do not coincide, especially when they are based on National Performance measures rather than local need. Section 17 of the Crime and Disorder Act means little to departments of local authorities who are subject to legislation that appears to contradict the Act eg Social Services working with young people struggle to equate the provisions of the Children Act with Crime Ev 330 Welsh Affairs Committee: Evidence
and Disorder legislation. The Government’s proposals to strengthen Section 17 outlined in the new White Paper Building Communities, Beating Crime, will help strengthen the case for mainstreaming crime and disorder reduction objectives in local authority departmental plans. On occasions there does not appear to be a joint vision of Community Safety amongst ministries and the impact of legislation has been lessened by the delay in obtaining Welsh Assembly Government approval. This is a criticism but also a legacy of devolution. Monmouthshire as a partnership quickly recognised its rurality and the isolation of its communities and established RedPOP (Reduction by Problem Orientated Partnerships) groups in the four main towns of the county to deal with local crime and disorder issues. Partly due to this multi-agency approach and the pro- active work of the individual agencies, the Partnership has been able to invest in prevention, intervention and distraction activities as an alternative to seeking Anti-Social Behaviour Orders. In discussing individual cases there has been active support from the Probation Service and particularly the Youth OVending Team, which covers Monmouthshire and Torfaen. This team ranks as the best in Wales and amongst the best in England and Wales. Its oYcers work not only on a reactive basis through the criminal justice system, but also as a pro-active team in supporting and diverting those people identified as being at risk of oVending. It has also set up Acceptable Behaviour Contract Panels, to involve community members in negotiating the Acceptable Behaviour Contracts with those involved in low-level disorder. The partnership is currently providing financial support for the expansion of this work to include education, parenting and drug and alcohol support. The partnership quickly set into place guidelines and a practical working environment, from existing resources, to support the work of dealing with Prolific and Priority OVenders. This scheme has attempted to balance local need and national performance. The Monmouthshire Partnership was originally in a unique position in Wales where the police division straddled two Community Safety Partnerships (although this has subsequently changed). It has recognised the opportunities in working jointly with the other community safety partnership within the Police division where it has been felt appropriate to do so to provide economies of scale. In commissioning substance misuse treatment services, the partnership went further in agreeing with the four other community safety partnerships within the Gwent Police area to commission the services of the Kaleidoscope project. The social housing component of “Through Care And Aftercare” has also been commissioned in partnership with Torfaen. It is recognised that Community Safety Partnerships have generally failed to raise community awareness of their existence, although the Monmouthshire Community Safety Partnership have backed financially or otherwise initiatives that have had a positive eVect on the community. Examples of this include linking to Schools and Youth projects eg Crucial Crew, Wings to fly and Crime of your life and partnership backed project such as Cab Safe, Pubwatch, the Bobby Van and a Distraction Burglary initiative. As indicated earlier even within the Partnerships themselves, some bodies have struggled with their roles. This could be seen as being particularly true in the case of Local Health Boards who have within two years been formed and made a statutory partner and have had their influence diluted in the commissioning of substance misuse services, the responsibility for which having been passed on to the Partnership that they have been required to join. To support the Community Safety Partnerships it is essential to look at the issues of funding and sustainability. From the beginning it has been a balancing act in addressing short-term funding against long- term outcomes. A merging of funding streams and conditions on spend together with rolling programmes and the long-term notice for cessation of funding can only help in delivering an eVective strategy. To date the advanced disclosure of funding has often been short term and even misleading. It is also unrealistic for partners to absorb financial commitments into core funding when faced with the cessation of funding from central or national government. The need for dedicated staV to support the development, implementation, monitoring and evaluation of the partnership’s strategies and action plans is fundamental. With the ever-increasing levels of expectation and funding, partnership working is now a full-time operation. Short-term funding to establish posts has assisted the partnership but the current position that posts will shortly have to be absorbed into mainstream funding does not take into account the realities of local government and the local health services. The presumption that savings made elsewhere, due to partnership successes, will subsequently be allocated to support these posts is a utopian vision, particularly in the light of budgetary restraints imposed at national and local level. It would be churlish to over-criticise the partnership process and it is better to view the partnerships as developing entities, but as such they require nurturing and support. The work of the partnership has expanded greatly in the six years since the Crime and Disorder Act and this has been accompanied by a frenzy of competing objectives and outcomes. Would it be better to give every partnership one outcome, that is the reduction of the fear of crime, and allow flexibility to each partnership in attaining this in their locality? This may mean a departure from national priorities in favour of local priorities, but will meet the needs of the community. Welsh Affairs Committee: Evidence Ev 331
Key considerations for the centre are: — Operating gateway systems to regulate bureaucracy of reporting, funding streams (budget pooling) and communications; — Shifting to medium-term financial planning to allow longer-term allocation of funds in line with statutory organisations-budget frameworks; — Adopting Key Performance Indicators (outcome and action focused) so that if targets are met, partnerships could earn autonomy on budget management and allocation; — Working between ODPM and HO to ensure policy consistency and linkages between policing plans, community strategies and community safety strategies; — Piloting of alternative community safety models (trusts, mutuals, public interest companies, social enterprises) to provide partnerships and statutory organisations with more flexible models of delivery; — Triangulating the Assembly function, HO and CSPs in Wales, to avoid duplication or overlapping on initiatives; — Developing greater vertical integration between central policy guidance and legislation and local community safety strategies. Andrew Mason Gwent Police
Derek Nash Monmouthshire County Council
John Palmer Monmouthshire County Council 26 November 2004
11. Written evidence from Blaenau Gwent County Borough Council, Community Safety Partnership
MAIN PROBLEMS FACED BY COMMUNITY SAFETY PARTNERSHIPS
1. Speed of Change:
The Crime & Disorder Act 1998 is nearly six years old but in reality it is still a relatively new piece of legislation. Because of its far-reaching implications and impact upon the key partners—particularly local authorities—it should be viewed as very much in its infancy in terms of its implementation. The Act prompted a massive cultural and directional change for local authorities and, like many large institutions, councils cannot negotiate such radical manoeuvres overnight. Issues such as breaking free from deeply ingrained silo mentalities and embracing the concept of “mainstreaming” crime and disorder reduction take time to assimilate. For example: objectively, the argument that education and leisure departments should invest in improved streetlighting near schools and leisure centres to reduce crime and disorder makes perfect sense. The long- term benefit will include reduced cost of repairs to vandalism and graYti for the authority and less fear of crime for the community. Subjectively, however, education and leisure departments are wrestling with a range of other priorities, targets and tight budgets so new streetlights are likely to come well below new school books and extra teachers or new gym equipment and sports pitches in their departmental spending plans. Progress has also been hampered by the unprecedented growth of Government expectations in crime and disorder reduction during the past five years and the rapid succession of related legislation (Criminal Justice and Police Act 2001, Police Reform Act 2002, Anti-Social Behaviour Act 2003, Fireworks Act 2003, Licensing Act 2003) and guidance (Prolific & Other Priority OVender Strategy, Substance Misuse Action Plans) that community safety partnerships have to grapple with. There has been no “bedding down” period for the 1998 Act—no period of stability to allow partners to adapt and evolve, to achieve the transition of organisational cultures required. Community safety partnerships, and thus the partners themselves, have been asked to meet an unrelenting stream of fresh and ever more ambitious demands from the Home OYce and we are rapidly losing the ability to keep pace. Ev 332 Welsh Affairs Committee: Evidence
2. Mainstreaming: One of the key drivers in achieving organisational cultural change, particularly within local authorities, is the statutory requirement to mainstream community safety. The weakness in the driver is that, since the 1998 Act came into force, Section 17 has been largely toothless. Community safety oYcers within local authorities advise and encourage participation in crime and disorder reduction activity. One of the “frequently asked questions” is “what happens if we don’t participate?”. The risk of being taken to court for failure to comply with Section 17 is minimal and the likelihood of any sanction is even more remote. Therefore the incentive for changing a service or redeploying a resource to meet a crime and disorder reduction objective, as opposed to any other statutory requirement backed by real sanctions, is negligible. It’s not that local authority departments are being stubborn or do not want to co-operate with the crime and disorder agenda. It is simply a matter of priorities, particularly where budgets are tight and resources are limited. Furthermore, implementation of the Section 17 requirement to mainstream community safety is dependent upon awareness-raising and training elected members and oYcers—not only in what the statutory requirement means, but how it can be met within their own areas of expertise and service delivery. We have embarked upon a major training programme for members and oYcers but that will take time to bear fruit. The Government’s proposals to strengthen Section 17 with rewards and sanctions, as outlined in the new White Paper Building Communities, Beating Crime, will certainly help strengthen the case for crime and disorder reduction objectives to be given greater priority in local authority departmental and divisional plans.
3. Capacity Building: Community Safety Partnerships come in all shapes and sizes and operate a variety of structures to suit their local needs. One thing they all have in common is the need for dedicated staV to support the development, implementation, monitoring and evaluation of the partnership’s strategies and action plans. It is not suYcient to allocate a proportion of a community safety, admin or finance oYcer’s time to ensure that the partnership functions eVectively. With the ever-increasing levels of expectation and funding, partnership working is now a full-time operation. Safer Blaenau Gwent now has its own team of dedicated partnership staV, managed by the local authority community safety oYcer, and the partnership could not have managed without this team. The problem we now face is who pays for that team? The additional staV—a finance & monitoring oYcer, a substance misuse co-ordinator, an anti-social behaviour co-ordinator, a domestic abuse co-ordinator and an admin oYcer—are all aVorded thanks to Home OYce and Welsh Assembly Government funding streams. We have been advised that this is only a short-term measure (March 2006) and that we should be looking to mainstream these posts in future years. Blaenau Gwent County Borough Council is far from being a wealthy local authority and Gwent Police will be looking for savings of approximately £750,000 in C Division in the next financial year. So who should pay? We are told by the Government OYce that the team can be paid for by eYciency savings achieved through lower crime and disorder . . . but in reality that is almost impossible to quantify. Savings achieved through reducing vandalism to schools, leisure centres, libraries, public toilets, bus shelters, car parks, playgrounds, council houses and civic amenities will not automatically be re-routed to pay for the community safety team. Directors and portfolio members work very hard to protect their budgets and where eYciencies are made, the first call on them is to improve or expand the actual service in question. Building capacity is only half the story. As partnerships we recognise that we can achieve more by establishing co-located, integrated multi-agency community safety departments—bringing together the law enforcement and criminal justice agencies with local authority community safety oYcers and the departments that have significant roles to play in reducing crime and disorder, such as education Welfare, environmental Health, trading standards, CCTV, streetlighting, housing wardens, etc. This will require significant investment in both financial and resource terms from the key partners.
4. Funding: Community Safety Partnerships certainly welcome the additional funding provided by both the Home OYce and the Welsh Assembly Government and a great deal of excellent work has been achieved as a result of this support. We can always complain we need more, and that will never change. Welsh Affairs Committee: Evidence Ev 333
However, funding does bring its own problems. The targets, performance measures, outcomes and resulting paperwork that comes hand-in-hand with funding streams present a significant challenge for our practitioners. But the greatest challenge of them all is the seemingly short-term and last minute approach adopted by the Home OYce when it comes to funding. As partnerships we are required to develop three-year strategies and accompanying action plans. The funding we receive, however, lasts for just 12 months. There is no carry-over and no indication of the allocation we will receive in future years or what the terms and conditions will be. This means we cannot plan long-term and the emphasis is on spending the money quickly. In 2001–02 we had the Partnership Development Fund (PDF), Safer Communities Initiative (SCI) and Communities Against Drugs (CAD). These were supposed to be three-year funding streams, although allocations were announced annually and the potential for carry-over was limited. In 2003–04, just two years into these three-year funding streams, they were replaced by Building Safer Communities, with new terms and conditions to abide by. It’s not just a question of moving the goalposts. Allocations are announced very late in the financial year and partnerships are given very little time to negotiate and submit spending plans. Even after they are submitted it can take months for these plans to be approved. We have recently been informed that the new BSC will be the Safer Stronger Communities Fund (SSCF) from next April. It is now late November and we still don’t have answers to the following fundamental questions: — How much we will be allocated on 1 April; — What the terms and conditions of funding for the new SSCF will be; — How long we will have to submit spending plans; — When we can expect WAG and Home OYce approval; — Whether or not there will be a minimum capital spend requirement and, if so, what percentage this will be; — Whether or not we SSCF will be one-year funding with no carry over or three-year funding with carry over. How can we be expected to provide best value for public money in this kind of funding regime? Our partnership funding should be tied into the three-year strategies. In other words, as we develop our 2005–08 community safety strategy we should be told what funding we will have from 1 April 2005 until March 31st 2008, what the terms and conditions are for those three years and we should be allowed to carry over underspends from years one and two into year three. Furthermore the current minimum requirement of 27% to be spent on capital, when many of the partners are in desperate need of revenue support for new initiatives. We have also had cases where additional funds have been announced to support initiatives and spending plans are required within a week or two, or sometimes just days. Other funds are awarded on the basis of completing an online questionnaire (domestic violence grant), awarded to Assembly Government initiatives that do not always fit in with partnership strategies (Include/Turnaround Project) or are handed out to selected partnerships and not open for all to bid for (first round or arson reduction monies).
5. Unrealistic Expectations Community safety partnerships are asked to sign up to deliver “measurable outcomes” within their three- year strategies and one-year spending plans. There is no argument that the use of public money should be properly monitored, evaluated and accounted for, but the only measurable outcomes the Home OYce and Assembly seem to be interested in are percentage reductions in crime. For example, if we have a particular problem with shed break-ins in one of our sections, we might propose to fund a target-hardening project aimed at reducing shed break-ins. The Home OYce and Assembly would insist that our measurable outcome should be an x% reduction in shed break-ins, not how many locks were fitted or how much safer beneficiaries felt. So which has a bigger impact on the shed crime figures six months later—100 extra British Standard locks being fitted to vulnerable sheds in that locality and 1,000 crime prevention advice leaflets delivered to homes, or the release of two prolific shed burglars who immediately return to their old stomping ground and commit a significant spate of break-ins? The answer is, of course, unknown. It depends upon so many factors beyond the control of the community safety partnership. Even more complex is a youth diversionary activity or substance misuse education programme. How do you tell what impact such initiatives will have on reducing levels of youth crime and substance misuse without commissioning longtitudinal studies involving the young people who participated? Yet we are asked to sign up to an “x% reduction in” as our measurable outcome. Ev 334 Welsh Affairs Committee: Evidence
To properly monitor and evaluate and assess the cost benefit of BSC or SCF funded projects would cost more than many of the projects themselves. It’s so often a case of being so busy weighing and measuring the cow that we forget to feed it. So-called “soft outcomes”, such as “number of young people engaged”, are frequently frowned upon and discounted as “outputs” and irrational emphasis is placed upon an unrealistic, unscientific “guestimate” of how many burglaries and take-and-drive-aways will be reduced by the project.
Which brings me to the question—what is expected of our partnership?
The Rt. Hon. Jack Straw, Home Secretary at the time the Crime and Disorder Act was introduced, said: “The Act represents the culmination of a long held ambition to empower local people to take control of the fight against crime and disorder in their area. The people who live and work in an area are best placed to identify the problems facing them and the options available for tackling those problems.”
The Home OYce and Assembly, by asking us to sign up to the type of measurable outcomes described earlier, are clearly under the impression that community safety partnerships have more control and influence over crime and disorder than we do.
In fact we can do little more than provide added value to existing mainstream crime and disorder reduction by working more closely together. Local authorities and LHBs are governed by targets and priorities that are set by Westminster and Assembly Government departments.
The police and other criminal justice agencies are governed by targets and priorities set by the Home OYce that often do not match local priorities (eg gun crime, street robbery, terrorism). Police forces have limited resources and if Chief Constables are impelled to direct those resources to meet national and force-wide targets that may diVer substantially from local needs, partnerships will continue to be a lower priority. It is still very much a “top-down” approach to tackling crime and disorder rather than the “bottom-up” approach suggested by the former Home Secretarys .
Until community safety partnerships are empowered to direct police, local authority and other partners’ resources and until community safety strategies take precedence over other national and regional operational plans, we will never be in a position to “take control of the fight against crime and disorder in our area”.
Negotiated crime reduction targets and the new White Paper’s proposals for giving divisional commanders more autonomy and police authorities more responsibility to take account of community safety strategies when drawing up local policing plans will, of course, assist community safety partnerships in this respect.
A close look at the expectations of POPOS demonstrates that the Home OYce and Assembly have unrealistic expectations of what community safety partnerships can achieve. Under the “prevent and deter” strand we are asked to identify a group of between 20 and 50 young people in our area who are on the “cusp of oVending” and to put programmes in place that divert them from criminal and anti-social behaviour in a case-managed way.
The partnership is being given no extra funding to meet these ambitious objectives. Therefore we have to depend upon three other partnerships—the Children’s and Young People’s Partnerships and the Health, Social Care and Well Being partnership—to provide the services required for the targeted group we have identified. Our Youth Entitlement Partnership, and our own statutory youth service, is well within its rights to ask why these 20-50 individuals should be singled out for special treatment when their remit is to consider the needs of all young people in the area.
Under “rehabilitate and resettle”, is it right that housing departments, employment training schemes and job-placement programmes give priority to individuals targeted by community safety partnerships— particularly when those individuals are more likely to have a detrimental impact on achieving their own measurable outcomes as dictated by their non “crime reduction” funding streams.
And nowhere is unrealistic expectation more clearly evidenced than in the area of anti-social behaviour. As a partnership we would be delighted to make greater use of Anti Social Behaviour Orders to curb individuals behaviour. However,it would appear that advice to magistrates is that because breach of an ASBO is a criminal oVence punishable by custodial sentence, they should only impose an ASBO for anti- social behaviour of a suYciently serious nature. At the same time, Lord Chief Justice Woolf’s appeal court ruling this year stressed that ASBOs should not be used to tackle criminal behaviour for which individuals can be prosecuted. We are therefore left with a narrow gap of opportunity between behaviour that is so serious it should be dealt with by criminal prosecution and behaviour that is too minor to warrant a custodial sentence if an ASBO is breached.
It is one thing to introduce legislation and another altogether to ensure its eVective implementation by the judiciary. Welsh Affairs Committee: Evidence Ev 335
6. Partners:
Community Safety Partnerships are largely led by the local authority and police. Our LHB does get involved and actually contributes finances toward partnership working, but it is our only health sector partner.
Also Police divisions can be highly committed to local partnership working but hampered by the force priorities and targets, set independently of and without regard to community safety strategies.
Again, the clear indication from the new White Paper that divisional commanders will be awarded greater autonomy in directing police resources and that police authorities will have to take account of community safety strategies when developing local policing plans is long overdue and most welcome.
Partners within the CSPs also suVer from serious culture clashes. The structure of the police frequently works against partnerships because the constables, sergeants and inspectors we work with are not always empowered to make decisions on behalf of the police, while senior oYcers who are in a position to make decisions are unable to attend all the meetings where decisions are required. It is also frustrating when you discover that the main police partnership contact you’ve just built a close and eVective working relationship with has been transferred at a week’s notice.
With every set of guidance issued by the Home OYce comes the impression that community safety partnerships are fully staVed, stable and well structured virtual organisations of individuals whose time and energy is dedicated to reducing crime and disorder. The agency representatives sat around the partnership table vary from meeting to meeting and few organisations empower their representatives to make decisions at those meetings that commit real resources or funding. Most decisions reached are either “in principle” and have to be ratified back at base or made on the basis of nil cost and zero resource commitment.
Police eVorts are focused on detecting crime—detection figures are paramount in the police performance assessment framework, followed by reduction figures in the key crime categories. Anti-social behaviour was not even measured by the police until the new set of anti-social behaviour categories was added to the police national crime recording standard.
Yet year-on-year our recorded crime statistics are falling and detection rates are rising but fear of crime is at record levels. In Blaenau Gwent the fear of crime is nearly twice the national average (in comparison to British Crime Survey findings). Our domestic burglary figures are among the lowest in the UK and still falling, and we keep telling the public this fact. It does not stop 78% of our population stating that they are fairly or very worried about being burgled.
Perhaps the primary driver of police performance, as set by the Home OYce, should be to reduce the fear of crime. Maybe then police commanders’ minds (and resources) would focus more on high visibility policing, public reassurance, rapid response and serious investigation of all the minor crimes that are currently dismissedall the minor crimes that are ruining people’s quality of life .
People in Blaenau Gwent have a high fear of burglary because they read national newspapers and watch national television and equate the horror stories they see with the gang of perhaps rowdy but otherwise law- abiding youths hanging around on their street corners. They see pictures of drug-crazed muggers in the media and they see similar-looking people near their homes. They see images of void properties, broken windows, graYti and fly-tipping in those national newspapers and on television, and they see void properties, broken windows, graYti and fly-tipping in their neighbourhoods and the fear of it happening to them is cemented. No amount of positive local media coverage of falling burglary figures will persuade them they are not at risk.
Better resourced, local authorities could do a great deal more to provide facilities for young people, to remove graYti and vandalism more quickly and to repair and restore void properties and broken bus shelters more speedily. But we have to use our limited resources to meet targets and performance indicators that are not necessarily linked to crime and disorder reduction.
Perhaps the paramount performance indicator for all partners within the community safety partnership should be to reduce the fear of crime. Then we would all be singing from the same hymn sheet instead of trying to harmonise a disparate set of sometimes clashing agendas. That would be a true partnership. Robin Morrison Chief Executive 6 December 2004 Ev 336 Welsh Affairs Committee: Evidence
12. Written evidence from Rhondda Cynon Taf Community Safety Partnership
Chapter One
Profile of Rhondda Cynon Taf 1.1 The profile of Rhondda Cynon Taf sets the context in which we work and must be looked at against the background of the social and economic environment that exists within the area. 1.2 The County Borough is situated to the north of CardiV at the heart of South Wales, bounded by the Brecon Beacons and the M4 motorway. It has a population of 231,946, making it the second most populated authority in Wales after CardiV. 48% of the residents are male, and 52% are female. The area has an ageing population, but also has a higher proportion of those aged under 15 than in other parts of Wales. Members of visible ethnic minorities account for 1.2% of the population. 1.3 Rhondda Cynon Taf once predominantly rural witnessed rapid change with industrial development in the latter half of the 1800s. Coal mining and heavy industry then dominated the area, and its legacy still shapes the region today. The area is now undergoing a major and rapid structural change away from the heavy manufacturing industries, to a more diversified economy based on smaller scale modern manufacturing and service industries. 1.4 The County Borough has a unique environment. Most of the area is still countryside, with extensive heathland and forest on the upland plateau in the north, and rolling farmland and woods in the south. Narrow, steep-sided valleys cut through the coalfield plateau and it is here that built development is concentrated. In the south, development is focused on towns and villages. The environment is rich in wildlife and traditional Welsh habitats, many of which are now of UK and European significance. 1.5 Due to the distinctive topography of Rhondda Cynon Taf, the area has a linear communications network. Transport links tend to follow the valleys, running north-south, with access across the plateau being more diYcult. Numerous bus services link the villages and towns, whereas the rail network is confined to the main valleys (Taf, Cynon and Rhondda Fawr) and the CardiV-Bridgend Intercity line. The major roads, particularly the M4, A470 and A4119 provide good access to CardiV and beyond. 1.6 Economic activity rates in Rhondda Cynon Taf are lower than the average rate for Wales. The rate for all those of working age is 68%, compared to 73.1% for Wales. (73.4% of men compared to 77.9% for Wales, and for women, the rate is 62.4% and 68.1% for Wales as a whole). The proportion of self- employed workers in Rhondda Cynon Taf is lower than the average for Wales. 7.8% are self-employed compared to 12.2% in Wales. 1.7 Rhondda Cynon Taf suVers from high levels of economic and social deprivation. 34 of the 53 three electoral divisions in the area are within the top third most deprived in Wales, accounting for 67% of the total population of the area. Areas such as Penywaun, Glyncoch, Maerdy, Mountain Ash West, Llwynypia and Treherbert feature in the top deprivation decile for employment, health, education and income. Generally, the least deprived electoral divisions are located in the south of the County Borough, with the upper valley areas being the most deprived. The area suVers from a high deprivation rate and has an unemployment rate of over 6.1%. 1.8 Much work is being done to address this situation and the Community Development team is currently supporting the implementation of the Communities First programme for Rhondda Cynon Taf. Communities First is a programme of change proposed by the Welsh Assembly in response to concerns regarding the lack of facilities and good quality services available to those living in some parts of Wales. Monies for the 100 most deprived electoral divisions in Wales have been set aside. Rhondda Cynon Taf has 17 of these electoral divisions in which 80,000 people or a third of the population of the County Borough live, and it is those who will benefit directly from the initiative. However, it is anticipated that sustainable improvements to areas eligible for Communities First support will bring benefits for all residents within Rhondda Cynon TaV either directly or indirectly. 1.9 The Welsh Assembly has approved £7.5 million to develop capacity building and initial community action plans for each of the wards. The process will be facilitated by the Communities First Co-ordinators and will endeavour to strengthen services and attract resources. They aim to provide a point of reference for Communities First partnerships regarding operational issues and practical implementation issues. The fund forms the cornerstone of a 10-15 year plan that aims to tackle the core problems that are the root causes of deprivation. Poor health, unattractive surroundings, low levels of economic activity, poor access to financial services, crime and anti-social behaviour and social exclusion, are some of the key themes that the community partnerships will be tackling. 1.10 The community partnerships will be made up of local people, community and voluntary organisations, local businesses and public sector bodies such as the Police, Local Health Boards and the Local Authority will undertake the planning, decision-making and facilitate the implementation of the programme. Communities First is not an end in itself, but provides a framework to tackle disadvantage and enable positive change at a local level. Welsh Affairs Committee: Evidence Ev 337
1.11 In addition to Communities First initiatives Rhondda Cynon Taf County Borough Council also has a regeneration strategy which represents the framework for improving the economy of the area between 2004 and 2014. Its aims are to analyse our economic and social context and set out the action areas that will shape the development of the economy over the next 10 years. Rhondda Cynon Taf County Borough Council and its partners are currently developing a series of action plans, which form the practical elements of delivering this strategy. 1.12 The South Wales Police Authority provides policing in the County Borough. In command of the division is Chief Superintendent Brian Greaves supported by Superintendent Sue Hayes. It is divided into six sectors, Rhondda Fawr, Rhondda Fach, Cynon North, Cynon South, Pontypridd and Talbot Green. 1.13 At present there are 393 police oYcers and 126 police staV working within the division. The oYcers are deployed in various roles with the greater proportion committed to uniform patrol that includes 42 Community Beat OYcers who provide a dedicated community presence. 1.14 The division has established three Communities First policing teams. The teams are based at Tylorstown in the Rhondda, Rhydyfelin in Taf Ely and Fernhill in the Cynon Valley. This division has committed a higher proportion of oYcers to Community First policing than any other division and reflects a strong commitment to community policing and the Community Safety Partnership. 1.15 The division currently has fifteen Police Community Support oYcers who are working in the community to help tackle anti-social behaviour, neighbourhood nuisance and environmental issues. The oYcers are jointly funded by the South Wales Police Authority and the Local Authority, who provide 33% of the funding requirement. They work within targeted patrol areas to provide a visible and accessible uniform presence and are managed by police supervisory oYcers. In the near future this figure will increase as part of the overall expansion of PCSO numbers recruited to South Wales Police. 1.16 Supporting the drive to increase visibility and improve public reassurance, the Local Pontypridd and District NHS Trust have part funded the establishment of a PCSO post to be permanently deployed at the Royal Glamorgan Hospital, in Llantrisant. 1.17 In addition to response and community oYcers, the police division also has oYcers working in a number of support areas. These include, the Criminal Investigation Department, the Community Safety Department, which covers such areas as Licensing, Emergency Planning, Community and Race Relations, Crime Prevention, Anti Social Behaviour Management and the All Wales Schools Programme. Other support areas include, a criminal justice department that deals with major and minor process, criminal case progression, witness management and CPS liaison. 1.18 Over the last eighteen months there have been 20,578 crimes reported in Rhondda Cynon Taf, a reduction of 10%. The police division has an overall detection rate of 32%, which compares favourably with other Basic Command Units in our BCU family group (see annex i). 1.19 Police in Rhondda Cynon Taf deal with an average of 93,081 incidents per year which equates to an average of 255 per day, 10.6 per hour or 236 incidents per oYcer per year.
Chapter 2
Historical Development of Partnership Working 2.1 When reviewing the historic and area profile of Rhondda Cynon Taf and the levels of deprivation, it would be easy to make an assumption that the levels of crime and anti-social behaviour would be relatively high. Some comparisons could be made with areas in the industrial north of England where communities had developed and prospered with heavy industry and suVered considerable levels of deprivation with the demise of the coal and steel industries. 2.2 The statistical comparisons, however, do not support the assumption and the area has a significantly lower level of reported crime across many of the classifications. The reasons could be many and varied, from a higher level of tolerance to crime to more inert and culturally developed crime prevention measures. 2.3 The more obvious reason seems linked to a culture and community spirit that is not prepared to tolerate excessive criminal or anti-social behaviour along with the fact that the geographic structure of the area does not encourage travelling criminals. 2.4 Prior to the inception of the Crime and Disorder Act 1998, partnership working in the area existed on an ad hoc and disparate basis. This was largely due to the reorganisations within local government and police service to align themselves in preparation for forthcoming changes. There was a lack of strategic direction for the partnership work that was taking place on a localised basis, particularly between local crime prevention panels, the police and some local authority departments such as housing. The implementation of the Crime and Disorder Act gave scope for a strategic vision and concerted focus on local issues through the first three year strategy it instigated for 1999–2002. 2.5 The Crime and Disorder Act 1998, as amended by the Police Reform Act 2002, sets out statutory requirements for responsible authorities to work with other local agencies and organisations to develop and implement strategies to tackle crime and disorder and the misuse of drugs in their area. These statutory Ev 338 Welsh Affairs Committee: Evidence
partnerships are also known as Crime and Disorder Reduction Partnerships (CDRPs) or, in Wales, as Community Safety Partnerships. The responsible authorities are the police, local authorities, fire authorities, health authorities in Wales and the probation service. 2.6 The first audit and three year strategy sought to focus attention on three main categories of crime namely burglary, autocrime and violence and was very closely aligned to key national policing priorities. A high level of focus was also given to drug and alcohol abuse as well as coming to terms with national bidding processes and the allocation of small amounts of finance to be managed within the partnership framework. 2.7 The Youth OVending Team was established and after some initial diYculties associated with cross agency contribution, working arrangements soon became established with the contributing agencies quickly realising the significant benefit of co-located and integrated working practices in youth justice. 2.8 Much was achieved in the first three years with many targets being met, but probably the greatest achievement was binding a number of statutory and voluntary agencies into a workable plan with joined up objectives. As the partnership became more sophisticated and with the information obtained from the 2002 audit, the new strategic plan (2002–05) was formulated. The focus of the plan was to concentrate on six key themes with each theme being assigned to a lead oYcer for implementation. An action plan with key objectives was set for each theme and an Implementation Management Group (IMG) was set up to monitor performance at scheduled three monthly meetings. (A copy of the quarterly report for April–June 2004 is attached as annex ii (not printed)). 2.9 In addition, a decision was taken that the Chair of the Strategic Leadership Group (SLG) should be shared by the Chief Executive and the local divisional police commander. The SLG was formulated on the thirds principle with an equal proportion of positions on the group shared between the public sector, private sector and the voluntary sector. 2.10 Realistic and achievable first year targets were set by the SLG and agreement was reached to review performance on an annual basis, with second and third year targets being set as part of the process. The target setting was closely aligned to local priority and need but also taking account national targets and objectives set for the police and the Youth OVending team. 2.11 The six themes of the current strategy will be outlined in greater detail in the next chapter of the report, but a significant achievement has been realised in the development of the partnership that requires an early mention. 2.12 In January this year, the first multi-agency co-located Community Safety partnership unit was established in the area. As part of innovative project, a police Chief Inspector has been given day to day management responsibility for a number of cross agency staV including the fire service, local authority, health and the voluntary sector. With integrated working practices and access to computer data from the contributing agencies, more eYcient and eVective application can be given to issues such as emergency planning, licensing, crime and fire prevention and reduction, trading standards and community and race relations. (see annex vi for a photograph and profile of the building not printed)). 2.13 An interesting and significant element of the initiative is that the drive to co-locate came from staV working at the front line of the key agencies. With the support of the SLG, the local authority, South Wales Police and perhaps more importantly the Regional Crime Director for Wales, the aspiration was realised. 2.14 The unit is also co-located with the Child Protection teams and the Youth OVending team occupies the upper floor of the modern well-equipped building. The arrangements are already reaping significant benefits in respect of early identification of problems, prioritisation of workload and staV commitment, clearer communication and collaboration and economies in service output. 2.15 The unit is supported by a small administration team and includes a finance oYcer. The partnership through a number of budget streams has control of a budget of nearly £2 million. In addition, the partnership employs a media and marketing oYcer whose work is focused on providing support to all contributing partners and improving public reassurance through promoting the work of the partnership.
Chapter 3
Community Safety Strategy (2002–05) 3.1(i) We are currently coming to the end of our second three-year strategic plan. The format of the plan was underpinned by an audit and a consultation process that identified the following main themes around which our action plans have been developed. The key themes are property crime, violent crime and disorder, reassurance, young people, substance misuse, and environment, traYc and road safety. Each has a theme leader from a diVerent partner agency, to co-ordinate and monitor the development and delivery of agreed and detailed action plans. The plans are reviewed every three months to ensure that delivery and progress is achieved and a current position statement is produced. 3.1(ii) More recently, the Partnership has produced the first Substance Misuse Strategy for Rhondda Cynon Taf, which is now being implemented on a multi-agency basis, through the Substance Misuse Action Team (SMAT). Welsh Affairs Committee: Evidence Ev 339
3.1(iii) Work is currently underway in preparing the next three year Community Safety strategy, (for the period 2005–08), again based on a comprehensive audit of local need and a public consultation exercise to assist in determining priorities for action and targets for improvement. It will also take account the national policing plan and the national intelligence model principles. 3.1(iv) It is important to note that many of the initiatives we have developed in response to the above often impacts on more than one theme. For example, Operation Cubit targets the removal of abandoned vehicles through funding secured from the arson control forum but also impacts on the environment, traYc and road safety, property crime and reassurance themes. 3.1(v) The following examples seek to highlight the main initiatives are in no way exhaustive and are supplemented by a variety of other work across the partnership, too numerous to list in the confines of this report. 3.1(vi) The examples set out to illustrate how the Rhondda Cynon Taf community safety partnership contributes to a problem orientated partnership approach to tackling crime and disorder. We must not forget that relevant to every aspect and in addition to what follows, a focused intelligence led policing response is applied via the national intelligence model and tasking and co-ordinating meetings that focuses police deployment and enforcement. 3.1(7) No strategy exists in isolation and the community safety strategy must be considered in line with other interwoven strategies. Copies of the 2002 Community Safety Audit, Strategy and Action Plans can be viewed by clicking on the links below. (a hard copy of the report is attached as annex vii (not printed)) http://www.rhondda-cynon-taV.gov.uk/communitysafety/ACTIONPLAN26.6.pdf http://www.rhondda-cynon-taV.gov.uk/communitysafety/Comm—safety—strategy.pdf http://www.rhondda-cynon-taV.gov.uk/communitysafety/Exec—summary.pdf
3.2 Property Crime 3.2(i) The property crime theme is jointly led by the project managers of the three crime prevention panels, the spokesperson for which is Mr. Vince Price of the Cynon Valley crime prevention panel. The key objectives of the theme are designed to reduce house burglaries and help people feel more secure in their homes and to reduce vehicle related crime and the level of arson. 3.2(ii) In order to meet these objectives the partnership has a range of activities. Key amongst these is the target hardening of dwelling houses and vehicles throughout the County Borough. 3.2 (iii) The partnership recognises the impact of dwelling house burglaries, both on the individual and on the community. To address this they have introduced the Protect and Rectify scheme. This is a service provided by the three crime prevention panels who oVer victims of crime and vulnerable sections of the community a free and comprehensive crime prevention survey and installation of crime prevention devices. They will fit free locks to doors and windows, door chains and timer switches, “Memo Minder” alarms to combat distraction burglaries. PIR lighting, burglar alarms, personal attack alarms and carelink alarms to premises. In addition and through a variety of funding sources they also supply smoke detectors, carbon monoxide detectors and low energy lightbulbs. 3.2(iv) Although decreasing, the incidence of vehicle related crime in the area is of concern to the partnership. In order to attack this we have introduced the Secure Auto Scheme. The scheme is funded through finance provided by the BCU fund. Rhondda Cynon Taf has a particular problem in this area as the majority of vehicles are over eight years old and consequently have little or no security items when compared with newer vehicles. This combined with the lack of oV street parking throughout the County Borough makes the area prone to a higher than average level of car crime. To the combat this the Secure Auto Scheme was initiated whereby a vehicle technician has been employed full time to attend at a time and location of the owners choice to provide a comprehensive crime reduction survey of the owners vehicle and free of charge, fit a variety of crime prevention devices. The average cost of this service per vehicle is £30.00. In addition to these free items the technician will if requested supply and fit items such as alarms, immobilisers and steering locks at substantially reduced prices to the market norm. 3.2(v) The partnership recognises the value of an eVective property-marking scheme and provides property marking for mobile phones and laptops, personal computers and pedal cycles together with the use of “SmartWater” marking for certain items. Each police oYcer in the division has been supplied with an ultra violet light key ring to assist in the identification of stolen property. This is extensively promoted through roadshows held throughout the year around the area at which many partner agencies are represented.
3.3 Violent Crime and Disorder 3.3 (i) The theme leader for violent crime and disorder is Inspector John James, the Community Safety Inspector for the police division. The key objectives in this theme are to reduce violence in streets and public places and to increase reporting of domestic violence. Furthermore, to increase the number of arrests for domestic violence, to increase the detection rate for hate crime and to reduce the number of people who Ev 340 Welsh Affairs Committee: Evidence
become repeat victims. The activities of the partnership have had a considerable success in reducing the instances of violent crime and disorder. However, it must be pointed out that the eVects of the initiatives have been influenced by changes in the recording and classification of violent crime which took place after the commencement of the current plan. To achieve this reduction the partnership has engaged in a number of initiatives. 3.3 (ii) We recognise that many incidents of violence are alcohol related and emanate from inside or around licensed premises. To combat this we have a number of “Pubwatch” schemes operating in the area. Local licensees share information through a radio system and operate a total banning system, whereby violent or aggressive customers are banned from all licensed premises operating the scheme. This has reduced instances of violence in licensed premises and the surrounding locality. Also in the licensing arena the partnership insists on the installation of CCTV in all licensed premises as part of the application process. This has helped reduce instances of violence at these locations. 3.3(iii) The appointment of a domestic violence co-ordinator, together with increased training of police oYcers, and awareness from the domestic abuse forum have increased confidence in the response to domestic abuse and has increased reporting well in excess of the goals set in the plan. The target of a 5% increase in reporting has been exceeded by 23% and a substantial improvement in the arrest rate has also been obtained. 3.3(iv) Working together with the health professionals the partnership introduced the “Safe Haven” scheme. The scheme is aimed at reducing instances of violence and aggression toward health care professionals by removing problem patients from doctor’s surgeries and having the treatment provided at local police stations, using medical facilities in the custody suite. This is operating eVectively in the area and has reduced assaults and intimidation on staV. 3.3(v) A number of initiatives have been utilised to tackle the problem of hate crime. These include the appointment of a full time dedicated police oYcer, and the revamping of the Community and Race Relations forum into a much more dynamic and representative group. Part of this included the creation of the EBV (Ethnic Business Voice) which represents the local minority business community who are disproportionately eVected by hate crime. 3.3(vi) We are currently working with the Regional Crime Director’s oYce to ensure that we maintain an appropriate response to the most serious violent crime, around preventative measures that could be considered and the police response.
3.4 Reassurance 3.4(i) The theme leader for reassurance is Mr Tony Key OBE, Community Safety oYcer for the County Borough Council. The key objectives in this theme are to dispel myths and fears about crimes against the person and property and to raise the profile of the Community Safety Partnership within Rhondda Cynon Taf. Furthermore, to ensure a co-ordinated approach to the many factors that degrade our community and to develop a sense of belonging and ownership within each and every community. Again there a number of activities aimed at addressing these issues. 3.4(ii) As a service delivery platform, the partnership has established a new role of “Crimewatch Coordinator”. There are three area crime watch coordinators whose duties are to liaise with the public and the South Wales Police via the Neighbourhood Watch network and act as communicators in the dissemination of information amongst our communities. Two of the co-ordinators work from police stations and are in close contact with the crime prevention oYcers of their designated areas of Rhondda and Cynon. The coordinator for the Taf Ely area is based at the new Integrated Community Safety Partnership OYce. The coordinators have been extremely successful in promoting the concept and since January 2004 have increased the number of watch schemes throughout the area by 112%, resulting in a total of 210 active schemes. 3.4(iii) The division has created three Communities First Policing teams, based at Tylorstown in the Rhondda, Rhydyfelin in TaV Ely and Fernhill in the Cynon Valley. The division has committed a higher proportion of oYcers to community first policing than any other division and reflects the commitment to community policing and the community safety partnership. The division currently has 15 police community support oYcers who are working in the community to help tackle anti-social behaviour, neighbourhood nuisance and environmental issues. These oYcers are jointly funded by the South Wales Police Authority and the Local Authority. In the near future this figure will increase as part of the overall expansion of PCSO numbers recruited to South Wales Police. In addition to these the Local Pontypridd & District NHS Trust are part funding the establishment of a PCSO post at the Royal Glamorgan Hospital, Llantrisant. 3.4(iv) The work of the partnership is promoted by a community information service that feeds several large screens situated in key public access areas delivering community safety initiatives and messages. In addition, the partnership has an agreed media strategy and partnership funding has been used to employ a marketing and media oYcer whose role is to promote the good work undertaken. Welsh Affairs Committee: Evidence Ev 341
3.4(v) The partnership has developed a robust reporting and monitoring process in their response to complaints of anti-social behaviour. This is supported by inter agency staV working closely to implement eVective interventions in identified patterns of anti-social behaviour. The process adopted by our partnership was used as a template for the remainder of the South Wales Police area. (See annex iii(not printed).
3.5 Young People 3.5(i) The theme leader for young people is Ms. Elspeth Wynn, of the Youth OVending team. The key objectives in this theme are to increase attendance in primary and secondary schools and to reduce the number of young people in oVending. Furthermore, to improve the support and services to young victims of crime, to provide an eVectively co-ordinated programme of diversionary facilities for young people and to reduce the impact of substance misuse on the health and well being of young people. 3.5(ii) The partnership recognises that many young people are at risk of oVending or are the victims of crime. These young people often experience multiple stresses such as the lack of family support, school failure, few qualifications or training, poor job opportunities, health issues, homelessness and relevant support. This often results in anti social activities and substance misuse. To address these issues the partnership has a co-ordinated response to young people’s issues. 3.5(iii) Rhondda Cynon Taf is fortunate in having one of the most eVective Youth OVending teams. A multi-agency approach to making communities safer has proved successful particularly in relation to working with young oVenders and those at risk of committing a crime for the first time. The youth oVending teams’ annual plan evidenced that since 2001 the total number of young people committing oVences had fallen by 5.9%, which was substantially above the national figure. Of 154 councils across England and Wales, the youth oVending team has performed well in the Youth Justice Board league tables coming joint first in two of the annual measures, prevention and recidivism. These positive results have been achieved by having excellent working partnerships with a range of agencies and providing innovative programmes of intervention that are tailored to meet individual needs and circumstances. (For a detailed account of all programmes, see annex iv (not printed)). 3.5(iv) Through WAG funding the partnership has established six schools community police oYcers. These oYcers deliver an agreed core programme covering substance misuse, social behaviour, communities and safety. They are deployed between all 19 secondary and feeder primaries within the County Borough. 3.5(v) The partnership has the services of the Safety Zone. This is a unique facility and the only one of its kind in Wales, at this time. (There are a wide range of initiatives held at the building some of which are shown in annex v (not printed)). 3.5(vi) An excellent example of working with young persons is the PUPIL project in the Cynon Valley. The initiative, which has won national awards, is aimed at encouraging young people to identify social, environmental and crime related problems relative to them and their locality and formulating solutions. The intention is to extend this award winning scheme throughout Rhondda Cynon Taf.
3.6 Environment, TraYc and Road Safety 3.6(i) The theme leader for this area is Mr Bob Haines of the TraYc Management department of the Rhondda Cynon Taf County Borough Council. The key objectives in this theme are to reduce road casualties in accordance with national reduction targets and to improve the environment by provision of services to residents throughout the County Borough. 3.6(ii) The initiatives include the Mega Drive project, a pre-driving experience aimed at 16 year olds from all comprehensive schools, and includes safety aspects, examining the consequences of crime, the value of first aid and the driving abilities of the participants. There are nine individual agencies involved with sponsorship including Vauxhall Motors and HSBC Bank. 3.6(iii) Concerns for the safety of pupils and other road users along with the providers of school transport, is an issue being addressed by the partnership. The “Safer School Buses Initiative” is at the forefront of the partnership response. Following a number of tragic incidents involving school buses, the partnership introduced the initiative aimed at reducing accidents and incidents of bad behaviour on school transport. The thrust of the initiative is a multi-agency carousel of information and advice delivered at morning disembarkation and prior to assembly, that is being delivered to all secondary schools in the County Borough. 3.6(iv) The problem of abandoned vehicles in the borough is again an issue that is of concern to the partnership. As a result there is a multi agency approach aimed at removing abandoned vehicles throughout the County Borough. This initiative is funded through finance obtained from the arson control forum. During a four week exercise 91 vehicles were removed from the streets of Rhondda Cynon Taf and further exercises are planned. Ev 342 Welsh Affairs Committee: Evidence
3.6(v) The Community Safety partnership is a key player in the Safety Camera partnership. There are a number of fixed and mobile camera sites aimed at reducing road traYc collisions and injuries at high-risk locations. The partnership has also established the Road Management Monitoring Group, a multi-agency group whose purpose is to respond to and address emerging issues relative to the theme. 3.6(vi) The partnership recognises the value of Secure Car Parks throughout the County Borough. To this end seven car parks have been awarded this status and we are working toward achieving this status for another two car parks. 3.7 Substance Misuse (i) The theme leader for substance misuse is Sharon Jeynes, of the Rhondda Cynon Taf Local Health Board. The key objectives in this theme are to improve the rehabilitation and treatment services available to people with substance misuse problems and through enforcement of the law reduce the availability of illegal substances in Rhondda Cynon Taf. Furthermore, by the use of education and prevention to encourage the active participation of local people in helping us to tackle substance misuse and its causes and to protect our communities from anti social and criminal behaviour linked to substance misuse. (ii) This is a particularly challenging area, given the rise in availability of Class A drugs in Rhondda Cynon Taf. Over the last few years there have been twelve recorded drugs deaths in the Rhondda and at present there are 277 patients actively seeking help from the NHS throughout Rhondda Cynon Taf. In recognition of the problem the WAG has provided funding of 500K to create, the Rhondda Integrated Substance Misuse Service (RISMS) aimed at addressing substance misuse issues in the Rhondda. (iii) Another notable initiative is Operation Tarian!. This is the South Wales Police response to an anticipated increase in crime around drugs, gangs, and firearms. Tarian was established as a preventative response to the potential for an increase in cross-border activity centered around organised crime. As a result of this initiative we have not experienced the increase in drugs and gun related crime and gang warfare that has been identified in other police force areas. (iv) Tarian! has also encouraged and supported the FADS initiative, a group of parents in the Cynon Valley, who have formed a self help group. The group was started by mothers, whose children were drug users. (v) An additional measure is the establishment of arrest referral workers who are based at custody suites of the primary police stations. All detainees are oVered the services of a drug counsellor. If the oVer is accepted individuals with specific substance misuse related problems are then referred to appropriate agencies/workers for treatment, support or rehabilitation. (vi) The partnership has produced a substance misuse strategy that has been endorsed by WAG. It is aimed at encouraging local agencies to combine their eVorts in a way that is to everyone’s long term benefit by improving the quality of life locally of all those who are touched by substance misuse.
Chapter 4.
Achievements 4.1 In January 2004, the new Integrated Community Safety Service was launched at Fairway Court in Treforest. (see annex vi for a photograph and profile of the building (not printed)). This brings together staV from the South Wales Police, Local Authority Community Safety team, Education, Children’s Services (including the Youth OVending team), the Health Service, South Wales Fire and Rescue Service, and the local Crime Prevention panels, under a single point of management and co-ordination. The service is the first of its kind in the UK and has already attracted considerable interest, from the Home OYce and Cabinet OYce, amongst others, as an innovative model of good practice, with obvious benefits in terms of improved service delivery. 4.2 The partnership has been successful in attracting external grant funding (of over £2 million a year), which has enabled it to extend its activities, and to introduce a range of innovative new projects in our local communities. The partnership is the first in Rhondda Cynon Taf to operate with a pooled budget, and with resource allocation decisions being taken (annually) by the strategic leadership group. It is also the first to receive regular (quarterly) detailed performance monitoring reports. 4.3 More importantly, there is clear evidence that the partnership has been successful in reducing levels of local crime, and in increasing public reassurance, making Rhondda Cynon Taf one of the safest area to live in South Wales. The latest crime figures indicate a significant improvement in crime reduction. — House burglary has reduced by 23% — Auto crime has reduced by 13% — Violent crime has reduced by 3% — Overall reported crime has reduced by 10%. Welsh Affairs Committee: Evidence Ev 343
4.4 The crime audit is progressing along with a public consultation exercise, the results of which will allow the partnership to gain a better understanding of the success or otherwise of the six themes. Early indications of priorities for inclusion in the next three years plan include the management of anti-social behaviour, domestic violence, and crime against businesses, as well as to target prolific and persistent oVenders.
Chapter 5
Next Steps
5.1 The Rhondda Cynon Taf Community Safety Partnership has developed since its inception in 1998 into a strong and eVective strategic partnership that is continually reviewing the way it works so that it can become more eVective and responsive to the needs of the community it represents. It recognises that the strategic focus is Home OYce driven through key documents such as the Home OYce Strategic Plan 2004–08 and the annual National Policing Plan. We also recognise that by working with the community and partners we will establish local priorities and local joined-up solutions. We understand that the role of the partnership is to harmonise national requirements and local requests. 5.2 There is now an obvious expectation placed on partnerships to be the deliverers of emerging projects and initiatives, such as the recent Prolific and Priority OVenders strategy. It is therefore important to recognise that for future self driven and imposed initiatives to succeed, there is an absolute need for the partnership to be supported by an eVective administrative infrastructure and appropriate funding. 5.3 Areas for partnership development include further co-location of key partner staV involved in the delivery of the next three year strategy to support and progress emerging issues, such as a more co-ordinated approach to licensing. The expansion and modernisation of the Safety Zone will further broaden its contribution to community engagement, particularly with hard to reach groups. Moves are also afoot to expand the reporting capability for anti social behaviour by providing a dedicated twenty four hour hotline for public referrals of such complaints. The partnership is supporting a restructure of the domestic abuse forum to focus its activity in line with the key objectives of the violent crime theme and to monitor their activity against identified actions and targets. There is a recognition that business/retail crime will have a part to play in the forthcoming three year strategy and in anticipation the partnership is embarking on a retail crime initiative to address problems around the day time and night time economies. We also recognise the need to have more eVective joint information sharing IT systems and are working towards the development of a partnership database, underpinned with analytical support which will make more eVective use of information held by all partners in problem solving and strategy planning. Brian Greaves Chief Superintendent, South Wales Police Service, Crime and Anti-Social Behaviour in Wales 6 December 2004
Annex I
NATIONAL PERSPECTIVE OF BCU FAMILIES
BCU Crimes per 1,000 Residents
Durham—North Durham 19.2 South Wales—Rhondda 20.4 Kent—Medway 22.6 Cleveland—Stockton 23.3 Cleveland—Langbaurgh 24.9 Wiltshire—Swindon 26.0 South Wales—Merthyr 26.6 South Wales—Swansea 27.1 West Yorkshire—Calderdale 27.4 Lancashire—Eastern 28.1 Lancashire—Penine 29.9 Greater Manchester—Bolton 30.2 Thames Valley—Milton 32.4 Gwent—Newport 39.2 Ev 344 Welsh Affairs Committee: Evidence
13. Written evidence from the Bridend Community Safety Partnership—“Safer Bridgend”
POLICE SERVICE, CRIME AND ANTI-SOCIAL BEHAVIOUR IN WALES INQUIRY
1. Introduction 1.1 I am Chief Executive of Bridgend County Borough Council and have held that position since the inception of the Authority in 1995. My curriculum vitae is attached as Appendix 1 (not printed) . Also I am the identified spokesperson on Community Safety issues for Welsh Chief Executives (Solace Wales). 1.2 The Bridgend Community Safety Partnership (“Safer Bridgend”) was set up in 1998. This was a response to the requirement of the Crime & Disorder Act 1998 to eVect joint partnership working to discharge the requirements of that legislation.
2. Background 2.1 Safer Bridgend covers the geographical area co-terminus with the administrative area of Bridgend County Borough Council. A brief profile of the County Borough is attached in Appendix 2 (not printed). This is also accompanied by a map of the County Borough. 2.2 The composition of the Safer Bridgend Partnership is shown in Appendix 3 (not printed). The Partnership has recently revisited the content of its membership and it has been decided that private sector, ie business, representation will be invited to join the Partnership in the New Year. 2.3 Safer Bridgend is a combination of the Community Safety Partnership and the Youth OVending Steering Group. At the inception of the Partnership these were separate and distinct, however the commonality of issues led to these two groups coming together under the auspices of Safer Bridgend. A typical agenda for a Partnership meeting is shown in Appendix 4 (not printed).
3. Objectives 3.1 One of the principal objectives of Safer Bridgend is to publish and discharge a Crime and Disorder Strategy. This Strategy is based on a crime audit to establish eVectively the target areas of the Strategy based on local circumstances. The current Strategy extends from 2002–2005 and has the following key aims: — Crime Safe: — burglary — auto crime — arson — violence — criminal damage
— Street Safe: — youth annoyance/crime — substance misuse — CCTV — public events — neighbourhood renewal — disorder/town centre night time economy — road safety — Developing the Partnership: — membership/public image, identity and links — co-ordination — information development and exchange 3.2 The Partnership is now preparing its Crime and Disorder Reduction Strategy for 2005—08. In these respects a further crime audit is being conducted assisted by other associated activities. In specific terms on 6 December the Crime and Disorder Strategy Consultation Day is being held, attended by a wide spread of Partner agencies and groups. This is being conducted on the basis of set topics, eg anti-social behaviour etc, and will assist in the audit process. The new Strategy will be published in the spring of next year. The Partnership mission statement is: “To make Bridgend County Borough a safer place to live, work, visit and invest.” Welsh Affairs Committee: Evidence Ev 345
4. Structures 4.1 As already stated, Safer Bridgend embraces both the Community Safety Partnership and the Bridgend Youth OVending Team (YOT). The YOT Manager is also directly responsible to myself as Chief Executive of the Local Authority. 4.2 The Partnership is comprised of: The Executive/Strategic group: — meets quarterly — is chaired by myself (the Police Divisional Commander is vice-chair) — is comprised of senior management in Partner agencies — signs oV budgets — sets strategy and policy — monitors, reviews and evaluates the performance of the Partnership The Operational Group which: — meets monthly — is chaired by the Divisional Commander — determines strategy co-ordination and funding contributions — formulates bidding strategies — determines interventions and matters of co-ordination — undertakes the evaluation and monitoring of task group activity and the performance management of strategic objectives.
5. Staffing Support 5.1 The Partnership is supported by the following “key workers”, funded by the Partnership: — A Partnership Co-ordinator — An Anti-Social Behaviour Reduction Co-ordinator — A Domestic Abuse Co-ordinator — A Young Person’s Anti-Social Behaviour Support Worker — A Victim/OVender Mediation Worker
6. Funding Sources 6.1 The Partnership is funded via the following funding streams: — Basic Command Fund (BCU) — Safer Communities Fund (SCF) — Building Safer Communities Fund (BSF) 6.2 The Bridgend YOT is funded through both Youth Justice Board grant and contributions from Partner agencies. The key partners are the Local Authority, Police, Probation and Health. 6.3 CCTV has a high prominence in the County Borough of Bridgend, an aspect that is dealt with later. The acquisition of CCTV equipment is a combination of Home OYce grant and Local Authority activity (including some Town & Community Councils). The revenue costs of CCTV falls totally on the Local Authority. 6.4 Partnership oYce: — It is the intention of the Partnership to secure oYce accommodation. Intendedly this will be in the town centre of Bridgend. — The aspiration is to include within a singular location not simply the presence of the Partnership personnel but also those of other agencies working closely to the objectives of the Partnership. Hopefully these will include colleagues in the Children & Young People’s Partnership, Police, and possibly personnel from the National Probation Service and South Wales Fire and Rescue Service. Discussions are well advanced in these respects and it is earnestly hoped that accommodation can be secured in the early part of the New Year. — It is envisaged that such premises will both enhance and project the image of the Partnership within the locality. It will also assist and enhance the development of Partnership working. Ev 346 Welsh Affairs Committee: Evidence
7. Progress and some Achievements
7.1 Crime Reduction Local authority and police have co-terminus boundaries in the 39 wards that make up Bridgend County Borough. For policing purposes the county is further divided into three sectors these are. — Bridgend—Consists of large estates and town centre. — Maesteg—Valley communities/isolated/higher deprivation. — Porthcawl—Transient population/older population. Crime & Disorder Performance figures for Bridgend County to the end of November 2004 are in the top echelons nationally in terms of performance and culture. A comparison of performance for the same period 2003–04 compared to 2004–05 indicates that overall crime is set to drop by 14.5%. — Reductions of 9.9% for Violence against the person—these are oVences like assaults/ABH/ GBH. — Robbery down by 14.3% — Overall violent crime down by 8.3% — Burglaries of peoples homes down by a massive 40.6% — Burglaries of other premises down by 29.1% — Theft of motor vehicles down by 25.4% — Theft from motor vehicles down by 6.9% — Overall Vehicle Crime down by 13.8% — Theft oVences down by 9.1% — Fraud & Forgery OVences down by 23.4% — Criminal damage down by 15.7% With regards to sexual oVences, figures show an increase of 33.3%. This is due the fact that mainly all of these types of oVences are detected crimes. The same must be said of a 71.8% rise in respect of Drug TraYcking oVences, which again are by the very nature of the oVence all detected crimes exhibiting good levels of performance in detecting and prosecuting such oVences.
7.2 Initiatives The Partnership is fully of the view that the sustainability of crime reduction in Bridgend can only be achieved through eVective Partnership working. This is illustrated by a number of eVective interventions/ initiatives which the Partnership has taken forward with colleague agencies. — The Schools Co-Programme—This is now fully implemented into the All-Wales Schools Initiative. It facilitates three full-time dedicated Police OYcers delivering important messages within the school environment on drugs awareness, personal safety and crime prevention. — “Get Active”—This is delivered through the Council’s Youth Service. It targets disengaged young people between the ages of 11—25 initially from the areas of Llynfi, Ogmore and Garw valleys and areas of Pyle, Kenfig Hill and Cornelly. Additionally the “Streets Sports Programme” will begin shortly to operate in the areas of Wildmill, Brackla and Cefn Glas placing particular emphasis on targeting young people with disability or special educational needs. — Communities First Policing Team—This is one of the first of its kind and has relocated specifically to work operationally from Bettws Primary School. — Community Policing—Resource commitment has been aVorded to the establishment of both Community Police OYcers and Partnership funded Police Community Support OYcers. Policing in the community is seen to be an important visible message in combating crime and disorder. At Junction 36 on the M4 is sited the McArthur Glen Retail Outlet Centre and Sainsbury’s supermarket. The Outlet Centre draws millions of visitor numbers in the course of each year. Sadly high crime levels have followed. A Community Police Station has been established in the Sainsbury supermarket aVording an on-going Police presence at the trading centre. This has provenly reduced crime figures and is a visible demonstration of Police and Partnership support to sustain the local business community. — Youth Works—Wildmill housing estate, Bridgend. This housing estate was experiencing high levels of crime and complaints of anti-social behaviour. Understandably these were significantly aVecting the general quality of life on the estate. The project was set up and aimed to tackle the cost of these problems and to engage young people in a constructive environment. The scheme was led by the Bridgend YOT and local housing association supported by voluntary groups and the presence of Police Community Support OYcers. Since the project commenced youth annoyance has been reduced by 48% over the period 2002–03. Welsh Affairs Committee: Evidence Ev 347
— “Positive Futures” Youth Services—This is a national sports based social inclusion programme managed within the Home OYce Drug Strategy Directorate. It includes a range of agencies encompassing Council, Communities First, Groundwork, Youth Works. The voluntary sector and sports club lead in this project and engage young people between the ages of 10–16 who are at risk of oVending and drug use. — Youth Disco—This is an intervention which takes place in the “Fluids Nightclub” in Maesteg and “Sax Nightclub” in Bridgend. It engages large numbers of young people. They are supervised by Police, club staV, youth workers and trading standards. It allows up to 1,200 young people between the ages of 14–17 to engage in a nightclub environment during set hours in an alcohol free environment. The drinks dispensing areas are covered up as are all alcohol related advertisements. A police patrol takes place outside the premises to ensure that parents are able to park directly outside and to pick up at a designated point. — CCTV—There are currently 154 cameras operating in the County Borough. This includes 40 cameras covering main town centres of Bridgend, Maesteg, Porthcawl, Pencoed. Over 60 cameras covering Town centre car parks and park and ride centres. There are a 16 static cameras installed at the Ogmore Vale Comprehensive school which react to a movement sensor to provide out of school hours security. The new Bridgend Bus Station has 24 cameras installed, some moveable and some static. The service provided by the CCTV Unit is extended to cover the three emergency SOS help button points which allow direct communication to an Operative. Cameras record 24 hours a day seven days a week equivalent to over one million hours of recorded footage each year. There are currently 85 monitors, 66 full screen and 17 quads (four pictures on screen) plus rotating pictures on some screens for cameras such as Ogmore Vale Comprehensive. Two monitors link directly into the Police HQ. The unit has eight full time operatives, two part time and a pool of casual workers. There are two Operatives on each shift with a third Operative on Friday, Saturday and Sunday night. Operators work a 12-hour shift pattern. Monitors are also being installed at Morien House where oYcers will be able to monitor the flow of traYc in the borough. The Unit is in constant contact with a number of Bridgend stores and nightclubs through the Storenet and Nitenet radio system. Maesteg system will go live in the New Year. The Unit has now been equipped with the Police Airwave radio which allow operatives to communicate directly with the police in an emergency. Last year the Unit recorded over 3,000 incidents, including 1,200 Public Order OVences and 50 serious incidents.
8. Major Objectives 8.1 My evidence so far relates to the broad range of activity undertaken by the Partnership. I would now wish to turn to some specific issues and which I consider to be major objectives and challenges for the Partnership in the immediate future. 8.2 Anti-Social Behaviour—Undoubtedly this will be a major challenge for the Partnership. Although much activity has been undertaken in this area more will need to be done. It is considered however that the solutions, if existing, must certainly be commensurate to the challenges which are faced. Additionally, those solutions must be sustainable and not simply short-termist and partial. There is also a social argument as to a need to have mutual understanding of what is considered to be acceptable or unacceptable behaviour. This in itself is an essential prerequisite to establishing a society of mutual co-existence amongst all age groups. ASBOs are therefore an important tool to be used where appropriate but not simply as a first line of engagement by virtue of which young people could end up being criminalised. In furtherance of these sentiments the Partnership has adopted a four-stage approach of intervention before moving to secure ASBOs through the courts, viz: — Stage 1 letters (800 issued since April 2004). — Stage 2 letters (109 issued since April 2004) together with follow-up visits. — Stage 3 letters (26 issued) and those individuals referred to a problem solving group, out of which five are being monitored on an on-going basis by the Partnership and 21 referred to youth agencies for diversionary intervention. — Two criminal ASBOs have been issued by Bridgend Magistrates’ Court on application. — Key individuals are being monitored to establish whether other ASBO applications should be made. The Partnership therefore at present has high levels of youth annoyance intervention but as yet a low number of actual ASBOs. Recently this has been commented upon favourably by the Chairman of the Youth Justice Board. Ev 348 Welsh Affairs Committee: Evidence
8.3 Priority Prolific OVenders Scheme—Government and the Partnership both recognise that a large number of crimes are committed by a small number of criminals. To target these individuals is, therefore, a Partnership priority. The three stages to the scheme are: — Catch and convict — Prevent and deter — Rehabilitate and resettle The Partnership has already identified key individuals within the scheme and will be furthering the principles of the scheme accordingly. 8.4 Multi Agency Public Protection Arrangements Group (MAPPA)—The Partnership is represented on the above group via the presence of the Partnership Co-ordinator who reports back to the Partnership on MAPPA activity. This group is a multi agency group brought together for both assessing and managing the risk posed by sexual or potentially violent oVenders in our community. The Partnership will continue to support the work of MAPPA and its objectives. 8.5 Related strategies—It is crucial that the work of the Partnership and its published Crime Reduction Strategy interfaces with other strategies with common or similar objectives. 8.6 The multi agency Community Strategy for the County Borough of Bridgend is now in the process of being published. This is led by the Council engaging with material partner agencies in response to the statutory requirements contained within the Local Government Act 2000. EVectively this will determine the form of society which all partner agencies wish to achieve within the County Borough over the ensuing 10–12 year period. In these respects issues of Community Safety and Wellbeing will be high on the agenda. 8.7 In particular the Council will be driving issues of Community Safety into matters of town centre and community regeneration to ensure that it has a high level of presence. It is essential, therefore, that the work of the Partnership and the Crime and Disorder Strategy eVectively supports and links in with not simply the Community Strategy and also with the Health Social Care and Wellbeing Strategy and the Substance Misuse Strategy to name a few.
9. Obstacles to Better and More Effective Working 9.1 Notwithstanding the endeavours and some successes which have been achieved by the Partnership it is considered that there is room for more eVective working and greater achievement. It is both considered and suggested therefore that there are matters of consideration which can be applied at higher levels of authority and which can assist in these endeavours. Some of the principal issues referred to are: 9.2 Funding Arrangements—These have already been described. It is suggested, however, that they can be more simplified and which would assist greatly in terms of forward planning. In addition to simplification, declarations as to future levels of resourcing would also be appreciated. In Bridgend there are many issues which replicate problems which are being experienced on a national basis. However, there are also matters of local circumstance which can be best addressed through local solutions, albeit with national resources and empowerment. The grant funding arrangements appear very much to reflect national priorities but which are restricted in their application to local circumstance. Whilst accepting inherently the need to performance manage and measure outcomes greater elasticity would be appreciated in applying resource streams to local projects. Additionally there are vexing issues as to matters of revenue and capital funding and the transposition of monies between those separate funding streams.
9.3 The legal status of Partnerships (CSPs)—It is considered that there is an inadequate statutory definition concerning the legal status of CSPs and of which Bridgend is one. Increasingly grant and revenue funding resource streams are being directed to Partnerships. However, the locus in quo and legal capacities of Partnerships need to be more fully defined. The current position in a single partner, usually the Local Authority, dealing with issues of contracting and employment, eg holding the contracts of employment for Partnership personnel as referred to and holding the lease of oYce accommodation when acquired. It is suggested that empowerment in the absence of legal capacity is unsustainable and needs to be addressed. 9.4 Partnership Working—I feel confident in saying that Partnership working and the endeavours of Partners in Bridgend are in a high order. However, that does not mean that they cannot be furthered. The key partners within the legislation are Local Authority, Health, Police and Probation. Local Authority and Health are devolved functions, Police and Probation are not. The Fire Service which has an increasingly important part to play in this agenda is moving to devolved status. As Partnership chair and also within an All-Wales context I feel conscious of the disparity of joint working which can arise within this matrix of devolved and non-devolved statutory responsibilities. It is, therefore, respectfully suggested that there could be room for better, more eVective and joined-up agenda setting and resource direction between Government agencies, both devolved and non-devolved. EVectively what is required is national support to resolve local problems. Welsh Affairs Committee: Evidence Ev 349
9.5 Bridgend Youth OVending Team—Bridgend YOT is considered to be a good performer. The YOT work with approximately between 120 and 150 young oVenders at one time. Obviously this fluctuates. It also works with parents and victims within the interventions. It has maintained a good standard on a quarterly basis, mostly coming second in Wales, first in South Wales and in the top 20% UK wide. The YOT takes restorative justice seriously and has seen that involving the victim does indeed impact on the success of the programme. For example April 2002–March 2003 there was a 71% successful completion rate for Referral Orders. 50% of the Referral Order interventions at that time involved the victim. April 2003–March 2004 there was only a 57% successful completion rate but there was only 32% victim involvement as YOT had lost its Victim OVender Mediation Worker to CardiV who paid more and guaranteed a full time post. On average between 35 and 40 hours of supervised reparation within BCBC takes place each week. However, and with that being said, it is considered that both in Bridgend and in the Principality more eVective working can be undertaken with the following matters being addressed: — Funding arrangements—As stated this is a combination of Youth Justice Board grant and Partnership contribution. In the latter respect and whilst the YJB has issued guidance on the aspect of equitable Partnership contributions there is no prescription in that area. Accordingly in Bridgend the Council has to bear any losses and shortfalls on the annual round as a consequence of Partner contributions falling short of that which is necessary to break even. This is not conducive to good Partnership working and inhibits forward planning programmes due to financial uncertainties. — Accommodation—In Bridgend there is a lack of suitable accommodation for the provision of 16–18 year olds. This has meant recently that the Bridgend YOT has had to place young persons in bed and breakfast accommodation. Potentially this causes disruption to the lifestyle of such young people and possibly increases the risk of oVending. It also increases the financial cost to the Council itself as either Children’s Services or the YOT has to incur these costs. — Children and Adolescent Mental Health Services (CAMHS)—There are many young people within the criminal justice system who are mentally ill. Sadly this diagnosis only arises once a young person is within the criminal justice system having oVended. It is suggested that there is a need to accelerate the development of CAMHS with some immediacy to deal with this worrying prospect.
10. Conclusion 10.1 Intendedly this evidence has been given to assist in an understanding of the work of Safer Bridgend, some of its achievements and the challenges which it faces. I do, however, feel that there is a wider message which can be shared around eVective working on an All-Wales basis in the area of Crime and Disorder. Notwithstanding the fact, as stated, that there remains devolved and non-devolved functions in terms of Partners, I do consider that there is an immense prospect of better and more eVective working on an All- Wales basis. 10.2 Wales institutionally has a compact structural base. This is comprised of, inter alia: — 22 Unitary Authorities — 22 Local Health Boards — 13 Health Trusts — Four Probation areas, and — Welsh Assembly Government I earnestly believe, therefore, that there is a prospect of developing a “Pan-Wales” agenda on Crime and Disorder issues and which could bring the work of the Community Safety Partnerships into a better and more eVective environment. 10.3 In my position as lead Chief Executive in Wales on Community Safety issues, I was instrumental in setting up an All-Wales Crime and Disorder Forum. This met on several occasions in 2002–2003 and was attended by senior management of the above-mentioned agencies, eg Chief Executives, Chief Constables etc. This enabled discussions to take place on strategic issues on an All-Wales basis and which the then Crime Reduction Director in Wales felt was an extremely opportune and authoritative environment in which to engage. Some of the subjects discussed on those occasions included: — Secure accommodation for young oVenders in Wales — Serious oVenders — Drugs markets in Wales — Funding of Welsh YOTs These were strategic, important issues which facilitated an All-Wales dynamic and dialogue to engage them. Unfortunately, due to a lack of resourcing the work of the group has not continued. I am, however, Ev 350 Welsh Affairs Committee: Evidence
opening a dialogue with Welsh Assembly Government to hopefully reactivate this strategic forum. I have indicated that I will be more than happy to continue to lead in this area if some resourcing can be found to support its development. I Keri Lewis O.St.J. B.A. (Econ) Solicitor Chief Executive, Bridgend County Borough Council Chairperson, Bridgend Community Safety Partnership 15 December 2004
14. Written evidence from the North Wales Criminal Justice Board
POLICE SERVICE, CRIME AND ANTI-SOCIAL BEHAVIOUR IN WALES INQUIRY
1. North Wales Criminal Justice Board 1.1 Criminal Justice Boards were established in England and Wales in April 2003, replacing the former Area Criminal Justice Strategy Committees. 1.11 Board membership of the NWCJB includes: Chief OYcer, Probation Service: Carol Moore (Board Chair); Chief Constable, Richard Brunstrum; Chief Crown Prosecutor: Ed Baltram; Director Designate of the Unified Courts: Clare Pillman; Prison Service Representative: Walter McGowan; Youth OVending Team representative: Nia Ellis-Williams. 1.111. The role of the Criminal Justice Board is to improve the delivery of justice and the service provided to victims and witnesses and to secure public confidence in the Criminal Justice System. Local Criminal Justice Boards are accountable to the National Criminal Justice Board and are a critical feature of the Government’s priority to develop a more “joined up” Criminal Justice System. Local Boards are required to deliver the CJS Public Service Agreement (PSA) targets which are set for all CJS agencies and are jointly owned by the Home OYce, Lord Chancellor’s Department and the Attorney General. (The Judiciary are not an agency and cannot be set targets ie number of convictions). The PSA targets are set nationally and the local Board has to determine and agree how they will be achieved.
1.1V Consultation The North Wales Criminal Justice Board has established a Consultative Group to provide a forum and vehicle for consultation and communication with a wide range of stakeholder and partner organisations. The Consultative Group is chaired by the Resident Judge for North Wales: His Honour Judge John Rogers QC and the membership of the Consultative Group includes representatives from: — Local Community Safety Partnerships; — Representatives of the Judiciary and Magistracy; — Victim Support and Witness Service; — Local Authorities; — Welsh Assembly Government; — North Wales Race Equality Network; — Local Bar and Solicitors; — Justice’s Clerks Society; — North Wales Magistrate’s Courts Committee; — North Wales Probation Board; — CAIS Drug and Alcohol Agency. The Consultative Group meets 2-4 times a year and is actively involved in planning the Board’s annual conference (first conference held in February 2004). The Consultative Group meetings provide an opportunity for the Board to discuss and receive feedback on its performance and priorities. Welsh Affairs Committee: Evidence Ev 351
1V Board Infrastructure The North Wales Board is supported by two full time posts; a Performance OYcer (currently vacant) and a Communications OYcer. Funding to support the work of the Board is provided by Government (£115,000 for 2004–05 excluding the salary of the Performance OYcer). The Board is supported by a Business Delivery Group of Senior Managers from the member agencies who are responsible for the implementation of the Board’s Business Plan. The Board is currently reviewing its future structure and delivery arrangements with the aim of achieving further progress towards a “joined up” Criminal Justice System for North Wales and to support delivery of the 2005-06 Business Plan. The Board itself has experienced a number of changes of membership since its formation in April 2003 as a result of changes at Chief OYcer level in four of the member agencies.
2. Board Priorities and Performance 2003–04, 2004–05 The Board’s Business Plan for 2004–04 identified the following priorities:
2.1 Narrowing the Justice Gap Target to increase the number of oVences brought to justice by 5% Outcome—a 7% increase was achieved. The Board prioritised drug and violent crime and achieved 2,166 drug oVences brought to justice against a target of 1,555 and 5,274 violent oVences against target of 5,274. Increasing Public Confidence (as measured by MORI sampling) Target to achieve an overall confidence rating of 50% cent compared to 2002–03 rating of 47%. Outcome of 40% against national average of 41%. Persistent Young OVenders (time from arrest to sentence) Target 71 days; Outcome average of 48 days achieved. Improve Timeliness (reducing delays in concluding cases in Crown and Magistrate’s Courts) Targets: Crown Court 78%; Outcome all four measures achieved. Targets: Magistrate’s Court Adult; Outcome none of three measures achieved. Target: Magistrate’s Youth Court; Outcome one of two measures achieved. Reducing IneVective trials Target 16%: Crown Court; Outcome achieved with 13% rate of ineVective trials. Target Magistrate’s Court: Outcome not achieved with 18% rate of ineVective trials, however North Wales Magistrate’s Court one of the top five performing Areas for 2003–04. 2.11 The Board has been actively involved in three national pilots as part of the Criminal Case Management Programme: — A Charging Pilot to actively involve the CPS before and at point of charging to ensure that appropriate charges are brought, resulting in increased guilty pleas and improved timeliness. —AnEVective Trial Management Project a multi agency project to bring about improvements in case preparation and performance with the aims of improving services to victims and witnesses. — No Witness No Justice Project to provide a single point of contact for information and explanation for victims and witnesses. 2.111 The performance figures for the year April 2004-August 2004 are as follows: Narrowing the Justice Gap: Area performing above target by 12%. Increasing Public Confidence: April-June figures are 42%, consistent with National average. Persistent Young OVenders: Area performing above target at 56 days (June 04). Improving Timeliness: Area performing above target as the four Crown Court indicators, achieving target in 1 of 2 indicators and achieving target in two of three cases in Magistrate’s Courts. Reducing IneVective Trials: No data.
3. Role of Criminal Justice Board in tackling Anti-Social Behaviour 3.1 The Board’s engagement with anti-social behavioural issues has been primarily through the respective responsibilities of the individual agencies ie Police have played the lead role with Local Authority partners via the local Community Safety Partnerships and via the Dyna Ddigon initiative. CPS and Courts role have been linked to the prosecution of individual applications for ASBOs and CRASBOs and any breach of the orders. Ev 352 Welsh Affairs Committee: Evidence
3.11 Youth OVending Teams are directly involved with Anti-Social Behaviour Orders and Criminal Anti-Social Behaviour Orders where young oVenders within the YOT system are subject to such orders. The Youth Justice Board and Welsh Assembly Government are currently researching the impact of ASBOs on prison numbers and the level of seriousness/risk presented by young people sentenced to custody as a result of breach of ASBOs. 3.111 Youth OVending Team managers have raised concerns about the potential outcome of any political pressure to “increase” the use of ASBOs as the solution to anti-social behaviour rather than initiatives to decrease the actual behaviour. Youth OVending Teams would support the production of initiatives via universal and targeted interventions ie via Youth Inclusion Projects and multi agency panels as proposed under the Prevent and Deter strand of the Government’s Prolific and Priority OVender strategy and argue that resources should be targeted at such initiatives. One of the disadvantages experienced by YOTs in Wales however is the lack of access to the Children’s Fund (where 25% of final resources is targeted at YOT work in England) leaving Welsh YOTs dependent on bidding via local Young People’s Partnerships where generally resources have already been allocated. 3.IV The high breach rate of many ASBOs has been identified as a problem by Youth OVending Teams and some sentencers, with the consequent potential for increasing the use of custody for young people for behaviour that would not normally warrant the use of imprisonment. The practice of publicly “naming and shaming” individual young oVenders responsible for anti social behaviour has generated some further concerns with front line practitioners who report problems for other family members who may be targeted or bullied at school as a consequence of the identification of a brother/sister/family member. 3.V The role of the Probation Service in responding to anti-social behaviour involves a focus on the underlying problems ie alcohol related crime via the provision of specialist programmes focussing on alcohol education and anger management for oVenders responsible for violent or alcohol related oVending. The Service is also responsible for the management of Community Punishment Orders whereby oVenders in North Wales perform over 80,000 hours of unpaid work each year on behalf of the Community. Projects and work which directly relate to the consequences and symptoms of anti-social behaviour are prioritised by the Community Punishment Teams ie a North Wales wide GraYti Buster Initiative, work to address fly tipping and a range of environmental projects designed to remove the results of vandalism and improve the quality of life for local communities. 3.VI The Board’s Consultative Group meetings have flagged issues for attention in relation to anti-social behaviour orders in particular the length of the order and the two year minimum period. Consultees have recommended that action is taken to give courts greater flexibility in determining the length of ASBOs and CRASBOs which enables a greater responsibility to the circumstances of particular anti-social behaviour and the individual oVender ie a minimum of three or six months in place of the present two years. It has been argued that this would promote the credibility of the order with courts and with the public (by reducing the breach rate) and have more meaning and motivation for compliance by the oVender, particularly young oVenders.
4. Criminal Justice Board Priorities 2005-06 4.1 The Board is currently engaged in reviewing priorities for the coming year. This will require the Board to test priorities against the Government’s Public Service Agreements relevant to the Criminal Justice System, the Government’s strategic plan for the Criminal Justice System “Cutting Crime, Delivering Justice”, the Government’s Home OYce Strategic Plan “Confident Communities in a Secure Britain” and local Community Safety Partnership priorities. 4.11 At this early stage in the development of the plan the future priorities are being identified as: — Implementation of the Prolific and Priority OVender Initiative; — Prevent and Deter; — Catch and Convict; — Rehabilitate and Resettle; —TheeVective enforcement of justice; — Warrents; — Enforcement of fines and community penalties including fixed penalty notices; — Enforcement of licences (post release); — Tackling Hate Crime and Domestic Abuse; — Reducing ineVective trials and delivering eVective Case Management; — Supporting Victims and Witnesses; — Tackling Anti-Social Behaviour and alcohol related crime; — Dealing eVectively with young oVenders. The details of action plans to support the priorities is the subject of ongoing work by the Board, however for the Anti Social Behaviour priority the key points being considered are: Welsh Affairs Committee: Evidence Ev 353
— Developing the relationship between the Board and Community Safety Partners; — Involvement in the Police led North Wales Anti-Social Behaviour Forum; — Development of a performance monitoring framework to identify outcomes of the range of disposals available to tackle anti social behaviour ie attrition rates for yellow card scheme, Acceptable Behaviour Contracts and ASBOs in consultation with Police and other partners. — Scope for joint training of key practitioners and sentencers. Carol Moore Chair North Wales Criminal Justice Board 23 November 2004
15. Written evidence from the Dyfed Powys Criminal Justice Board
Background — April 2003 saw the creation of 42 Local Criminal Justice Boards—one for each Police area— accountable to the National Criminal Justice Board for the delivery of local performance targets. — LCJBs are designed to build upon and develop joint working assisted by clear overarching aims. — The overall aim and focus of the Dyfed Powys LCJB is: To work together to deliver Criminal Justice System objectives by improving the delivery of justice locally & To improve public confidence, the Board will engage with all the diVerence communities in the wider process of CJS reform and work to improve the satisfaction of Victims and Witnesses, whilst respecting the rights of Defendants. — The supporting targets are:— To increase the number and proportion of recorded crimes for which an OVender is brought to justice & To improve the level of public confidence in the criminal justice system including that of black and minority ethnic communities. — The Board comprises local Chief OYcers of Police, H M Court Service, Crown Prosecution Service, Prison, Probation and YOTS. Immediate decisions can be taken re:- actions to achieve targets and implement initiatives. The work of the Board is informed by, and dependent upon, wide consultative arrangements. Other partners, such as Victim Support/Witness Service, are involved in the planning and decision making for initiatives. — The Board meets bi-monthly to review performance, plan and prioritise and evaluate development work on initiatives. — The Board is supported by two Sub Groups:— Area Performance Group Confidence Steering Group The Groups responsible to the Board for monitoring performance and the planning and implementation of key initiatives, eg No Witness No Justice and Pre Charge Advice. (see annexe B)
Delivery of LCJB targets
Target 1—Narrowing the Justice Gap — This is reducing the diVerence between the number of oVences committed and the number for which there is a “successful” outcome. — There are two strands to the work of the Board. Firstly, to improve the eYciency of the criminal justice process—across all agencies—from arrest to sentence. Thus reducing the number of cases which unnecessarily fail. Secondly, to eVectively deal with specific categories of OVenders who are responsible for a disproportionate amount of crime, eg Prolific & Other Priority OVenders and Persistent Young OVenders. — The Board has been introducing the Criminal Case Management Programme as a key part of the process improvement. This involves three strands: Ev 354 Welsh Affairs Committee: Evidence
— The Charging scheme—introducing liaison between the Police and CPS at the outset to get the charge right and to improve the building of the case. A shadow charging scheme, as a pre-cursor to the statutory arrangements, now covers Dyfed Powys. Success will be measured by fewer Discontinuances, more guilty pleas and more time for the Police and CPS to focus on more diYcult cases. —EVective Trial Management Programme—aimed at improving case preparation and progression. An audit of current processes has been carried out and implementation plans for improvement have been prepared. Consultation with local Solicitors, the Legal Services Commission and the Judiciary is under way. Conference to update and inform CJS StaV and Defence Solicitors will take place in February 2005. — No Witness No Justice—aimed to improve radically the service to Victims and Witnesses. The creation of a dedicated Witness Care Unit. The provision of services built around the needs of Victims and Witnesses and the provision of far more information to them. The planning for this Unit is well advanced and it will be implemented in February 2005.
Target 2—Increasing Public Confidence in the CJS — The Confidence Steering Group a Sub Group of the Board has five priorities: — Victim and Witness satisfaction; —StaV Engagement; — Community Engagement; — Communications; — Public Confidence. — The two targets overlap. Key to achieving public confidence is an improved prosecution process and improved outcomes. — Central to an eVective process and to public confidence, is how Victims and Witnesses are treated by the criminal justice system. A lot of work has been done to support Witnesses: — updating and making available comprehensive, localised information leaflets and maps; — “Move To Improve” Witness Event/Annual Conference 3.6.04. A combined consultation event informing CJS staV and other partner agencies of the the Board’s work to date and plans for the future; — the provision of a bi-lingual witness information line; — joint protocol for vulnerable witnesses; — participation in LCJB/Welsh assembly Government Steering Group on “Treatment of Employees as Victims and Witnesses”; — the next major initiative is No Witness No Justice. — The Board is seeking to develop links with, and be informed by, community and local agencies. It is developing a wide ranging consultative structure with which it shares and receives input about its work and plans (see annexes C & D) — Research Project. The Board has commissioned a research project to identify black and minority ethnic communities in rural Dyfed Powys and to look at their experiences and expectations of the Criminal Justice System. — An Independent Advisory Group. In June 2004 an Independent Advisory Group drawing a membership from all of the minority communities was formally established and launched. One of the first of its kind in England and Wales. The Group meet quarterly providing independent advice on strategic, tactical and operational matters. IAG members act as a link between the communities and the relevant agencies and are advisors on the activities and service provision of these agencies. — DYPREN—Dyfed Powys Race Equality Network. The Board recognised that there was no support network for Black and Minority Ethnic communities in Dyfed Powys, making it diYcult to work towards achieving the Community Engagement priority of the Confidence Plan. The Board committed to facilitate, support and where possible fund the development of such a network. DyPREN members, Terms of Reference and Action Plan are all in place. The launch of DyPREN is planned during 2005. — LCCS—Local Crime Community Sentencing Scheme. Dyfed Powys is one of a number of areas participating in this scheme that is due to be launched in Spring 2005. Probation OYcers and Magistrates will be working together giving presentations to identified community groups. The scheme aims to raise awareness of the eVectiveness of community penalties in sentencing. By working together in the community improvements to public confidence levels will hopefully be achieved. — Domestic Violence Fora. Working in partnership with and supporting local fora initiatives to improve services to victims of Domestic Violence Welsh Affairs Committee: Evidence Ev 355
— Joint Training. Developing opportunities for joint training and job exchanges to help us to achieve the StaV Engagement element of the Confidence Plan — Mock Trial Competition for Inside Justice Week. Students from schools in Dyfed Powys and Gwent Criminal Justice Boards competed against each in October 2004 in an event organised as part of a national campaign to give the public a better understanding of the workings of the Criminal Justice System
The Board’s role in tackling crime/serious crime and anti-social behaviour — By improving the criminal justice process—achieving more eVective timely prosecutions— breaking the chain of oVending and allowing timely intervention. — By increasing public confidence in the criminal justice system and encouraging further reporting of crime and willingness to be involved in the criminal justice process. — By complimenting the work of the Community Safety Partnerships in the catch and convict element of the Persistent and Other Prolific OVender strategy. — By assuming responsibility for the introduction of key initiatives. — By complimenting the work of the Community Safety Partnerships in the catch and convict element of the Persistent and Other Prolific OVender strategy and by the eVective preparation of, and application for, post sentence ASBO’s and prosecution of ASBO breaches. — By developing links to monitor and inform the work of the Criminal Justice System. — By increasing emphasis on the eVective operation of the Proceeds of Crime Act. 26 November 2004
Annexes
“A” Criminal Justice System in Dyfed Powys
“B” Delivery structure—Dyfed Powys Criminal Justice Board
“C” Consultative arrangements
“D” Core & wider consultative network members
Criminal Justice System in Dyfed-Powys
Dyfed-Powys Criminal Justice Board is one of 42 Boards across England and Wales. Criminal Justice Boards were established in April 2003 and are supported by the National Criminal Justice Board. The Boards are the one body in each area that bring together the key players in the system. Dyfed-Powys is unique in that it the largest geographical area in England and Wales and is sparsely populated in many areas. The population increases considerably in the summer months as it is a popular holiday destination.
The area has:— — Four police divisions—Carmarthenshire, Pembrokeshire, Ceredigion, Powys — 11 Magistrates’ Courts — Three Crown Courts (though the majority of this work is heard in Swansea, which falls within the South Wales CJB area — Three CPS oYces — Seven Probation oYces including the HQ — Three Youth OVending Teams
There is no prison located within Dyfed-Powys Ev 356 Welsh Affairs Committee: Evidence
Delivery Structure
Independent Advisory Dyfed Powys Criminal Confidence ConfidenceJustice Board Steering Group
Core Consulative Group
and Wider Consultative Network
Area Performance Management Group
Carmarthenshire Ceredigion Powys Divisional Pembrokeshire Divisional Divisional Performance Divisional Performance Performance Group Performance Group Group Group
Narrowing the Justice Gap - Target 1
Priority 1 Priority 2 P riority 3 Priority 4 Priority 5 Early Advice Cracked / File Quality Witness Care Persistent Offender to Police re I neffective Initiatives arrangements Scheme charging T rials
Target 2 Target 3 Target 4 Increasing Persistent Timeliness public Young confidence in Offenders Retained as a the CJS local target
Consultative Arrangements
Core Consultative Group — These arrangements will start prior to Board meeting on 5 August 2003. — Consultees will receive early circulation of the Board agenda with the opportunity for comments and attendance on specific areas of concern. — Board minutes will be circulated. — Draft proposals will be circulated. Welsh Affairs Committee: Evidence Ev 357
— Where requested/required, there will be the opportunity for involvement in Board Sub Group work (Confidence steering Group. — Quarterly performance reports will be circulated. — There will be the facility, if required, initial and subsequent meetings—with any agenda drive by the Consultative Group. — An Annual Conference will be held. — Annual reports will be circulated. — Details of work done to date will be circulated.
Wider Consultative Network The initial arrangements for this liaison will include:— — The facility to raise any issue of concern with the Local Criminal Justice Board. — The provision of an annual report. — The opportunity to attend at the Annual Conference — The facility to contact the Chair to seek information regarding work being undertaken
General — The viability and eVectiveness of these arrangements will be kept under review — Suggestions to improve the working of the arrangements are welcomed
Dyfed Powys Criminal Justice Board
Core Consultative Group Members — Local Bar and Solicitors — Regional Crime Reduction Director — Representatives of the Judiciary and Magistrates — Resident Judge — Magistrates’ Court Committee — Magistrates’ Association — Victim Support/Witness Service — Race Equality Councils — CRE Wales — DyPREN (Dyfed-Powys Race Equality Council) — SBREC (Swansea Bay Race Equality Council) — Local Authorities — Police Authority — NHS/Local Health Boards — Probation Board — Children’s Commissioner.
Dyfed-Powys Criminal Justice Board
Wider Network Group Members — Basic Skills Agency — NACRO — Mid and West Wales Fire Brigade — Jobcentre Plus — Legal Services Commission — Prison Escort Service —PRISM — Area Criminal Justice Strategy Committee — British Transport Police Ev 358 Welsh Affairs Committee: Evidence
— Trials Issues Group — Licensed Victuallers’ Association — Association of Voluntary Services — Women’s Aid — Domestic Abuse Forum.
16. Written evidence from the South Wales Criminal Justice Board
1. Background Information 1.1 In 2001, Lord Justice Auld conducted a review of the work of the Criminal Justice agencies and made a number of recommendations in his “Justice for All” white paper. In response to his recommendations, the Government established 42 Local Criminal Justice Boards (LCJBs) throughout England and Wales in April 2003 to deliver a joined up Criminal Justice service in which partnership is key to success.
2. Role of the South Wales Criminal Justice Board 2.1 The purpose of the South Wales Criminal Justice Board (SWCJB) is to oversee delivery of key criminal justice targets that will narrow the justice gap by bringing more oVences and their perpetrators to justice, improve the quality of service to victims, witnesses and the accused, and raise public confidence in the criminal justice system. 2.2 The South Wales Local Criminal Justice Board serves one and a half million people, who constitute 42% of the population of the principality. Barry, Bridgend, CardiV, Merthyr Tydfil, Pontypridd and Swansea are the largest centres in the area and the latest census shows that approximately 3.5% of the local population are from ethnic minority groups. There are wide disparities in the standard of living ranging from poverty in many districts to aZuence in parts of CardiV.
3. SWCJB Membership &Governance Structure 3.1 The SWCJB operates on a regional basis and comprises of chief oYcers from the key criminal justice agencies, including the Chief Constable; Chief Crown Prosecutor; Chief Executive of the Unified Courts Service; Chief OYcer of the South Wales Probation Area; Area Manager for Wales from the Prison Service and one Youth OVending Team Manager representing the interests of the seven YOTs in South Wales. 3.2 The SWCJB has employed a Performance OYcer, Communications OYcer and an Administrative Assistant to help coordinate its day-to-day business. 3.3 To assist in their work, the Performance OYcer, Communications OYcer and Administrative Assistant service the Board. The Performance OYcer’s role is to provide monthly reports on performance, identifying blockages in the system and where possible implements solutions to overcome such blockages. The Communications OYcer helps to communicate the work of the Board to employees within the various criminal justice agencies and to people within the communities of South Wales. The Administrative Assistant acts as the secretary to the Board and is responsible for all administrative and financial matters. 3.4 The SWCJB is structured as follows: — The South Wales Criminal Justice Board is made up of Chief OYcers from each agency. The SWCJB meets once every two months and is responsible for steering the whole operation by providing strategic guidance and oversight. It developed a Delivery Plan for 2004–05 and is currently in the process of developing a new Plan for 2005–06 which will be operational by 1 April 2005; — A Performance Steering Group meets monthly to review progress towards targets. Subgroups include: Narrowing the Justice Gap; Persistent Young OVenders/Prolific and other Priority OVenders and Criminal Case Management; and — A Public Confidence Steering Group to specifically address the governments target in this area. Subgroups include: Communications; Victims and Witnesses; Race and diversity, and Domestic Violence (An organisational chart is presented at Annex 1 for further information).
4. Budget 4.1 In 2003–04, the Home OYce provided SWCJB with a budget of £65,000 and in 2004–05 this amount was increased to £115,000. The OYce for Criminal Justice Reform have informed Board’s to plan on the assumption that they will receive at least the same level of funding for 2006–07. Welsh Affairs Committee: Evidence Ev 359
5. Targets &Other Priorities 5.1 The South Wales Area, as defined by the police force boundaries, has various priorities agreed by Government, which are: — To increase the number of oVences brought to justice; — To reduce the number of ineVective trials; — To increase the number of court warrants executed by the police; — To reduce the time taken to finalise persistent young oVender cases; and — To increase public satisfaction and confidence in the criminal justice system. 5.2 Other closely linked initiatives are being undertaken within the framework of the Criminal Case Management Programme, which include improving the service provided by the criminal justice system to victims and witnesses of crime; eVectively implementing the Statutory Charging Scheme throughout South Wales and implementing the EVective Trials Management Programme. SWCJB also seeks to improve the timeliness and eYciency by which the criminal justice system operates.
6. SWCJB Performance &Other Successes 6.1 A summary of the latest SWCJB performance is presented in Annex 2 and is discussed below.
6.2 Increasing OVences Brought to Justice Last year the government set a target for every Criminal Justice Board to increase the number of oVences brought to justice by 5%. South Wales had to bring 31,697 oVences to justice compared to its baseline of 30,188 oVences. Through the determination and hard work of all of the criminal justice agencies, South Wales achieved an excellent 14.4% improvement on its baseline figure by March 2004, thereby exceeding its target by almost 3,000 oVences. This achievement was due to eVective police investigation and eVective inter-agency working and information sharing from the point of charge to sentencing of oVenders, ensuring that those who are guilty of crimes are caught and properly punished by the courts. Jane Furniss, Director of the Criminal Justice Performance Directorate in the Home OYce recognised this achievement and personally wrote to the Board to oVer her commendation. In 2004–05, South Wales has been tasked with bringing 31,899 oVences to justice and current figures to the end of July 2004, show that South Wales is currently only 126 oVences behind its target.
6.3 IneVective Trials IneVective trials are those that are adjourned on the day set for trial and involve the witnesses having to attend court on another occasion. These trials cause unnecessary inconvenience to victims and witnesses and waste valuable criminal justice resources. The ineVective trial rate for the South Wales Crown Court is well ahead of the national average and the objective is to maintain current performance during 2003–04. The local target for the Magistrates’ Courts is to reduce the proportion of ineVective trials to 23% during 2004–05 and performance is at 19% for the financial year. A major contributory factor to improved performance has been the excellent work of inter- agency Case Progression OYcers, who seek to ensure that any outstanding actions are completed in advance of the trial day and that files and evidence are suYcient and satisfactory to be presented at court. A robust Pre-Trial Review (PTR) System also operates in South Wales to ensure that trials are not adjourned on the day, for example, readiness contracts are signed by the Prosecution and Defence to increase the likelihood of an eVective trial at court.
6.4 The Execution of Court Warrants By The Police In 2001–02 there were 2,565 unexecuted court warrants for the arrest of defendants who had failed to appear at court in the South Wales Area. This figure has been reduced dramatically to 1,030 through Area wide campaigns, which have included “Operation Arrowhead” and “Operation Bail Bandit”. These campaigns have utilised an innovative campaign of publishing the details of oVenders who have failed to attend court in the local press to show that the Criminal Justice System will not tolerate those oVenders who flout the law. It is intended that such operations become a regular feature of the work of the SWCJB with a further campaign due at the end of February 2005. Ev 360 Welsh Affairs Committee: Evidence
The South Wales Police Warrants Management Database, a system that was recently endorsed as good practice by the Home OYce and purchased by numerous other Police Forces in England & Wales, closely monitors operational Performance. Work is underway on inter-agency strategies to address the forthcoming government targets on enforcement for 2005–06, which include, not only warrants for failure to appear at court, but also enforcement of fines, community penalties and asset recovery.
6.5 Persistent Young OVenders (PYOs) Persistent Young OVenders are defined as individuals from 10 to 17 years of age who have been sentenced by a criminal court on three or more separate occasions within three years of the last sentence. The Government target is to reduce the average time it takes to deal with a persistent young oVender between arrest and sentence to 71 days. Through close inter-agency working, particularly the operation of Case Progression meetings in each Court centre, SWCJB has consistently achieved its target for the last 18 months. The latest figures show that it took 52 days to finalise Persistent Young OVender cases in the South Wales Area.
6.6 Improving Public Satisfaction and Confidence in the Criminal Justice System The Government has defined the target to deliver the sixth priority as: “To improve public confidence in the criminal justice system, including increasing that of ethnic minorities, and increasing year on year the satisfaction of victims and witnesses, whilst respecting the rights of the defendants.” The Board has developed a Public Satisfaction & Confidence Delivery Plan covering actions up to March 2005 in the following areas: — Victim and witness satisfaction; —StaV engagement — Community engagement, including race issues — Communications, and — Increasing public confidence in bringing oVenders to justice. Three important initiatives are detailed as follows:
6.6.1 CJS Educational Video Tackling Racism In conjunction with a professional media company, the SWCJB produced a video tackling the problem of racism in schools. A group of students followed a fictitious racially aggravated case from start to finish, which included visits to each of the Criminal Justice agencies. The whole project was filmed and the resulting video, which is introduced by Charles Falconer, Secretary of State for Constitutional AVairs, has been recognised as “best practice” by the National Criminal Justice Board. It has also received a national Equality & Diversity Award from the Crown Prosecution Service Head Quarters.
6.6.2 The Local Crime & Community Sentence Project (LCCS) The Local Crime Community Sentence (LCCS) project aims to raise people’s knowledge and understanding of the sentencing powers of the courts and increase public confidence in the criminal justice system’s powers to punish oVenders for their crimes. The project, which is being sponsored by the South Wales Board, will involve representatives from Probation and the Magistracy presenting criminal justice case scenarios to a pre-arranged audience. After the presentation, the audience will be asked to deliver their sentence on the case, similar in many respects to a citizen’s jury.
6.6.3 Inter-Agency Race & Diversity Seminar & SWCJB Subgroup In December 2004, The SWCJB sponsored a race and diversity seminar, which brought together senior practitioners from each of the criminal justice agencies to look at how cross-agency training can be delivered in these areas in the future. Linked to this initiative is the continuation of the SWCJB Race & Diversity Subgroup which is currently reviewing its Community Engagement Programme designed to more clearly understand the needs of various groups of people who often feel poorly served by the criminal justice system, including ethnic minorities, gypsies, travellers and other minority groups in society. The Community Engagement Programme is just one strand of the SWCJB’s Consultation Strategy discussed later in this paper. Welsh Affairs Committee: Evidence Ev 361
6.6.4 The Inter- Criminal Case Management Programme (CCM) It has long been recognised that the needs of victims and witnesses should be at the heart of the criminal justice system and that the eYciency of processes need to be improved. To achieve this, the government has bought together three major elements of reform into a Criminal Case Management Programme (CCM). These are the Statutory Charging Scheme, the No Witness, No Justice Project, and the EVective Trials Management Programme. The Statutory Charging Scheme will serve to ensure that Crown Prosecutors are available at selected police stations to provide face-to-face legal advice to the police before suspects are charged. Pilot studies elsewhere in the country have established that bringing the expertise of police oYcers and Crown Prosecutor’s together at an early stage improves case preparation and conviction rates by selecting the “right” charge. Early guilty pleas by defendants also have the advantage of avoiding victims and other witnesses having to attend court to give evidence. The No Witness, No Justice (NWNJ) programme requires Criminal Justice Boards to implement co- located Witness Care Units in their localities, which conform to a number of minimum standards for victim and witness care. After a crime is committed, the police should assess the needs of a victim or witness when they are first interviewed. The victim or witness should then have the continued support of a Witness Care OYcer from the point of charge through to any outcome that may follow. Where a victim or witness has particular diYculties—be it in the absence of childcare on a trial day or fear of intimidation by the accused— actions to alleviate this can be taken in good time. And there should be no doubt in the mind of the victim or witness to whom they should turn for assistance. By appointing Witness Care OYcers, victims and witnesses should also be kept better informed of progress in their case and have the necessary court-day support (for example special measures) to enable them to concentrate on giving their best evidence in court. The aim is to have implemented Witness Care Units in CardiV and Barry by 1 February 2005, Swansea by 2 April 2005 and Merthyr Tydfil by 1 July 2005.
7. The Role of SWCJB in Tackling Crime and Anti-Social Behaviour 7.1 The SWCJB is also concerned with tackling crime and anti-social behaviour and two important areas are outlined below.
7.2 The Prolific and Priority OVender Scheme Under the Government’s previous Persistent OVender Scheme, persistent oVenders were nationally defined as someone who was aged 18 or over, and who had six convictions for recordable oVences in the past 12 months. However, a national review of the Persistent OVender Scheme last year recommended that local Criminal Justice Areas should have greater responsibility for identifying those oVenders causing the greatest problems in their communities. Prolific oVenders make up a small percentage of the population but who commit a disproportionately large proportion of serious crime. The new Prolific and Priority OVender Scheme announced by the Government in June 2004 replaces the previous scheme and will utilise locally agreed definitions of ‘persistence’ rather than a national definition. To continue this local theme, the Strategy will be developed by Criminal Justice Boards together with the Community Safety Partnerships. The Home OYce issued initial guidance at the end of July 2004 highlighting that the scheme will consist of three strands designed to provide a more holistic approach to the management of oVenders. These are: — Catch and Convict — Prevent and Deter — Resettle and Rehabilitate. The overall aim of the strategy is to target approximately 15-20 of the most prolific oVenders in each Community Safety Partnership area and prevent them from re-oVending. The SWCJB and Community Safety Partnerships are working closely at a strategic level to ensure that the Scheme is successfully implemented in South Wales. This is an extremely complex venture as there are three very diVerent aspects to the scheme, which involve numerous diVerent agencies working together, some for the very first time, and to tight timescales. There are also seven diVerent Community Safety Partnerships in South Wales and so the challenge will be to ensure that the Scheme is adequately tailored to meet the individual needs of each partnership and that good practice is shared across all area of South Wales. A specific strategy group consisting of Criminal Justice agency and Community Safety Partnership members has been formed to help achieve this aim and further information is provided in the “Links with Community Safety Partners Section” on page 9. Ev 362 Welsh Affairs Committee: Evidence
7.3 Anti-Social Behaviour Orders (ASBOs) Sections 17 and 115 of the Crime and Disorder Act 1999 tasked relevant agencies to look at ways of reducing crime and disorder in their localities and to share information with one another to assist in this process. In South Wales, each of the Community Safety Partnership Area’s has a police and civilian ASBO Co- ordinator whose role is to receive information on anti-social behaviour incidents in the community. This is done directly by the public via a dedicated contact telephone line to the co-ordinator or indirectly through referrals from the various agencies. The co-ordinator will then collate this information on a computerised system that helps to determine the nature of anti-social behaviour incidents, who is causing the problems, where they live and the number of referrals that have been made against an individual over a specified period of time. This information is used to decide whether or not interventions should be made by the agencies, including pursuing a court order if necessary. South Wales has adopted a four-stage approach to dealing with cases of anti-social behaviour incidents, though there is a need to review and ensure standardisation of processes. These stages are: 1. First referrals will lead to the generation of a letter from the partnership to the individual accused of anti-social behaviour; 2. After this, a second letter will be produced (usually hand-delivered to the perpetrators house) explaining that their behaviour is unacceptable and that action may be taken to address it if it continues; 3. A further letter is generated and at this stage decisions are made as to whether an acceptable behaviour contract is appropriate (however, this contract has no legal force and requires the consent of the individual concerned). Finally, if the behaviour continues a serious intervention may be undertaken ie Prohibited areas and restrictions on movement may be imposed, for example an area may be defined as a restricted for an individual and he may be banned from entering the area or as a final measure an ASBO either stand alone or on conviction would be implemented. Whilst the majority of anti-social behaviour incidents are dealt with in the Civil Courts, it has been realised that local authorities do not always possess the necessary legal expertise to deal with all cases that are referred to it. The SWCJB have, therefore, endorsed the formation of an ASBO Legal Group, Chaired by a specialist ASBO lawyer from the Crown Prosecution Service. The remit of the group is to develop legal expertise in the area of Anti-social behaviour law and procedure and to provide a network of support for its members in the advising, preparation and application of the law through the courts. The group will share best practise to enable a consistent approach across the South Wales region as well as promoting joint multi-agency working and cooperation. This group is unique in Wales and through preliminary discussions with the Welsh Assembly has been considered as being good practice and a model that other areas can follow. The launch of this group is anticipated to act as a catalyst for the other regions in Wales to follow suit and develop similar groups. The launch of this group is anticipated for mid March 2005, with an invited audience from across Wales. The launch will be especially relevant to each Chief Constable, LCJB Chair, Local Authority Chief Executive and Partnership Director who will all be asked to attend as well as community representatives. In addition to this group, the SWCJB may consider how ASBO information captured by local authorities can be more readily accessed by various criminal justice agencies, because such information could provide additional useful information to criminal proceedings, though no formal decisions have yet been taken in this area.
8. Consultation with Stakeholders and the Public 8.1 In order to understand the views of stakeholders and local communities to help inform their work, the SWCJB seeks to consult them about its work at relevant times. A variety of methods have been used and are detailed as follows:
8.2 Criminal Justice Board Conferences In April 2003, the South Wales Criminal Justice Board organised a conference to mark its launch and explained the role it would take in tackling crime for the year ahead. Approximately 500 participants attended the conference, including criminal justice stakeholders, race and diversity groups and members of the public and provided the opportunity to meet with Chief OYcers from each of the agencies and ask relevant questions. Welsh Affairs Committee: Evidence Ev 363
The Board have discussed holding a similar conference within the next year to discuss their work to date and the successes which have been achieved through partnership working, and it is hoped that such an event will oVer the opportunity to further explore views and opinions of the people it serves.
8.3 South Wales Citizens Panel In order to understand the views of local communities to help inform their work, the South Wales Criminal Justice Board has teamed up with the Local Police Authority to form a Citizens Panel, the first Criminal Justice Board in Wales to do so. Assisted by a professional social research company, a panel of approximately 1,500 people will be recruited, fully reflecting the socio-economic and demographic profile of the South Wales population. By the end of March 2004, two survey questionnaires will have been undertaken and results will be made available to members via newsletters and to the public via the website.
8.4 Links with Community Safety Partnerships Based on a mapping exercise that was recently undertaken by SWCJB and the CardiV Community Safety Partnership, a report was produced on possible areas for collaborative working in the future. A number of areas of mutual interest were identified and it was agreed by Local Authority Chief Executives and Chief OYcers of the Criminal Justice Board that a specific working group should be formed to review how criminal justice agencies and Community Safety Partnerships should take relevant joint initiatives forward. It was agreed that both SWCJB and Community Safety Partnerships should keep each other properly informed of new initiatives and open invitations will be provided to either side to attend relevant meetings. Minutes of meetings will also be exchanged between the SWCJB and the various Community Safety Partnerships.
8.5 Links with the Judiciary, Magistrates and the Defence Informal consultation is undertaken wherever relevant with the Judiciary, Magistrates and the Defence to keep them informed of the work of the SWCJB. This has taken the form of ad-hoc meetings, such as the recent engagement with the three resident judges in South Wales regarding the implications of the EVective Trial Management Programme, and through circulation of meetings of the Board.
8.6 Links with the Welsh Assembly Whilst much of the work of the Criminal Justice Board’s is driven by central government, links have been established with the Welsh Assembly. Regular meetings took place between the previous Chair of the Board (Huw Heycock, Chief Crown Prosecutor) and the previous Crime Reduction Director (David A’Herne) and these have been strengthened through the recent creation of the strategic group consisting of Criminal Justice Board, Community Safety Partnership members and the new Crime Reduction Director mentioned previously. The Welsh Assembly has contributed £8,000 towards the establishment of the Citizens Panel, which can be jointly utilised by the Board and the Community Safety Partnerships.
9. Conclusion As this paper hopefully illustrates, the South Wales Criminal Justice Board has achieved a great deal since its formation in April 2003. Now, over 18 months on, partnership working between the respective criminal justice agencies and various other stakeholders has become stronger and more eVective and there is no doubt that Criminal Justice Board’s will play an important role in tackling crime and anti-social behaviour and making South Wales a safer place to live in the future. Susan Hall Chair of the South Wales Criminal Justice Board and Chief OYcer South Wales Probation Area 15 December 2004 Ev 364 Welsh Affairs Committee: Evidence
Annex 1—Family Tree of Local Criminal Justice Board
ANNEX 1 - FAMILY TREE OF LOCAL CRIMINAL JUSTICE BOARD
(a) SOUTH WALES CRIMINAL JUSTICE BOARD (SWCJB) Sue Hall, Chair (Chief Officer of Probation Service)
SWCJB PERFORMANCE STEERING 1) CONFIDENCE GROUP
GROUP Assistant Chief Constable Dave Chris Woolley, Chair (Chief Crown Francis, Chair (South Wales Police)
Prosecutor, CPS) To monitor and improve confidence and To monitor and improve performance via public satisfaction in the Criminal the work of its subgroups and Justice System via the work of its meet/exceed government targets subgroups and meet/exceed government targets
Narrowing the PYO and Prolific Criminal Case Standing Domestic Violence Victims Group Communications Justice Gap and Priority Management Committee on Subgroup Subgroup Subgroup Offender Strategy Group Race & Diversity Barbara Ranger Subgroup Martyn Waygood, Chair, (Principal Chair to be Barbara Ranger, Edwina Neil Kinrade, Chair (Justices Officer South agreed Chair (Principal Sharon Flannery, Sherwood, Chair Chair Chief Executive Wales Police) Officer South Wales Chair (Assistant (Area Business (Superintendent Magistrates Court) To provide PR Police) Chief Officer, Manager, CPS) South Wales To provide an support for the Probation) Police) To improve the enhanced level of Confidence To increase the To implement the service provided by service for victims Subgroups, Race number of sanction To ensure that the Criminal Case To address issues the Criminal Justice and witnesses and Diversity, detections, OBTJ, government’s 71- Management of Race and System in South including those that Victims Group and oversee rigorous day pledge of Programme Diversity within Wales to victims of come into CJS but Domestic Violence enforcement of fines, reducing the time of consisting of the Criminal Domestic also those who Subgroup. community penalties, arrest to sentence Charging, NWNJ Justice System. Violence/Abuse. don’t. Close FTA warrants & asset of PYO cases is met and ETMP. working will be recovery, and other and 3 strands of the undertaken with the relevant issues. PPO Scheme are NWNJ. implemented and monitored.
Annex 2—South Wales LCJB Monthly Performance Monitoring Table (November 2004)
Key for performance table
Aim No. Objective Latest Time Period Target TraYc Performance Light performance
1. Narrowing the 1.1 Increase OVences 31773 FY to July 04 31899 126 Justice Gap Brought to OBTJ OBTJ oVences Justice (OBTJ) behind target 1.2 Increase OBTJ N/A N/A N/A N/A by Prolific and Priority OVenders— targets not yet set by the government 2. IneVective 2.1 Decrease 19% FY to Oct 04 23% 4% ahead Trials ineVective trials of target in Magistrates’’ Courts 2.2 Decrease 10.9% FY to Sept 04 12.3% 1.4% ineVective trials ahead of in Crown Courts target 3. Execution of 3.1 Reduce the 1030 FY to Oct 04 1200 170 Warrants number of warrants unexecuted ahead of warrants to 1200 Dec 04 by end of Dec target 2004 Welsh Affairs Committee: Evidence Ev 365
Aim No. Objective Latest Time Period Target TraYc Performance Light performance
4. Persistent 4.1 Decrease time 52 days (49 Month of 71 days 19 days Young OVender from arrest to days for Q2 August 04 ahead of (PYOs) sentence for 2004) (Apr-June 04) target PYOs 5. Timeliness 5.1 Magistrates’ 82% Qtr ending 80% to be 2% ahead court—adult June 04 dealt with of target guilty pleas in 50 days 5.2 Magistrates’ 80% Qtr ending 80% to be Level with court—adult June 04 dealt with target trials in 128 days 5.3 Magistrates’ 91% Qtr ending 80% to be 11% ahead court—adult June 04 dealt with of target committals in 84 days 5.4 Magistrates’ 84% Qtr ending 80% to be 4% ahead court—youth June 04 dealt with of target guilty pleas in 42 days 5.5 Magistrates’ 81% Qtr ending 80% to be 1% ahead court—youth June 04 dealt with of target trials in 92 days 5.6 Magistrates’ 57% Qtr ending 80% to be 23% behind court—youth June 04 dealt with target committals in 60 days 5.7 Crown Court— 93% F/Y to Oct 04 78% to be 15% ahead Committal to dealt with of target trial in 16 weeks 5.8 Crown Court— 94% F/Y to Oct 04 78% to be 16% ahead Sent from dealt with of target Magistrates’ in 26 weeks court to trial 5.9 Crown Court— 95% F/Y to Oct 04 78% to be 17% ahead Committals for dealt with of target sentence in 10 weeks 5.10 Crown Court 96% F/Y to Oct 04 78% to be 18% ahead Appeals dealt with of target in 14 weeks 6. Charging 6.1 Discontinuance 15.3% July-Sept 04 Reduce to 3.2% Scheme Rates for Crown 12.1% behind Court target 6.2 Discontinuance 16.5% July-Sept 04 Reduce to 2% behind Rates for 14.5% target Magistrates’ Court 6.3 Guilty Plea Rates 60.1% July-Sept 04 Increase to 11% behind for Crown Court 71.1% target 6.4 Guilty Plea Rates 61% July-Sept 04 Increase to 1.8% for Magistrates’ 62.8% behind Court target 6.5 Attrition Rates 23.7% July-Sept 04 Reduce to Level with for Crown Court 23.7% target 6.6 Attrition Rates 21.6% July-Sept 04 Reduce to 2.9% ahead for Magistrates’ 24.5% of target Court 7. Confidence 7.1 To improve 39% Year to June 41% 2% outside public confidence 2004 of target in the eVectiveness of the CJS to bring oVenders to justice Ev 366 Welsh Affairs Committee: Evidence
Aim No. Objective Latest Time Period Target TraYc Performance Light performance
8. Victims and 8.1 Relevant local Questions N/A N/A N/A Witnesses data will be included in collected and Citizens reported shortly Panel and SWCJB to Survey: consider target results setting in future available in January 05
Key for performance table We must take urgent action if we are going to meet the target We must take remedial action to improve performance No remedial action required. Meeting the target
17. Written evidence from the Gwent Criminal Justice Board Chairman
A. The Role of Local Criminal Justice Boards
Establishment and Remit
1. Following the Auld report Local Criminal Justice Boards replaced Area Strategy Committees, Trial Issues Groups, Chief OYcers’ Groups and the previous Criminal Justice Boards. The formal Terms of Reference are: — Delivering performance improvement through joint performance management, reporting on performance and implementing change. — Local Joint Planning—setting local priorities and challenging individual agency plans within a national framework of Ministerial priorities. — Promoting good practice and innovation—local research and development. Local joint audit, joint project management. — Managing relationships with other CJS bodies, other agencies and the judiciary, communication with local population. — Managing the joins between the crime reduction and delivery of justice aims. — Conduit for Communication between the centre and local areas on CJS cross-cutting issues. — Co-ordination and advice on HR community and diversity issues.
2. Boards are accountable to the National Criminal Justice Board for the delivery of performance targets.
The Gwent Criminal Justice Board
3. The population of Gwent is 562,800 spread across some 155,000 hectares made up of an urban-rural mix. There are five unitary authorities, Blaenau Gwent, Caerphilly, Monmouthshire, Newport and Torfaen. The population of Gwent is largely non-Welsh speaking and the minority ethnic population is 2%.
4. All of the agencies in Gwent [ with the single exception of HM Prisons Service] are exactly co-terminous which facilitates the delivery of goals across the county and the provision of local justice.
5. The Core membership of the LCJBs is the local Chief OYcers of CPS, Courts, Police, Prisons, Probation, and YOTs Welsh Affairs Committee: Evidence Ev 367
The current membership of the Gwent Criminal Justice Board [GCJB] is: Mr Simon Boyle, Independent Chairman [non-executive], and Lord Lieutenant for Gwent. Mr Mike Tonge, Chief Constable of Gwent. Mr Howard Matthews, Acting Justices’ Chief Executive, Area Director Designate of Her Majesty’s Courts Service. Mrs Jane Coates, Chief Probation OYcer, Gwent. Mr Martyn Morgan, Acting Chief Crown Prosecutor, Gwent. Mr Andy Wallsgrove, Youth OVending Team, Newport [representing all Gwent YOT‘s]. Mr Phil Morgan, HM Prison Service, Governor of Usk Prison. Mr Robert Derricott JP, non-executive member, Member of Gwent Courts Board, Member of Gwent Police Authority and Chair of Gwent Magistrates’ Courts Committee. The board meets in full once a quarter with interim meetings of a slimmed down group. Sub groups of the board also meet in between full board meetings. LCJBs have their own dedicated financial and HR resources the latter in the form of a local Performance OYcer. The GCJB‘s first PO left in July 2004 and an appointment process is under way for her replacement.
Funding 5. The budget for the GCJB in 2004–05 is £85k and the spend is broken down as follows:
Consultative Group seminars x 2 £ 24k Domestic Violence Pilot Project staV 9k Witness Care staV support 14k Secure e-mail 7k Confidence & Communications 30k In addition the Performance OYcer‘s salary is funded centrally. The total of agency budgets in Gwent for 2004–05 is some £115 million. For 2005–6, funding for the GCJB has been confirmed by OCJR as the same as 2004–05.
B. Tackling Crime and Anti Social Behaviour 6. The published aims of the GCJB are to: — Demonstrate to victims that the CJS is acting eVectively on their behalf. — Increase the number of oVences brought to justice. — Demonstrate to oVenders that their crimes will not go unpunished. — Provide the means to prevent repeat oVending. 7. Bringing more criminals to justice, and thus narrowing the justice gap between the number of recorded crimes and the number of convictions for these crimes, will see the Board working in partnership to safeguard the rights and interests of victims and witnesses. Community engagement, and the raising of public confidence in the Board’s member organisations, will contribute to a swifter, more cost-eVective and support-focussed service for the residents of Gwent. 8. The GCJB has established a number of sub Groups to take forward the work of the Board and these are detailed in Annex 1: Performance and Operations. Confidence and Communications. Cracked and IneVective Trials. Youth Case Progression. Persistent OVenders. 9. The Board also has a responsibility to consult more widely and engages with the Consultative Advisory Group. In October 2004 over 60 people from a wide variety of groups attended a day long seminar in Cwmbran to identify areas of attrition in oVences brought to justice, and to recommend solutions. That was the third such seminar, and it is intended to hold these Consultative Advisory Group seminars twice per year. The organisations invited to take part are listed at Annex 3. 10. In 2004–05 the main goals of the Board are: — Increase the number of OVences Brought to Justice. — Tackle Persistent OVenders. — Ensure the Courts deal with OVenders Speedily and EVectively. Ev 368 Welsh Affairs Committee: Evidence
— Improve the Victims and Witness Satisfaction with Criminal Justice. 11. Under these headline goals, with input from the Consultative Advisory group, 78 individual activities have been identified and each of these has an owner in the local CJS agencies. Progress against these is monitored and reported to the quarterly Board meetings. 12. The Board has set its own performance measurement for these 78 activities using the traYc lights system, of which the summary is extracted below:
Status Code 1 Jun 04 30 Sep 04 w 30 Nov 04 31 Mar 05 Actual Target Actual Actual Target Actual Red 37% 40% 33% 27% 20% Yellow 35% 20% 32% 36% 20% Green 28% 40% 35% 37% 60%
More detail of the activities and priorities is given in Annex 2. The Board also responds to Nationally issued targets and information requirements and seeks to interpret these in the light of local circumstances. 13. Highlights of Gwent’s performance with the most recent data is as follows:
Measure National Target Gwent Performance IneVective Trials Magistrates 25% 21% IneVective Trials Crown 17% 15% Persistent Young OVenders 71 days 56 days Timeliness Indictable·Either way 75 days 4 days Timeliness All Cases 33 days 28 days Timeliness Crown Court 78% 95.5% Fines Enforcement 78% 121%
14. All of these figures serve to highlight the benefits of joint agency working as exemplified by the Criminal Justice Board itself. Through co-operative working the ineVective trial rate in Gwent has been brought down from 35% to 21%. There is still work to be done in this area and further improvement is sought. 15. Gwent consistently meets the target for Persistent Young OVenders both through close partnership working and through eVective monitoring of performance and targeted action. The board is now working on the Prolific and Other Priority OVenders Scheme (POPOS) which will identify the small number of oVenders who commit a disproportionate amount of crime. 16. Gwent’s fines enforcement regime, using a call-centre system, is among the highest performing areas in the country. 17. Gwent is one of nine areas in the country operating a specialist Domestic Violence Court and this model is now being promulgated to the rest of the country.
C. Problems Faced by LCJBs 18. Inevitably with the number of agencies involved in the board, turnover of staV aVects performance. The Courts have had a new Chief OYcer in 2004, the CPS have just appointed a new Chief OYcer who takes up post in January, and the Chief Constable changed in April. Changing three out of four key agency heads and the Performance OYcer in the same year has undoubtedly disrupted some of the GCJB’s work. 19. The translation of National goals into local targets is consultative, albeit on sometimes very short timescales. For example, enforcement is very well controlled in Gwent, yet it remains a key national goal upon which resources must be devoted simply in order to gather and verify detailed data. 20. The credibility of data is an issue for Gwent. There is a time lag in the provision of data from the centre which leads to a loss of immediacy and eVectiveness, and the reconciliation of local with national data is often problematic. For example analysis continues into the true figure of OVences Brought to Justice for 2003–04. Local data indicates some 19,000 oVences while national data reports some 16,000. 21. National initiatives are too frequent and risk diversion of local resources from local issues. For example the EVective Trial Management Programme covers much of the same ground as our existing and increasingly successful local eVort to reduce ineVective trials. The ETMP though has very specific requirements. An example would be the requirement for some changes to be implemented and attributed Welsh Affairs Committee: Evidence Ev 369
to ETMP by March 2005. Gwent has already implemented local pre-trial reviews with joint certificates of readiness, central listing for magistrates’ courts with a case progression function, so these could not be “registered” as changes due to the programme.
D. Impact on the Community
22. The GCJB has commissioned research into confidence in the criminal justice system locally and attends a number of local events such as the Eisteddfod as well as court open days. 23. One of the early debates of the Board was what its own profile should be. The Board has earmarked £30,000 for communications work and retained the services of a professional communications firm. 24. The Board has funded the provision of Language Line for court users who require translation.
E. Anti-Social Behaviour Orders
25. Anti social behaviour is a major national and local concern. In Gwent ASBOs already work through a well-established joint protocol between the agencies. There is a problem solving approach which includes parents and carers, with ASBOs available as one part of the toolkit. All ASBOs requested to date have been heard on the local authorities’ preferred date. No ASBO request has been refused by the Courts, and all breaches have led to custodial sentences. 26. To put the issue in perspective, 21 orders have been made in the 12 months ending November 2004. 28. Magistrates in Gwent have had two full training sessions on ASBOs, and all magistrates have been advised that the guideline entry point for sentencing on breach is custody. Simon Boyle Lord Lieutenant of Gwent 12 January 2004
Annex 1
GWENT CRIMINAL JUSTICE BOARD GROUP STRUCTURE
Annex 1 Gwent Criminal Justice Board Group structure
GCJB
Chair
Simon Boyle
Lord Lieutenant of Gwent
Performance and Confidence and Ineffective trials Youth Case Operations Communications Chair Progression Chair Chair Eddie Harding Chair Howard Matthews Mike Tonge Justices’ Clerk Craig Bond Acting Chief Executive Chief Constable of Gwent Gwent MCC Lawyer, CPS Gwent MCC Ev 370 Welsh Affairs Committee: Evidence
Annex 2
Gwent Criminal Justice Board Goals and priorities
NB Information marked NA was not available at the time of preparation but can be made available.
Goal. Increase the Number of OVences Brought to Justice. GCJB Sponsor CPS Priority A. To increase the number of oVences for which a caution, reprimand or full warning is given, the number of oVences taken into consideration and the number of charges brought to conviction. 10 Activities FY03/04 FY04/05 FY05/06 Target 18,560 [38%] 18,834 [39%] 19,112 [40%] Output 19,264 NYA — Red 40% Yellow 50% Green 10%
Goal. Tackle Persistent OVenders GCJB Sponsor Probation Priority B. To increase the number of oVences brought to justice committed by Persistent OVenders. 9 Activities FY03/04 FY04/05 FY05/06 Target 3,108 3,142 3,177 Output Not yet collected Scheme to be drawn up — Red 33% Yellow 44% Green 22%
Goal. Tackle Persistent OVenders GCJB Sponsor YOT Priority C. To maintain the period between arrest and sentence for Persistent Young OVenders at 71 days or less. 10 Activities FY03/04 FY04/05 FY05/06 Target 71 days 71 days 71 days Output 62 days 56 days —
Red 40% Yellow 0% Green 60%
Goal. Ensure the Courts Deal with OVenders Speedily and EVectively. GCJB Magistrates Sponsor Courts
Priority D. To reduce the proportion of all ineVective trials listed in the Magistrates’ Court. 10 Activities FY03/04 FY04/05 FY05/06
Target 30% 25% 20% Output 30% 21% —
Red 10% Yellow 50% Green 40% Welsh Affairs Committee: Evidence Ev 371
Annex 2
Gwent Criminal Justice Board Goals and priorities NB Information marked NA was not available at the time of preparation but can be made available.
Goal. Ensure the Courts Deal with oVenders Speedily and EVectively. GCJB Court Sponsor Service
Priority E. To reduce the proportion of all ineVective trials listed in the Crown Court. 7 Activities
FY03/04 FY04/05 FY05/06
Target 15% 15% 15% Output 17% 15% —
Red 0% Yellow 57% Green 43%
Goal. Ensure the Courts Deal with oVenders Speedily and EVectively. GCJB Magistrates Sponsor Courts
Priority F. To dispose of all cases tried in the Magistrates’ Courts within target times. 5 Activities
FY03/04 FY04/05 FY05/06
Target 87% To be fixed by Board To be fixed by Board Output 88%
Red 0% Yellow 0% Green 100%
Goal. Ensure the Courts Deal with OVenders Speedily and EVectively GCJB Court Sponsor Service
Priority G. To dispose of all cases tried in the Crown Court within target times. 8 Activities
FY03/04 FY04/05 FY05/06 Target 90% 91% 92% Output 93.81% 95.5% —
Red 12.5% Yellow 37.5% Green 40%
Goal. Improve the Victims and Witness Satisfaction in Criminal Justice. GCJB CPS Sponsor
Priority H. To improve the satisfaction of victims and witnesses with the criminal justice system in Gwent. 11 Activities FY03/04 FY04/05 FY05/06
Target (60% (70% (80% Output NA NYA —
Red 18% Yellow 45% Green 37% Ev 372 Welsh Affairs Committee: Evidence
Goal. Improve Public Confidence in the Crimnal Justice System. GCJB Police Sponsor Priority I. To improve the confidence of the people of Gwent in their criminal justice system. 8 Activities FY03/04 FY04/05 FY05/06 Target (50% 60% 65% Output 49% NYA — Red 75% Yellow 25% Green 0%
Annex 3
List of invitees to Gwent Criminal Justice Board Consultative Group seminar GCJB Chairman Courts Service HMCSI Probation Police GCJB Members Magistrates Courts YOTs Prosecution Justices’ Clerks Society Prisons (Information only) Performance OYcer Blaenau Gwent Crime Reduction Partnerships Caerphilly Crime Reduction Partnerships Monmouthshire Crime Reduction Partnerships Newport Crime Reduction Partnerships Torfaen Crime Reduction Partnerships Judiciary Magistrates Victim Support SE Wales Race Equality Council Commission for Racial Equality Local Authorities: Blaenau Gwent CBC Caerphilly CBC Monmouthshire CC Newport CC Torfaen CBC Police Authority National Health Service (DTTO) Legal Commission Wales OYce LP & DSU AM’s for Gwent Media (Editors): South Wales Argus Western Mail
18. Written evidence from Nacro Cymru Nacro Cymru, the crime reduction charity in Wales, welcomes the opportunity to submit written evidence to the Welsh AVairs Committee in relation to the Police service, crime and anti-social behaviour in Wales Inquiry. Nacro Cymru’s role and experience of working on crime reduction issues means we are able to respond to the following areas of the inquiry: — Tackling anti-social behaviour and reducing volume crime — The reassurance agenda — Partnerships. Welsh Affairs Committee: Evidence Ev 373
Tackling anti-social behaviour and reducing volume crime Nacro Cymru advocates that local areas should seek to tackle anti-social behaviour as part of a balanced strategy, which includes prevention, education, enforcement and rehabilitation. A focus on one type of intervention at the expense of others can only result in a quick fix at the expense of any long term solutions. Nacro Cymru believes that the three main elements to tackling anti-social behaviour should be: — A mix of interventions, including prevention, education, enforcement and rehabilitation. — Interventions should be targeted at three levels: universal; groups or localities particularly at risk; and individuals particularly at risk. — Interventions should both target risk factors and seek to maximise protective factors. Nacro Cymru is also concerned about the geographical variations in tackling anti-social behaviour, both across England and Wales, and within Wales. In relation to the use of Anti-social Behaviour Orders (ASBOs) we believe there should be an integrated and graded approach, as used in police areas such as Devon and Cornwall, and community safety areas such as Rhondda Cynon TaV. In these areas ASBOs are used in a tiered format, with youth or police oYcers using diversion work to keep young people out of trouble. Nacro is concerned by the current arrangements for Breach of an ASBO and by the findings of a recent NAPO survey which highlights the number of young people being placed in custody as a result of breaching an ASBO. Nacro would like to see more use of division and education as part of breach. Nacro Cymru welcomes the recent changes to the Home OYce Public Service Agreements (PSAs) in relation to volume crime. In the past, requiring all local areas to reduce volume crime by certain levels caused problems for those areas where burglary and vehicle crime were not such an issue. The new PSA targets allow local partnerships to identify and tackle local key issues, and this must be allowed to remain.
The reassurance agenda Nacro Cymru is concerned that one of the main issues within the public reassurance agenda is matching public expectations with the ability of criminal justice agencies to deliver. For example, while the public may demand a police oYcer on every corner, resources dictate that this could never be possible. Therefore, agencies need to work with communities to ensure that the public understand resource pressures and action is targeted at areas which meet local need within limited resources. As part of this process it is particularly important that young people and other “hard-to-reach” communities are fully involved in the community consultation process. Nacro Cymru is also concerned about the use of “fear of crime” surveys to record levels of fear amongst the public. There should be clearer guidelines in the use of such surveys and the way results are taken and analysed. If used inappropriately, fear of crime surveys can simply exacerbate the issue. Nacro Cymru is particularly concerned that all sections of the community, especially minority groups, are able to feel safe and do not fear crime. The Home OYce PSA outlines the need to “reduce race inequality and build social inclusion”. Nacro Cymru is aware that this must apply equally to all areas, regardless of the number of minority groups in a locality. In fact, in areas where there are fewer ethnic minority groups, individuals can feel more isolated and in fear of crime. We believe it is important to provide support for virtual and isolated groups, and would encourage agencies to think about methods of providing this support, including telephone and internet support.
Partnerships In Wales, Nacro Cymru would welcome a form of co-ordination and strategic development across all 22 Community Safety Partnerships. Nacro Cymru fully supports the work of the All Wales Community Safety Forum and believes that this group has a key role to play in consolidating community safety issues on an all-Wales basis and dealing with strategic matters of importance. Such a forum provides an excellent way of gathering new policy and practice ideas on community safety and could provide local agencies in Wales with a voice to report back to the Welsh Assembly Government and the Westminster Government. Nacro Cymru believes that there should be a clearer and more significant role for voluntary and community sector organisations on local community safety partnerships. Indeed, the Home OYce PSA sets targets in relation to “increasing voluntary and community engagement”. More resources should be put forward to allow voluntary and community groups to contribute to local community safety partnerships. Meanwhile, there should be a clear expectation that community safety partnerships should provide mechanisms so that voluntary and community groups are engaged at an operational and strategic level. In Manchester, Nacro has been funded to develop a voluntary sector community safety forum, and this provides an excellent example of how the sector can be engaged within community safety partnerships. Nacro Cymru would like to see a review of Section 17 of the Crime and Disorder Act 1998, in order to build confidence in the viability and applicability of Section 17 as a driver for delivering tangible community safety gains for local communities. The purpose of this section of the Act was “to give the vital work of Ev 374 Welsh Affairs Committee: Evidence
preventing crime a new focus across a very wide range of local services”. Nacro believes that although Section 17 remains a powerful vehicle, its implementation has been variable, particularly because of a perceived “lack of teeth”—few sanctions appear to have been imposed on authorities who do not implement Section 17, and responsibility across local authorities has remained “ghettoised” within community safety teams. Nacro Cymru 18 January 2005
19. Written evidence from CardiV Women’s Safety Unit
Inquiry into the Police Service Crime and Anti-Social behaviour in Wales. — Following my verbal submission to the committee on 1 November 2004 I wish to submit this written evidence. — Domestic Violence accounts for 25% of all violent crime, it is by its nature volume violent crime but has not been treated as such in the past being seen as a chronic social problem without resolution , this has left frontline staV feeling powerless. — The Cost of Domestic Violence (Sept 2004 ) by Sylvia Walby, estimated the cost to the criminal justice system in the UK at £1 billion, this accounts for 25% of the CJS budget for violent crime. —TheCardiV Women’s Safety Unit was established in December 2001 and provides a multi-agency response to domestic violence using a fast-tracked criminal justice process. Repeat victimisation ( repeats are the measure by which Police forces are assessed in dealing with domestic violence, a repeat is when a victim is assaulted twice within a year period) for domestic violence in CardiV was 30% in November 2001 and is now 8% in November 2004. This massive reduction in repeat victimisation reduces cost significantly for all agencies across the city and reduces harm, possibly saving lives. — The 2002 University of East Anglia review of Welsh Part 8s (child death and serious harm reviews) indicates that domestic violence is a feature in 70% of our child death and serious harm in Wales. (This is further evidence to the 1999 review which again indicated the 70% figure). Therefore the integration of child protection and criminal justices approaches to domestic violence is key to protecting the public. — CardiV Women’s Safety Unit has been instrumental in reducing repeat victimisation for domestic violence victims/survivors by working with South Wales Police and others to develop and roll-out a front line risk assessment process which allows all agencies to target high risk cases and prolific victims, oVering them wrap-around advocacy services to keep them and their children safe in their homes (attached advocacy definition). — The multi-agency risk assessment tool is currently used by all front line Police staV in South Wales and is in the process of being adopted into a care pathway for all Welsh midwives and health visitors (attached risk assessment tool). — Information sharing has proved to be a barrier to eVective multi-agency working, this has been overcome in CardiV by the development of a multi-agency information protocol, and also the citing of a Police OYcer within the CardiV Women’s Safety Unit has encouraged a smooth flow of information. — Once high risk cases are identified then multi-agency risk assessment conferences (MARAC) are held on a fortnightly basis involving up to 15 agencies city wide. These cases are then given an action plan which is delivered immediately by all agencies sometimes working in diVerent combinations to deliver safety to the victim and their children (62% of high risk cases MARAC’D do not present to agencies for further assaults at the six month follow up period, therefore these are real solutions). — Prior to the development of the MARAC system high risk domestics (50% of the murders of women in South Wales are by partner or ex-partner) rarely had the previous convictions to merit inclusion in the MAPPA( Multi-Agency Public Protection Arrangements) process. Therefore excluding a high risk group as they were just domestics. — To reduce repeat victimisation we have in CardiV prioritised domestic violence cases across the CJ system. The CardiV model targets resources to risk giving the city the lowest repeat victimisation figure and one of the highest arrest rate figures in the UK. — To further reduce repeats we must target prolific perpetrators oVering them intensive packages to change behaviour, these programmes must be available within the CJS and on a voluntary basis within the community for those perpetrators who do not enter the CJS system. Welsh Affairs Committee: Evidence Ev 375
In conclusion the CardiV Women’s Safety Unit has reduced domestic violence in the city through risk assessment, multi-agency information sharing (MARAC), advocacy and fast tracking and prioritising domestic violence cases through a streamlined criminal justice system. Domestic violence/abuse needs to be seen as part of a broad spectrum of public protection Issues ranging from injury to pets to child protection to domestic violence to known perpetrators sexual assaults and inevitably to stranger sexual violence. By addressing domestic violence in a professional and structured way with interventions based on research we have been able to increase public safety for victims/survivors, their children and even perpertrators. 17 January 2004
20. Written evidence from Victim Support Wales Victim Support is the national organisation for crime victims, witnesses, their families and friends. We oVer a range of services, whether or not a crime has been reported. These are delivered locally by staV and volunteers who are trained to help people cope with the eVects of crime. We are an independent voluntary organisation. We work alongside the criminal justice system, government, and other organisations nationally and in local communities. We work to promote the rights of victims and witnesses. Victim Support provides information, practical help and emotional support to people who have experienced a crime, and to their families and friends. Our services are based on the principle of community involvement—for many people, the expression of concern by a fellow citizen can be very helpful in repairing the harm done by crime. We try to ensure that our volunteers reflect the diversity of the communities in which they work and that our services are equally accessible to all. All criminal courts in England and Wales now have a Witness Service, managed by Victim Support. Trained staV and volunteers help victims, witnesses and their families and friends at court by familiarising them with the court before the hearing, supporting on the day, giving information about court procedures, and arranging further help after court Victim Support Wales is the umbrella organisation for Victim Support charities in Wales. Victim Support Wales seeks to develop additional capacity to meet the needs of victims and witnesses throughout Wales. Victim Support in Wales consists of five Areas: Dyfed, Gwent, North Wales, Powys and South Wales. Each is an independent charity and member of the National Association of Victim Support Schemes (NAVSS). Areas are responsible for the delivery of services to victims and witnesses in their area. Together we promote the development of strong and safe communities, reducing the fear of crime and encouraging confidence in the criminal justice system in Wales. We achieve this by promoting the rights of victims and witnesses and by co-ordinating the delivery of high quality support services to victims and witnesses throughout Wales
Services Provided by Victim Support in Wales
Victim Support Dyfed
Victim Support Dyfed operates in Carmarthenshire, Ceredigion and Pembrokeshire In Dyfed there was a 30% increase in referrals from crime victims during the past year (to nearly 6,500). The Witness Service in Dyfed during the past year supported three times as many people as in the previous year (over 1,600) at the seven magistrates’ courts and two satellite Crown courts. Improvements in the service this year have included special facilities for witnesses who are vulnerable or intimidated, making earlier contact and special arrangements to avoid intimidation on the day of the trial. Services are also available to support defence as well as prosecution witnesses. There are more fatal road collisions per capita in Dyfed than any other area in Wales. In response to that and in collaboration with Victim Support Powys, a service has been developed for families who have been bereaved by death on the road. Priorities for the coming few years include: — Outreach into hospital A&E departments, to ensure information is available at these busy locations. — To train volunteers in dealing with young victims and witnesses.
Victim Support Gwent The Victim Support Gwent Area is co-terminus with that of Heddlu Gwent Police Authority. Currently there are community-based oYces in each of the County Boroughs of Caerphilly Blaenau Gwent and Torfaen, the County of Monmouthshire and the city of Newport. Witness service oYces courts in the crown court and each principal magistrates’ court. The Area Committee has identified and the report of the National Audit OYce on the work of Victim Support indicates that there is a need to reach victims: Ev 376 Welsh Affairs Committee: Evidence
— Who do not report crime; — Who are reluctant to attend police stations; — Are from diverse sections of the community and do not feel able to access our services; — That are referred but are unable or unwilling to be seen in their homes or at a police station; To this end VS Gwent has sought to establish branch oYces where they are more easily accessible and enable the organisation to raise its profile in order to ensure our services are more widely known and used. Two oYces have been established in the local community and a third is soon to open.
Victim Support North Wales Victim Support North Wales was established in 1988. This followed the amalgamation of the local schemes based on the boundaries of the 617,000 hectares of the North Wales Criminal justice area. Serving a population of 663,744 Victim Support North Wales is committed to providing the best possible service to all victims of crime. Victim Support North Wales has five oYces covering Mn/Gwynedd, Conwy, Denbighshire, Flintshire and Wrexham and provide an outreach service for the most rural areas as well as oVering a bilingual service in Welsh and English when requested. Victim Support’s Witness Service serving both Crown and Magistrates was inaugurated in 2001 and further developments have included an enhanced service for vulnerable and intimidated witnesses. Future Priorities; — To train volunteers in dealing with young victims and witnesses. — Ensuring that all national quality standards are met. — Supporting people bereaved by road traYc fatalities. — Assisting with emergency planning and mass fatalities.
Victim Support Powys Established in 1986 and serving 126,000 people in an area of 2,000 square miles, Victim Support Powys has oYces in Newtown, Llandrindod Wells, Brecon and Ystradgynlais. The Witness Service, serving magistrates’ courts throughout Powys, has been running well for four years. Support is also given to witnesses who have to travel to Crown Courts outside Powys. Witness Service priorities are to enhance the services to vulnerable and intimidated witnesses especially children. Since 2002, in partnership with our colleagues in VS Dyfed, VS Powys has oVered a service to support people bereaved through fatal road collisions. They have developed a successful service model in close co- operation with Dyfed-Powys Police that may form the basis of a Wales-wide service. As a further development of this work a service to support people at the Coroner’s Court is under consideration. Priorities for the coming few years include: — Developing our learning programme to enhance the skills of staV and volunteers. — Ensuring that we meet all national quality standards. — Exploiting IT in order to share information and operate more eYciently.
Victim Support South Wales Victim Support South Wales was set up on 1 October 2003, following the merger of the 10 former Victim Support schemes in the South Wales criminal justice area. This included 10 Victim Services, 10 Magistrates’ Court Witness Services and 3 Crown Court Witness Services. An Area Plan was put in place with objectives to be met over the 2004–05 period to ensure that Victim Support South Wales becomes a corporate unit. In the first six months of operation Victim Support South Wales staV and volunteers supported 11,290 victims of crime and 4,348 witnesses of crime, in both the Magistrates’ and Crown Courts. A training needs analysis established that a large number of potential volunteers were awaiting training. This priority issue has been resolved with in excess of 50 existing and new volunteers attending the core training programme, and progress being made in identifying staV training needs. Priorities for the coming few years include: — Achieving consistent standards and provision of service across South Wales. — Recruiting and training further and existing volunteers within the NVQ framework. — Identifying eYciency savings to be fed back into improving service quality. Our priorities for 2005–08 are: To enhance quality service standards and share resources throughout Wales we will: Welsh Affairs Committee: Evidence Ev 377
— Extend national quality standards and ensure they are appropriate for the people of Wales. — Share personnel, skills, experience, information and other resources within Wales. — Promote equality and inclusion throughout every aspect of our work. — Support the development of ICT infrastructure throughout Wales to underpin eVective management of information to the benefit of victims and witnesses. To promote learning opportunities and the development of transferable skills we will: — Support the delivery of local and Wales-wide training courses. — Develop additional training materials for Victim Support in Wales by working with partners. — Promote IT skills for our staV and volunteers to maximise the potential benefits of ICT. — Apply the principles of life-long learning and equip our staV, volunteers and trustees with transferable skills. To ensure greater public awareness and to enhance our public profile we will: — Ensure all general information leaflets are available in Welsh. — Develop and promote a new bilingual corporate identity for Victim Support in Wales. — Develop eVective relationships with the media to ensure that our services and work to promote victim and witness issues receive maximum publicity. — Ensure that the views and policies of Victim Support are presented to Wales-wide bodies and in the development of government strategies in Wales.
— Develop a bilingual web site for people in Wales to access information on our services and contact details with links to other sources of information and assistance. To make additional funds available to benefit victims and witnesses in Wales we will: — Develop and deliver a long-term, sustainable funding strategy. — Secure funding from statutory bodies (criminal justice agencies, local government and others). — Secure funding from trusts, charitable bodies, and others. — Develop opportunities for corporate sponsorship. — Promote opportunities for the public to maximise their donations. — Act as the lead agency with Victim Support Areas in All Wales consortium bids.
Victim Support’s Work in Wales
Figures for April 2003 to March 2004
Victim Service 2003–04 Total number of victims referred 63,665 Domestic violence referrals 3,798 Racially motivated crime referrals 568 CICA claims initiated 951 Sexual crime referrals 1,147 Homicide referrals 81 How we contacted victims Number of contacts by letter 52,662 Number of contacts by phone 12,332 Number of home visits 4,235 Witness Service Total number of witnesses supported 20,638 Crown Court Witness Service Number of witnesses supported 6,248 Number of pre-trial visits 1,107 Number of other types of support 9,977 Magistrates Court Witness Service Number of witnesses supported 14,390 Number of pre-trial visits 3,814 Number of other types of support 21,325
500 Volunteers and 80 paid staV work for Victim Support in Wales Ev 378 Welsh Affairs Committee: Evidence
Victim Support and the Police in Wales Victim Support has and continues to work very closely with the Police. Many Victim Support oYces are located in police stations and Victim Support staV and volunteers usually have regular contact with oYcers on a local, an area and on a national level. Victim Support staV frequently provide some input on core training courses for police oYcers. The Wales Learning Manager also contributes to the training of CID level one and CID level 3 (sexual oVences) and Family Liaison OYcer training. The Victim’s Charter (1996), produced by the Home OYce, sets out the standards of service victims of crime can expect. Victim Support is bound by the charter. Prior to 1998 the contact details of victims of the following crime categories were automatically passed on to Victim Support: — burglary; — theft (other than theft of/from cars); — robbery; — assaults (other than domestic violence—please see below); — harassment (including racially motivated harassment); — criminal damage against private premises; — arson. Victims of the following crimes prior permission had to be sought before details were passed on to Victim Support: — sexual crime, including rape; — manslaughter and murder; — domestic violence. In those cases, the consent of the victim, or in the case of homicide the bereaved individual(s), was required before a referral could be accepted. However, after the introduction of the Data Protection Act 1998, there was a significant drop in the number of referrals made to Victim Support. Many police authorities were worried that the practice of making automatic referrals were not in accordance with data protection principles. As a result, contact details were only passed on to Victim Support if a Police OYcer had asked and gained the victim’s prior permission. Inevitably hard pressed police oYcers sometimes forgot to ask a victim if they wanted Victim Support and for many victims the question of whether they wanted support came too close to the event for them to be able to think clearly. Victim Support has been working for some time now with ACPO, the Home OYce, the Crown Prosecution Service and the Information Commissioner to put procedures in place for the referral of victims. However, on a local level some confusion still exists and as a result there is a huge diVerence in the numbers of victims referred to Victim Support. Victim Support is bound by the response times detailed in the Victim’s Charter when following up automatic referrals. The charter says that Victim Support will normally send a letter, contact the victim by telephone, or arrange a visit from a volunteer within four working days of the crime being reported. This standard can only be met if the police meet their standard of referral to Victim Support within two working days of the crime being reported. Later referral to Victim Support will result in later victim contact. Should you require any further information please do not hesitate to contact me. Jon Trew National OYcer 17 January 2004
21. Written evidence from the Police Authorities of Wales
CRIME AND ANTI-SOCIAL BEHAVIOUR IN WALES
Introduction 1.1 In response to the invitation to interested parties to submit written evidence to the Welsh AVairs Committee Inquiry into the Police Service, Crime and Anti-Social Behaviour in Wales, the four Police Authorities in Wales, submitted evidence through their member association, the Police Authorities of Wales (PAW). Welsh Affairs Committee: Evidence Ev 379
1.2 This initial submission was made up of two pieces of written evidence previously submitted to other Committees, namely the Association of Police Authorities’ (APA) submission to the Home AVairs Committee Inquiry into Police Reform, which addressed the feelings of all police authorities in England and Wales on police reform, including the National Policing Plan, performance and resources, and PAW’s submission to the Richard Commission, which detailed views on the impact of devolution and the division of power between Westminster and CardiV. 1.3 In response to a further invitation by the Committee, PAW wishes to submit the following additional written evidence to the Inquiry, based on the following terms of reference: — The National Policing Plan and its relevance to Wales. — The Performance of Welsh Police Forces (compared to forces in England). — The division of powers and the working relationship between the UK Government and the National Assembly for Wales on Policing Matters. 1.4 As stated in the previous submission, PAW does not intend to submit evidence on operational policing issues in respect of crime and anti-social behaviour in Wales, as PAW is aware that the Committee would have received this from the written and oral evidence of the Chief Constables in Wales. Rather, PAW’s evidence will provide a strategic overview of the position of the four Police Authorities in Wales in respect of policing in Wales, based on the terms of reference.
2. Police Authorities of Wales (PAW) 2.1 Police Authorities comprise a majority of Councillors from constituent councils within their area, Magistrate Members and Independent Members. The Statutory responsibilities of Police Authorities are attached at Annex A. As an overview, however, Police Authorities are responsible for: — Setting the budget for their police force, including the levels of council tax. — Determining the strategic direction for local policing through three-year and annual plans. — Consulting local people about what they think are the most important things the police should be doing and setting local and policing priorities in the light of that consultation. — Setting their force challenging targets to drive performance higher. — Continuously monitor force performance against those targets and regularly report to local people on how well the force is doing. 2.2 PAW is an unincorporated membership association comprising representatives from the four Police Authorities in Wales—Dyfed-Powys, Gwent, North Wales and South Wales. 2.3 The main aims of PAW are: — Consider and act upon issues aVecting policing in Wales, particularly those that are under the control of the National Assembly for Wales. — Maintain a broad Welsh prospectus on police matters. — Promote and protect the interests of member Authorities. — Seek to influence the policing agenda at a national level on behalf of Police Authorities and local communities in Wales. — Support Police Authorities in securing eYcient and eVective policing services across Wales. — Enable Police Authorities to improve. — Promote awareness of policing needs and the role and achievements of Police Authorities. — Uphold and champion the principles of local accountability and policing by consent. 2.4 Through the medium of PAW regular meetings have been held between the Chair and the four Police Authorities and the Minster for Social Justice and Regeneration in the Welsh Assembly, Edwina Hart, and the Minister for Finance, Local Government and Public Services, Sue Essex. These meetings have proved invaluable in helping to promote a joined up approach to tackling social problems in Wales and an understanding of the financial needs and constraints on the Police Service, particularly at the time of setting the Police Precept in February each year. 2.5 The four Police Authorities in Wales are also full members of the APA which represents all police authorities in England, Wales and Northern Ireland as well as the newly established British Transport Police Authority. As well as meeting in Plenary sessions the APA convenes a number of special groups including the Community Leadership Group, which Councillor Malcolm King, Chair of the North Wales Police Authority, Chairs. The APA acts as a voice across England and Wales for Police Authorities and disseminates advice and good practice. Members of the Committee may be aware of briefings on Police Finance which the APA and the Association of Chief Police OYcers (ACPO) recently arranged for MPs. 2.6 Because of its geographical position the North Wales Police Authority also liaises at Chair, Chief OYcer and Clerk level with the North West Region comprising Cheshire, Merseyside, Lancashire, Cumbria and Greater Manchester. Considerable co-operation exists between Forces, particularly with Cheshire. Ev 380 Welsh Affairs Committee: Evidence
3. The National Policing Plan 3.1 The National Policing Plan, which resulted from the Police Reform Act 2002, sets out the government’s framework and context for policing. It sets national priorities for the police service and the indicators against which performances are judged. The Home Secretary’s key priorities for 2004–07 as detailed in the National Policing Plan are: — Providing a citizen focused service to the public, especially victims and witnesses, which responds to the needs of individuals and communities and inspires confidence in the police particularly amongst minority ethnic communities; — Tackling anti-social behaviour disorder; — Continuing to reduce burglary, vehicle crime, robbery and drug related crime in line with the government’s Public Service Agreement targets; — Combating serious organised crime, both across and within force boundaries; and — Narrowing the justice gap by increasing the number of oVenders brought to justice. 3.2 These key priorities are duly reflected in the Three-Year Strategies and Annual Policing Plans produced by the four Police Authorities and forces in Wales. 3.3 Additionally, to support these national priorities, the Annual Policing Plans also consist of local policing priorities, which are issues of importance to the local communities served by each Police Authority. These local policing priorities are formulated through a series of public consultation exercises undertaken by individual Police Authorities. Some of the local priorities included in the Annual Policing Plans of the Welsh Police Authorities and forces are as follows: — Increasing the time that front line oYcers spend within their communities. — In partnership with other agencies, target and reduce the violence and abuse suVered by vulnerable people, in particular within areas of child protection, domestic violence and hate crime. — Roads policing. — Business and retail crime. — Football related disorder. — Gun crime. — Drug crime. 3.4. PAW welcomed the original proposals for a National Policing Plan as a vehicle for bringing together in one place the government’s strategic expectations and key national priorities for the service. Furthermore, PAW recognises the importance and validity of the key national priorities set by government. In particular, tackling anti-social behaviour is consistently the issue that remains at the top of the agenda for communities throughout Wales. At the same time, however, PAW believes that a tension exists between responding to nationally prescribed priorities and responding to local needs. Not only is consultation with local communities a statutory obligation for Police Authorities, it is also a long-valued endeavour and responsibility. PAW firmly believes that policing by consent should be at the heart of the police service. Conversely perhaps, this principle is also set out in the National Policing Plan, which outlines the importance of delivering policing to national standards within a dynamic and increasingly engaged local environment. Community engagement is also one of the Home Secretary’s underpinning themes for policing and police planning and is also a major theme in the government’s reform agenda.
3.5. PAW’s belief is that policing needs to ensure a customer-focus approach. Such community- responsive policing is integral in aiding the feeling and perception of safety and well-being in communities. PAW endorses the position of the APA, which is keen to see the next national plan strike a better balance between setting clear strategic direction for the police service based on a few key national priorities and giving scope for authorities and forces to tackle issues which concern local communities. 3.6 The Committee will have already received operational details from the four police forces in terms of tackling anti-social behaviour and reducing volume crime, and tackling serious and organised crime, via the oral and written testimony of the Chief Constables. As such, PAW does not intend to comment on these operational matters. PAW does wish to emphasise, however, that it has been very alive to the need both to tackle anti-social behaviour as a main priority, and also to provide reassurance to the public. 3.7 The Committee will also have received evidence from the Chief Constables in respect of Community Safety Partnerships (CSPs). PAW would like to supplement this evidence received by the Committee by commenting on the role of Police Authorities on CSPs. 3.8 Following the Police Reform Act 2002, in addition to the police forces, Police Authorities also have statutory membership on CSPs. Police Authorities in Wales have welcomed their involvement in the work of CSPs. PAW recognises the major role of CSPs in bringing about multi-agency working in reducing crime and disorder based on a three year strategy prepared by each CSP following extensive consultation. The findings of the Police Authorities’ consultation to help inform the local priorities to be contained within Annual Policing Plans are also considered alongside the priorities identified in CSP strategies. Welsh Affairs Committee: Evidence Ev 381
3.9 Although neither PAW nor its constituent Police Authorities has yet had an opportunity to formally consider the recently published White Paper on Police Reform—Building Communities, Beating Crime: A Better Police Service for the 21st Century—it is likely that the proposals for increased accessibility of the Police, local engagement and partnership working will be warmly welcomed. Additionally, PAW welcomes the review of CSPs as detailed in the White Paper, which it is hoped will also improve the eVectiveness, transparency and accountability of CSPs. 3.10 To some extent the changes proposed by the White Paper have already been pre-empted by Police Authorities. For example, in certain areas of North Wales Neighbourhood Policing Meetings and Area Inspector and County Councillor meetings are already taking place. These supplement the more traditional Police and Community Consultative Group Meetings, which have been held for a number of years. In addition, regular meetings take place between the Divisional Commander in each Division and the Police Authority Members who live in or represent that Division.
4. The Performance of Welsh Police Forces 4.1 Ensuring that police forces continually improve their service and deliver the highest standard of policing to local people is one of the principal responsibilities of Police Authorities. 4.2 The performance of police forces is largely measured and monitored within the parameters of the Policing Performance Assessment Framework (PPAF). PPAF is a framework for measuring and comparing strategic performance in policing, and has been designed to assess performance across the breadth of policing responsibilities. Insights into the performance of police forces are also provided by “Baseline Assessments” produced by HMIC. These assessments grade the performance of individual forces as either excellent, good, fair or poor against the 27 areas of police activity. 4.3 Each police force in Wales is grouped in a family of around eight forces that share similar socio- economic, demographic and geographic characteristics against whom its performance is compared. The “most similar forces” family for each of the forces in Wales is as follows: Dyfed-Powys: Devon and Cornwall, Lincolnshire, Norfolk, North Wales, North Yorkshire, and SuVolk. Gwent: Durham, Hertfordshire, Humberside, Kent, Lancashire, Northamptonshire, and South Wales. North Wales: Devon and Cornwall, Dyfed-Powys, Gloucestershire, Lincolnshire, Norfolk, North Yorkshire, and SuVolk. South Wales: Avon and Somerset, Durham, Gwent, Humberside, Lancashire, South Yorkshire, and West Yorkshire. Each territorial division of Basic Command Unit (BCU) is also a member of a family of 15 most similar BCUs. 4.4 The performance of each Force is regularly monitored by its Police Authority. A brief outline of the structures to monitor performance within the four Police Authorities in Wales, is as follows: — In Dyfed-Powys the Best Value and Scrutiny Committee monitors the performance of the Police Force in relation to the Best Value Performance Indicators and progress towards targets set by the Authority in its Annual Performance Plan and by Crime and Disorder Partnerships. — In Gwent the full meeting of the Authority receives a Force performance report on a monthly basis. Performance against other targets, such as the eYciency plan, is monitored by the Strategy Committee. — In North Wales the Authority’s Performance Review Committee receives a copy of a monthly Management Information Bulletin on police performance and meets regularly to challenge or congratulate the Force on its performance as appropriate. Lead Members of the Authority have been nominated to examine particular areas of police performance in more detail. — In South Wales the Authority’s Planning and Performance Management Group and Scrutiny Panel is responsible for planning and performance issues as well as monitoring in the areas of the use of stop and search powers, sickness absence, and the retention, recruitment and progression targets in relation to ethnic minority staV. Data on the performance of individual police forces in Wales is contained in the Home OYce’s “Police Performance Monitoring Report—2003/04” which is available from—http :// www.policereform.gov.ukldocs/ppmO4-6.html. 4.5 The APA believe that there is evidence to suggest that a performance culture is beginning to be embedded in the police service, and PAW would support this view. This is due to a sustained focus on performance by police authorities and chief oYcers, as well as the Home OYce, and the eVorts of the Police Standards Unit. Ev 382 Welsh Affairs Committee: Evidence
4.6 However, over the years, the degree of central influence and control over policing has increased, culminating in the Police Reform Act 2002. This has been accompanied by a performance network which seeks to direct policing through a regime of national indicators, targets and centrally driven initiatives backed up by monitoring and inspection, and use of ring-fenced funding. This, in turn, has constrained the extent to which authorities and forces are able to focus on, and direct resources to, local priorities.
4.7 PAW believes that there is a need to recognise that truly responsive local policing services can only be achieved if there is scope to focus on issues that are of most concern to local people. There needs to be a fundamental shift away from central direction in favour of local flexibility. Police Authorities in Wales, through its national representative body, the Association of Police Authorities, has argued that the developing Policing Performance Assessment Framework (PPAF) must reflect performance against local policing priorities, as well as national performance measures.
4.8 The need to focus on local accountability and responsiveness is also relevant when discussing force performance. In line with the position of the APA, PAW acknowledges the important role that government plays in setting a broad strategic framework for policing and establishing, with tripartite partners, national minimum standards. National Standards, however, should not inhibit the capacity of authorities and forces to provide policing services that are tailored to the diverse needs of their local communities.
4.9 As part of their duty to maintain an eYcient and eVective Police Force, Police Authorities also monitor a wide range of other work carried out by their respective Forces. For example:
— Human Resources. Police Authorities have a duty to include a HR and Training Plan as part of the Annual Policing Plan. They also monitor the performance of their Forces in terms of sickness absence, recruitment, training, diversity etc. Chairs of Police Authorities are involved together with HMIC in the annual appraisal of their Chief Constables.
— Complaints. Complaints concerning the conduct of the Chief, Deputy and Assistant Chief Constables are the responsibilities of Police Authorities. The remainder of complaints against the Force or against particular oYcers are handled by Forces themselves but Police Authorities monitor how complaints are handled. In North Wales the number of complaints, the type of complaints and the outcome are reported regularly to the Professional Standards Committee. The Authority has developed a procedure by which Members of the Professional Standards Committee dip sample completed complaints files in the presence of a Senior Police OYcer and the Police Federation Secretary.
— Best Value. Local Authorities in Wales are subject to the Wales Programme For Improvement which has replaced Best Value. Police Authorities in Wales, however, continue to be Best Value Authorities. As such they continue to oversee a programme of Best Value Reviews, not only of themselves, but also of every aspect of the police service.
— Audit. Both the Police and Police Authorities are subject to extensive audit both internal and external by HMIC and the Audit Commission. Authorities receive the Audit Commission’s Annual Best Value report and Annual Management letter. The use of Finance and Resources are audited by HMIC. The latest report from HMIC graded North Wales as excellent, one of only six in England and Wales.
— Police Authority Assessment and improvement Framework. The Association of Police Authorities have developed a Framework for Police Authorities to undertake their own continuous improvement. This covers areas such as community engagement, performance management of the Force etc. The Improvement Programme has already been piloted in a number of Police Authorities prior to its implementation across Wales.
— Community Policing. Police Authorities are closely involved with exciting new initiatives in Community Policing. In North Wales a panel was set up which Councillor King chaired specifically to oversee the rolling out of the Community Beat Manager Programme in the Force Area. The Panel looked at how Beat Profiles were being prepared, the terms under which Community Beat Managers were appointed etc. The ultimate intention is to have the equivalent of a Community Beat Manager in each electoral area in North Wales, working in conjunction with other members of the policing “family“” including Special Constables, Community Support OYcers, Neighbourhood Wardens and volunteers. The Police Authority is also monitoring (and encouraging) the Dyna Ddigon initiative on which the Select Committee has already received evidence. Welsh Affairs Committee: Evidence Ev 383
4.10 Police Authorities are also working closely with their Forces to continuously update resources. — One development which is beginning to have a dramatic influence on police performance is the use of modern information technology. In North Wales an integrated Information Management programme is being rolled out which allows police oYcers instant access to a number of joined up programmes including case and custody, record management system, duty management system etc. — The rapid growth in the use of mobile phones has put call handling under strain throughout England and Wales. In Dyfed Powys a new call centre has recently been built which can be shared with the other emergency services. A similar facility is being planned in North Wales.
5. The Division of Powers and the Working Relationship Between the UK Government and the National Assembly for Wales on Policing Matters
5.1 Members of the Committee may be aware that evidence was given by PAW to the Richard Commission in 2003. PAW’s view is that if the powers of the National Assembly for Wales were increased to include policing then there could be advantages for policing in Wales. However, it was agreed by PAW that this would need extensive and inclusive discussion. In the event, the Richard Commission decided not to make recommendation’s relating to the devolution of additional power. It is PAW’s view that the diYculties which were highlighted in its submission to the Richard Commission still exist and any steps which can be taken to improve the situation would be welcomed.
5.2 The division of power between Westminster and CardiV is an area of concern for the Police Authorities of Wales. One of the key positive impacts of the devolution process is the ability to focus on issues that directly relate to Wales. As policing is not a devolved matter, however, only policy areas that influence policing are led by the Assembly. The transfer of power of related issues has lead to considerable confusion in practice in both CardiV and Westminster.
5.3 As the Assembly shapes policy in Wales the relationship between Welsh policy and Westminster policy becomes more complex in the area of crime and disorder and community safety. Legislation and policy from Westminster has to take into account that policy in Wales is distinct and this has not always been the case.
5.4 There are examples of Central Government Guidance and Statutory Instruments and Circulars not reaching Police Authorities in Wales because oYcials are not clear as to whether their area is relevant to Wales and there are other examples of Welsh issues being overlooked by Westminster departments. Three such examples are outlined below. — Code of Conduct for Police Authority Members The four Police Authorities in Wales with regard to Member conduct issues are required to follow Regulations issued by the ODPM and Guidance issued by the Standards Board for England. The requirements and Model Code are diVerent to those issued by the National Assembly. This means that our “Councillor” Police Authority Members have to have regard to two separate codes—(i) for their local authority and (ii) for the Police Authority. This can lead to confusion to Members but perhaps more importantly, to the public. As an aside, the Code and Guidance issued by the Assembly is far better than that in England. — Notice of Meetings Previously all local authorities (and Police Authorities) in England and Wales were statutorily required to give three clear days’ notice of their meetings and for agenda papers to be available. In 2002, the ODPM changed this in England but Police Authorities in Wales were omitted from the Statutory Instrument, although it made specific reference to include Police Authorities in England. This is clearly a case of a mix up by the ODPM and left police authorities in Wales in a position of uncertainty in relation to the matter. — Access to Information The ODPM has recently undertaken a consultation exercise on recommended changes to regulations relating to exempt information. The draft statutory order, however, omitted Police Authorities in Wales, referring only to Local Authorities and Police Authorities in England.
5.6 These are examples that cause inconvenience and confusion for Police Authorities in Wales and their members. There is a general feeling that Wales is being ‘left out of the loop’ and there is the concern that more serious legislative misalignment could be made. Ev 384 Welsh Affairs Committee: Evidence
5.7 The way that Police Authorities in Wales are funded is as follows: —HomeOYce Grant is received based on the England and Wales formulae developed and maintained by the Home OYce. It is a matter of concern that all Welsh Forces are in receipt of an additional floor grant currently £1.5 million for North Wales. When this grant is eventually phased out and the 2001 census data is fully implemented it is anticipated that Welsh Forces will suVer as a reflection of the switch of resources from rural to urban force across England and Wales. Home OYce grant was approx. 39% to 40% of expenditure in the current year. — Revenue Support Grant and share of Business Rates. EVectively these two items are one as they self balance. The ODPM transfers the Welsh share of police RSG to the Assembly who then have the right to decide whether to simply pass it through to individual Police Authorities using the English RSG model but Welsh data, or to increase or decrease the level. In past years some much welcomed additional funding was granted by the Welsh Assembly. Business Rates are calculated on a per head of population basis. — The final element is the precept on the Council Taxpayer. In recent years the burden falling to this element has significantly increased and is currently up to 33% at which level the Council Taxpayers are becoming increasingly sensitive. The trends in Home OYce , RSG and Business rates etc suggest that either the burden on the Council Taxpayer must continue to grow or expenditure must be cut back with consequent reduction in services. The current excellent record of Welsh Forces in achieving eYciency gains will undoubtedly continue but the likely loss of grant referred to above will lead to a medium to long term under funding.
5.8 The funding arrangements can be both advantageous and disadvantageous to Police Authorities. One of the disadvantageous elements is the treatment of PFI credits which are scheme specific when approved by the Home OYce but peculiarly treated as part of the block by the Treasury leading to a mismatch problem for the Assembly.
5.9 There has in the past been a lack of understanding by the Welsh Assembly Government about Police Funding in Wales. However, Welsh Assembly Ministers and OYcers, Members of PAW and their Finance OYcers recognised the need to work closely together and to develop an understanding which has now been achieved.
5.10 Although policing has not been devolved to the Welsh Assembly, Ministers have recognised the need for a joined up approach to tackling social problems. This has already brought financial support from the Welsh Assembly for example: — Community First Money has been made available to fund Community Beat Managers (Local Police OYcers) in certain areas. — A pilot scheme was developed in Gwent to fund school Liaison Police OYcers which has now been rolled out across Wales.
5.11 In addition, due to the complexities of the current funding system there is also concern that bids invited from Westminster Departments for specific grants may not always be available to Welsh Forces and Police Authorities.
5.12 The division of power between Westminster and CardiV in relation to policing needs clarity to ensure that the specific needs of Wales are addressed and are consistent with the policy directions of the Assembly and also ensure that suYcient funding is available for the police authorities.
6. Conclusion
6.1 PAW has been invited to give oral evidence to the Welsh AVairs Committee on the subject of its inquiry into the Police Service, Crime and Anti-Social Behaviour in Wales. This oral evidence will be given by Councillor Malcolm King who is Chair of the North Wales Police Authority, a Member of Wrexham County Borough Council, one of the North Wales Police Authority’s representatives on PAW, past Chair of PAW and PAW’s representative on the Partnership Council for Wales for several years. Ms Rachel Morgan Welsh Local Government Association Mr Kelvin Dent LLB Clerk to the Police Authority 23 October 2004 Welsh Affairs Committee: Evidence Ev 385
22. Written evidence from the Police Federation of England and Wales
1. Background 1.1 The Police Federation of England and Wales is the representative body for over 95% of police oYcers, including over 7,000 oYcers in Wales. Established by statute, we are responsible for the welfare of oYcers and the provision of an eYcient police service. 1.2 The Police Federation welcomes the opportunity to submit evidence to the Welsh AVairs Committee. This memorandum has been composed specifically for the Committee following consultation with the four Welsh Police Federation Joint Branch Boards.31 We would welcome the opportunity to provide oral evidence or additional written evidence in reply to specific questions on request.
2. Introduction 2.1 Policing in Wales is diverse, both in terms of the level and types of crime. From densely populated conurbations in the south to more sparsely inhabited rural areas, in many ways Wales is a microcosm for policing in the United Kingdom, experiencing many of the same problems, challenges and successes.
3. The National Policing Plan and its Relevance to Wales
Overview 3.1 We broadly support the principle of a single, central National Policing Plan to provide overall strategic direction to all 43 police forces in England and Wales. The National Policing Plan will continue to be as relevant to Wales and Welsh forces as it is to any English region or police force irrespective of whether more power is devolved to the National Assembly of Wales.
A balancing act 3.2 In November 2004 the Home OYce published its third annual plan—the National Policing Plan 2005–08. Whilst this was a less “intrusive” document than previous years, we still have concerns as to the balance between local needs and central priorities, and to the sheer number of performance targets that stem from it. 3.3 To date, each plan has suVered from an underlying contradiction: on the one hand they have exacerbated the target culture that has stymied the work of police oYcers by concentrating on “quantity”— the easily tabulated and recordable aspects of crime (by and large volume crimes such as household burglary)—to the detriment of measuring “quality“” of delivery; the policing equivalent of concentrating on the length of hospital queues as opposed to the quality of treatment. On the other hand, this excessive concentration upon certain types of crime has led to elements of the service being under-prioritised and consequently under-funded. 3.4 This narrow focus and narrow success formula has eVected traYc policing in particular. As in previous years, the 2005–08 plan contains no explicit targets pertaining to traYc police. Everyday 10 people die in road accidents across England and Wales yet since the 1960s the number of police oYcers dedicated to traYc duty has fallen annually from 15–20% of constable strength to under 7% today.32 We believe roads policing is as important today as it was fifty years ago and should be aVorded the funding and resources accordingly. Unfortunately this is unlikely to occur unless traYc policing is once again considered a core policing task. 3.5 Notwithstanding these deficiencies, the 2005–08 plan is a significant improvement on the two documents that preceded it. The number of key priorities has been distilled from nine to five, a welcome recognition that there is a limit to the number of aspects of policing that can be prioritised.
Tackling anti-social behaviour and the reassurance agenda 3.6 DiVerent villages, towns and cities suVer from anti-social behaviour to varying degrees. Wales is no exception and levels of anti-social behaviour vary considerably across the country, just like in English forces. 3.7 Anti-social behaviour consists of both criminal activity, such as fly-posting and graYti, and legal, but “unneighbourly” activities, such as excessive noise late at night. The eVect these crimes have on social and environmental degradation should not be under-estimated. For the majority of people these are the most immediate forms of crimes and their impact, unlike a burglary for instance, is intensified by a general accumulation over time.
31 North Wales, Dyfed-Powys, Gwent and South Wales. 32 Road Policing and TraYc: an HMIC thematic inspection report on road policing in England and Wales (1998). Ev 386 Welsh Affairs Committee: Evidence
3.8 Anti-social behaviour is high on the political agenda and this is reflected in the priorities of the National Policing Plan. Community Support OYcers (CSOs) have been introduced across Wales in order to re-engage with communities, provide reassurance and tackle anti-social behaviour.
3.9 The Police Federation opposed the introduction of CSOs in the Police Reform Act (2002) on the basis that they were being introduced into a policing environment without requisite training, equipment, skills or experience. Our greatest fear was that CSOs’ powers would be extended over time through enabling legislation. Subsequent research conducted by the Police Federation indicates that CSOs have been deployed in confrontational environments, placing both themselves and the public in danger.
3.10 The issue of CSOs is of importance and relevant to the wider debate on anti-social behaviour because it is increasingly CSOs who are the general publics’ point of contact with the police service. Funding for CSOs was originally ring-fenced so as to avoid trade-oVs with police oYcers, but these special funding streams will soon end, presenting Chief Constables with the invidious decision of meeting the Government’s target to combat the fear of crime (and retain CSOs), and the policing necessity to maintain police oYcer strength. We strongly recommend that current police oYcer numbers should be maintained; CSOs must supplement not supplant fully-warranted and fully-trained police oYcers.
3.11 The Anti-social Behaviour Act (2003) introduced a wide range of provisions to crack down on anti- social behaviour, but not all of these potentially valuable powers have been enacted by the Welsh Assembly Government. The power to issue penalty notices in the case of truancy is, for instance, listed in Home OYce publications as applying to both England and Wales, yet this power has not been introduced in Wales. These inconsistencies can therefore impact upon the accuracy of comparisons of forces across the England/ Wales border.
Combating serious and organised crime
3.12 The level of serious and organised crime varies considerably across Wales. This can present individual forces with problems as they are all required to apply the National Policing Plan, some elements of which may not be entirely relevant to smaller forces such as Dyfed-Powys in this respect.
3.13 The way in which Welsh Police Forces combat serious and organised crime could be changed significantly by the Serious and Organised Crime and Police Bill (2004). At present these forms of crime are fought by a combination of force collaborations together with joint working of the National Crime Squad, National Criminal Intelligence Service, the investigative branch of the Immigration Service and Customs and Excise.
3.14 Although largely ad hoc, arrangements between forces in Wales are generally regarded as successful at tackling the higher-level crimes at a national level. Lower-level so-called “cross-border” crimes are not, however, either tackled as eVectively at either a force or inter-force level. The reduction of level two crime is an aspiration in the National Policing Plan but no explicit target or priority exists for two reasons. Firstly, the service has been relatively unsuccessful in clamping down on this form of crime and it is therefore very diYcult to estimate the level of crime. Secondly, no institutional mechanisms exist to facilitate the fight against level two crime. Regional Crime Squads were amalgamated into the National Crime Squad in order to better coordinate the fight against national and international crime but this left a level two policing vacuum and a legacy of underachievement in this regard.
3.15 We have a number of strong concerns in relation to the establishment of the Serious Organised Crime Agency (Soca). Welsh National Crime Squad and National Criminal Intelligence Service OYcers, unlike their Scottish counterparts, look likely to be eVectively forced to transfer and become Soca oYcers. If this were to occur, these police oYcers would no longer hold the OYce of Constable. This is not an issue of mere semantics. As Soca oYcers, former NCS and NCIS oYcers would be tasked with tackling the same criminals as during their former posts, but with fewer powers at their disposal.
Partnerships
3.16 Police forces in Wales engage in a wide range of partnerships ranging from force to force collaborations (on both ad hoc and organised basis) to working alongside NCS at a national level and community organisations at a local level. Joint working is of course not confined exclusively to working alongside Welsh forces. Three of the four Welsh forces border English forces and crime in cities such as Bristol and Liverpool has a considerable impact in Wales. Welsh Affairs Committee: Evidence Ev 387
3.17 In terms of joint-working with non-police organisations, the eVectiveness of partnerships is often dictated as much by the individuals involved as by the structure of the partnership. Crime and Disorder Reduction Partnerships (CDRPs) are a pertinent example, and many oYcers work closely alongside other front-line organisations. Similarly, in North Wales multi-agency approaches are an essential part of Dyna Ddigon. 3.18 Whilst the maxim joint-working requires joint-thinking is accurate, to be truly eVective all partners must share a common goal. It follows therefore that joint thinking at the front-line must be mirrored by joint thinking at a governmental level. Priorities contained within the National Policing Plan must be consistent and complimented by the priorities of other government departments, both at a local and national level. For example, crime is inexplicably linked with the illegal drugs market but the police and health services share neither complimentary targets nor a common performance regime in terms of drugs reduction.
4. The Performance of Welsh Police Forces (Compared to forces in England) 4.1 It is important that yardstick comparisons of police forces in Wales are made with comparable forces—ie in the same force “bundle”—in England. It would be insular to compare the performance of diVerent Welsh forces against one another without taking into account the performance of more comparable forces across the border.
5. The Division of Powers and the Working Relationship Between the UK Government and the National Assembly for Wales on Policing Matters 5.1 The division of powers in respective of policing between the UK Government and National Assembly for Wales must be clear and based on what is best for policing in Wales. 5.2 The issue of powers referred to above in respect of the Anti-Social Behaviour Act (2003) highlights a far wider issue. At present England and Wales share similar laws and law-making machinery. As a direct result all police oYcers in England and Wales exercise powers that extend to all areas of England and Wales. If the Welsh Assembly were to adopt a diVerent legal system this could impact on the ability of English forces to receive mutual support from Welsh forces and vice versa. This could also restrict movement of oYcers between forces if standards or training were diVerent. 5.3 We recognise the National Assembly for Wales has the ability to access diVerent funding streams for local initiatives. Funding for policing needs to be consistent. We are therefore concerned that mainline policing should not become dependent upon the success of short-term funding streams. 17 January 2005
23. Written evidence from The Police Superintendents’ Association of England And Wales
Police Service,Crime and Anti-Social Behaviour in Wales My name is Ian Johnston and I am a Chief Superintendent from the Gwent Police although since May 2004 I have been the full-time National Vice President of the Police Superintendents’ Association of England and Wales. I am responding as the Vice President of the Association although some of the views expressed will obviously reflect my recent service within the Gwent Police. Until May 2004 I was the Divisional Commander at Blackwood responsible for the local authority areas of Caerphilly and Blaenau Gwent and was heavily involved in partnership work with both councils. I have read the evidence given by the four Chief Constables in relation to the performance of the Welsh Police Forces and I do not intend to add or comment any further. In respect of the division of powers and the working relationship between the UK Government and the National Assembly for Wales on policing matters, it appears that on occasions the Welsh Police Forces have accessibility to additional funding (drugs enforcement and education) that is not available to English Forces. On a less positive note, the “housing” of the Home OYce Regional Crime Director within the Assembly Building can on occasions lead to a mis-understanding when allocating and auditing Home OYce Funding Streams. Whilst oversight of both Home OYce and National Assembly business could be regarded as advantageous there have been occasions when the Home OYce Crime Director has been mistakenly seen as working to and for the Assembly. Ev 388 Welsh Affairs Committee: Evidence
The National Policing Plan is extremely relevant to Wales and the Home Secretary’s key priorities and the further Reform Proposals set out in Building Communities, Beating Crime: a better Police Service for the 21st Century, point the way forward for policing in Wales.
The Government’s Public Service Agreement to reduce crime by 15% is laudable and police forces are working extremely hard to reduce overall crime but the greater focus on delivering the service the public want could create a tension and mixed messages.
The provision of a Citizen Focused Police Service which responds to the needs of communities and inspires public confidence in the police is whole-heartedly supported by our Association. Many BCU. Commanders across England and Wales can demonstrate examples of good practice which support this vision. We accept however the public confidence in the police is not good in certain areas.
We are pleased to note that “detections” have become fashionable again because catching criminals is an integral in reducing crime levels. We as an Association have worked extremely hard with our partners to target prolific and other priority oVenders. There is overwhelming evidence that a very small number of individuals in our communities are responsible for a disproportionate number of crimes.
There is a definite gap between the public’s fear of crime and the reality of crime and there is no doubt that anti-social behaviour and disorder plays a large part in the public’s fear of crime.
ASBOS had a slow start in Wales for a number of reasons, mainly the procedures were too complex and complicated and the antisocial behaviour in many instances was stopped before the ASBO was secured. Anti-Social Behaviour Orders are now working, but there is some evidence that oVenders are being taken back before court on a number of occasions with little or no extra sanction.
In recent years Basic Command Units have become more autonomous. With the autonomy our members have been able to deliver a LOCAL response to service delivery. However, the ability of BCU’s to deliver a cross division/force response to serious and organised crime has been questionable.
Our Crime Business Area of the Association is currently undertaking research to identify the gaps in addressing Level 2 Criminality. Early indications are that as BCU’s have become more autonomous the National Crime Squad has moved further away from Forces and in significant parts of the country the gap created has not been addressed.
Our Association has been heavily involved in addressing the reassurance agenda. Indeed, our members have led on many of the pilots undertaken throughout England and Wales. Some years ago we questioned the practice of double-crewing and we have continued to support the visibility and accessibility agendas.
Our members are able to point to excellent examples of work undertaken to support the reassurance agenda.
There is little doubt that the Crime and Disorder Reduction Partnerships in Wales are working extremely well in comparison to England. Recently, four regional conferences were held as part of the Government’s Review of the Crime and Disorder Act. The event held in CardiV was extremely successful and many of the Home OYce OYcials present commented on the significant progress made by the Welsh CDRP’s.
As an Association we have been involved in the Review of the Crime and Disorder Act and I sit on the full Advisory Committee. The Review will be concluded by 31 January 2005 and many and varied recommendations will be made. Funding; lack of attendance by partner agencies; lack of coherence between local policing strategies and CDRP strategies will be addressed.
In conclusion, I hope these brief comments are of use to the Committee and I wish them every success. Ian Johnston QPM Chief Superintendent Vice President 15 January 2005 Welsh Affairs Committee: Evidence Ev 389
24. Written evidence from the South Wales & Dyfed Powys Black Police Association
Inquiry into the Police Service,Crime and Anti-Social Behaviour in Wales I refer to your letter dated 22nd October 2004 seeking written evidence from the National Black Police Association (NBPA) in relation to the Committee’s inquiry into the Police Service, Crime and Anti-Social Behaviour in Wales. The President of the NBPA, Mr Ray Powell has asked me, to respond on his behalf. Can I firstly apologise for the lateness in replying to you but I did not receive a copy of your letter from the NBPA until 30 November 2004. In addition there has been some delay in collating information from across the four Welsh Forces and their representative BPAs. I have previously spoken to Dr. Rebecca Davies regarding this response and that I will submit it by the new year. In responding I will do so under the heading from your Terms of Reference—National Policing Plan and its Relevance to Wales
Partnership Working
WALES RESIDENTIAL ETHNIC POPULATION CENSUS 2001
All People All People White All People Minority Ethnic Groups Ethnic Groups (British, Irish. (Mixed, Asian, Other) Black, Chinese)
All Wales 2,903,085 2,841,505 61,580 South Wales Police Area 1,198,986 1,159,423 39,563 Bridgend 128,645 126,878 1,767 CardiV 305,353 279,624 25,729 Merthyr Tydfil 55,981 55,417 564 Neath Port Talbot 134,468 133,020 1,448 Rhondda Cynon TaV 231,946 229,273 2,673 Swansea 223,301 218,495 4,806 Vale of Glamorgan 119,292 116,716 2,576 Dyfed-Powys Police Area 488,268 483,496 4,772 Carmarthenshire 172,842 171,219 1,623 Ceredigion 74,941 73,904 1,037 Pembrokeshire 114,131 113,105 1,026 Powys 126,354 125,268 1,086 Gwent Police Area 552,428 541,880 10,548 Blaenau Gwent 70,064 69,483 581 Caerphilly 169,519 167,971 1,548 Monmouthshire 84,885 83,921 964 Newport 137,011 130,408 6,603 Torfaen 90,949 90,097 852 North Wales Police Area 663,403 656,706 6,697 Conwy 109,596 108,439 1,157 Denbighshire 93,065 91,992 1,073 Flintshire 148,594 147,400 1,194 Gwynedd 116,843 115,454 1,389 Isle of Anglesey 66,829 66,348 481 Wrexham 128,476 127,073 1,403
According to the ethnic census data for Wales 2001 the resident population was 2,903,085, of which 2.12% are from minority ethnic backgrounds (ie 61,580) with the higher populations residing in the Unitary Authority city areas of CardiV (25,729), Newport (6,603) and Swansea (4,806). The rural areas of Anglesey (481), Merthyr Tydfil (564) and Blaenau Gwent (581) have the lowest minority ethnic residential population figures. In terms of policing the minority communities in Wales, the demands and responses required vary from those in need within the urban city/town areas who are subjected to crime/disorder of a racist nature targeted at individuals, families or communities/businesses to the more isolated in the rural areas. Within the towns/ cities there are more community networks/support structures in place whilst in the rural areas it is felt that there is a lack of such support. Consequently the impact on the minority ethnic people in rural areas, often individuals/families rather than communities can be disproportionate in terms of exposure to racial hostility and discrimination. They tend to experience a high degree of complacency, indiVerence and apathy from support services—public or voluntary, and indeed from the local indigenous communities themselves. Often Ev 390 Welsh Affairs Committee: Evidence
there prevails a sense of “no problem here” and as a consequence many service providers including the police fail to recognise and engage with the day to day experiences of the minority ethnic people living in the rural communities. Hence within those policing areas with small minority ethnic populations, predominantly in rural areas, racism is particularly acute particularly on young people. Such experiences of racism can be termed as “rural racism” and can lead to factors such as— — Social isolation/exclusion. — “Nobody looks like me”. — Language barriers particularly where English or even Welsh is not a first language. — Lack of support services to challenge discrimination/harassment. — A sense of not being part of the community or being able to work with any support service eg Unitary Authority services. — A feeling of—“they should” rather than “we can”. — A feeling that nobody listens. — A more acute eVect on incidents of name calling, minor damage etc. Essentially there is a view that “racism” is an urban problem and consequently there is often a lack of minority ethnic viewpoint, issues or needs identified in any policy or strategy arising from the rural areas. Because of the low numbers in population any work or initiative on behalf of minority ethnic people is not seen as a “priority” and there exists a definitive lack of coherent strategy for tackling “race inequality” within these rural communities. The Black Police Associations within Wales are fully supported by their Chief Constables. The Welsh Forces are working proactively to improve engagement with minority ethnic communities and develop trust and confidence especially through partnership working. Examples of initiatives across the Welsh Forces are— Dyfed-Powys Police with the support of the Local Criminal Justice Board (LCJB) has established a partnership with the Crown Prosecution Service and Coleg Sir Gar to develop a coherent approach to tackling race equality. This partnership is called Dyfed-Powys Race Equality Network (DyPREN). It is the first network of its kind in the Dyfed-Powys area. Part of the role of the Partnership will be to bring together much of the good work in this area already being carried out by smaller organisations such as the Powys Centre for Cultural Diversity and work carried out by individuals. This example of partnership working in Dyfed-Powys is about tackling anti-social behaviour (rural racism) and providing reassurance to the minority ethnic population within the rural communities. Another initiative in Dyfed Powys is the formation of a Criminal Justice Independent Advisory Group (IAG) run by the Local Criminal Justice Board. It is the first IAG to be run by an LCJB in the country. This is in addition to the current Force and BCU IAGs being run within Gwent and South Wales Police. There is also a specific IAG working within South Wales Police in relation to its major crime review processes. South Wales Police has through the BCUs and a Forcewide dedicated Minority Support Unit developed a number of initiatives working in partnership with the minority communities, local representatives and stakeholders such as the Commission for Racial Equality, Race Equality Councils, Local Authorities to build trust and confidence. Some examples of such initiatives are— The Afon TaV Initiative in Merthyr whereby a house in school premises has been renovated by the local police into a multi faith/cultural premises and is part of the school curriculum in terms of developing awareness and knowledge for the pupils. The Force Muslim Safety Forum to monitor tensions and provide support to the Muslim community. In addition each BCU has developed its own independent Advisory Group to monitor, advise and work with the local BCU Management Team in relation to racial policy and response to racial incidents/hate crime. Part of this advice in CardiV has resulted in multi-language newspapers being provided in the detention areas. CardiV and Barry are also exploring the possibility of a “School Adoption Scheme” in those community areas with high degree of minority ethnic students. The purpose of the Scheme will be for police oYcers to attend and speak with the students regarding good citizenship and future careers in the police service. Probationers within South Wales undertake a project that is based on cultural diversity. The aim is to immerse them in the diverse culture of the area in which they will be policing. At the conclusion of the project a report is submitted to the local BCU Commander who ensures that any local issues are monitored and good ideas implemented. The project is assessed towards the final probationary report of the oYcer. Welsh Affairs Committee: Evidence Ev 391
North Wales Police has a Force Diversity Steering Group where key community members from diverse groups are able to challenge the Assistant Chief Constable on issues or problems that may be aVecting minority groups in North Wales. It has also developed a Race and Faith Group. Its purpose is to review policy and functions in accordance with the Race Relations Amendment Act 2000. The group will be able to examine policy and provide guidance to policy writers on how a policy could be changed in accordance with the Act. The group will provide the platform for an impact assessment of a policy and advice policy writers on potential changes needed to fully promote good race relations and eliminate unlawful discrimination.
Both South Wales and North Wales Police have developed Self-Reporting Hate Crime/Racist Incident Forms to encourage people to report such incidents/crimes. The purpose of these schemes is to encourage victims to report such crimes/incidents in confidence.
The North Wales Race Equality Network in March took ownership of the existing Police Station at Penmaenmawr. The organisation was given the Police station under a ten-year lease agreement at no cost to the network. The North Wales Race Equality Network will use the building to house their staV and local support groups that exist in North Wales as well the CRE.
The project will provide the North Wales Race Equality Network with the oYce space and resources to develop links in the community. This will help North Wales Police in their quest to encourage more people to have reassurance in the policing process and subsequently report more hate crime.
North Wales Police is presently compiling a database of contacts from community groups that wish to help the Police in the training of Police staV and Police OYcers. It is felt that community input in Police training is essential in order to give a perspective of real community issues, which in the past may have been overlooked.
There are concerns however that the National Policing Plan is concerned mainly with the incidents of crime and reducing its wider impact through improved quality of service to the community/victims of crime. It does not address specifically the causes of crime where the police can impact in partnership with other public and private sector bodies in building citizenship eg early education on good citizenship and valuing diverse communities.
Reassurance—Confidence and Trust
A key factor in inspiring confidence in the police by minority ethnic communities is around fair treatment, quality of service and justice being seen to be done. Issues around stop search, hate crime and sentencing must be addressed as currently black and ethnic minority citizens are treated disproportionately in comparison to white citizens.
The national neighbourhood policing initiative is welcomed. However, success will depend upon the ability of the police to build a relationship of trust with the minority communities over the longer term with sustained commitment.
To do this there is a need for policing to engage at a local level both within the urban city/town areas and rural areas. This engagement should be focused at identifying where are the minority communities’ living/ working within the local policing areas. How can they be engaged at adult and youth levels; within the business and/or family/community arenas to identify their local policing/partnership needs.
The longer term aim of integrating fully with minority ethnic communities within Britain requires positive proactive action in celebrating the contribution made by such communities to counter the negative propaganda by extremist groups and the Welsh Assembly Government (WAG) can do more in this regard. Currently the Welsh Association of Chief Police OYcers is exploring the adoption of the WAG Standard for Equality within Welsh Policing. Dyfed Powys Police is leading this work.
The main perceived benefits of WAG having responsibility for policing in Wales is the ability to address the funding gap for Welsh forces and being able to prioritise policing to local objectives. However, these can still be addressed currently by informal discussions with Ministers and potentially linking WAG funding to priority policing objectives.
As part of the process to develop trust and confidence while improving knowledge/awareness the Welsh Forces are providing diversity training to all their staV. The courses in North Wales and South Wales involve the use of community members to assist in the training process. StaV and community members see these courses as a successful way of learning and understanding the needs of diverse communities within their local areas. Ev 392 Welsh Affairs Committee: Evidence
Reassurance—Recruitment and Retention Currently within the four Welsh Forces representation of visible minority ethnic staV is—
Force Police OYcers Police StaV Special Total Constabulary
Dyfed Powys 7 (1 female/6 males) 1 (female) 0 8 (0.4% of workforce) Gwent 19 (1 female/ 10 (8 females/ 1 (male) 30 (1.27% of 18 males) 2 males) workforce) North Wales 4 (all Male) 3 (1 female/2 males) 1 (female) 8 (0.3% of workforce) South Wales 52 (13 females/ 22 (13 females/ 7 (3 females/ 81 (1.58% of 39 males) 9 males) 4 males) workforce)
The Wales Residential Ethnic Population Census 2001 identifies that 2.12% of the Welsh population are people from the minority ethnic groups. Whilst 1.36% of the combined workforce of the four Welsh Police Forces are from minority ethnic backgrounds. It can therefore be argued that the Welsh forces in terms of their workforce do not represent the minority ethnic communities of Wales, for which they have responsibility to police. Likewise there is every possibility that the Welsh Forces will not achieve their Dismantling Barrier recruitment and retention targets agreed with the Home OYce as a result of the Lawrence Inquiry Action Plan recommendations. It is important that the forces reflect their communities and that includes those who visit as well as live and work because it will improve operational delivery and performance. A multi-cultural/ethnic organisation will create change in organisational culture and practices, which eliminates discrimination and establishes an ethos of fair non-discriminatory treatment for everyone. With increased recruitment and retention of oYcers and police staV from under-represented minority groups, interaction with the diverse communities will improve creating a more citizen-focused community based policing service. This will provide better intelligence and information from the communities to reduce crime and disorder while improving detections especially against prolific and priority oVenders. All communities will become a safer place to live, work and visit, with increased community confidence and trust in the police. The struggle for the Welsh Forces is not in their eVorts to recruit and retain police oYcers and police staV from the visible minority communities within Wales but the actual size of the target market within this region/country. It is suggested by the BPA that the Welsh Forces need to work together as a region and look at proactively targeting minority recruits/staV from other areas which have higher minority ethnic populations eg West Midlands, Manchester, Liverpool etc. There are issues around how the Forces accommodate staV from diVerent cultural and religious backgrounds. For example are they prepared for Muslim or Hindi staV in terms of worship, culinary and accommodation needs as well as dress requirements, especially within operational police stations.
Reassurance—Black Police Associations Although all four Welsh Forces have supported the creation of BPAs as staV support associations, the level of that support does vary. To address this issue the Welsh BPAs are organising a regional meeting in March to create a regional structure to influence forces to provide the same level of support. There is also a drive by the Welsh BPAs to become more involved with the Forces in terms of developing relationships with minority communities to increase trust and confidence while improving recruitment and retention from these areas. As part of this process it is proposed that the Welsh BPAs will become more involved with the Assembly Government through the All Wales Ethnic Minority Association, the Black Voluntary Sector Network (Wales) and CRE (Wales) as well as the local Race Equality Councils.
Conclusion In conclusion much good work is ongoing by the Welsh Forces to improve the trust and confidence of minority ethnic communities. The challenges are great and diverse ranging from the needs of the inner city/ town minority communities to the rural isolated individuals/families. However, the Welsh BPAs feel that there is still further work that needs to be done especially around— — strong vetting processes to prevent recruitment of racist staV eg the “Secret Policeman” documentary, — addressing disproportionality in relation to stop and search, breathalysers, traYc violation stops, unnecessary arrests/detention which do not result in a charges, Welsh Affairs Committee: Evidence Ev 393
— strong emphasis on engagement and consultation with minority communities to identify local policing needs and to deliver against those needs, — regional collaboration and positive action in recruitment, retention and career progression of minority ethnic staV, — improving the working environment to welcome people from all ethnic/cultural and religious backgrounds, — greater representation of members on the Police Authorities and within the Chief OYcer roles. David Morris Chief Superintendent Chair—South Wales & Dyfed Powys Black Police Association 13 January 2004
25. Written evidence from the Audit Commission in Wales
Foreword and Introduction We are pleased to make this submission to the Committee, drawing from our own work in Wales and that of the wider Audit Commission. We have focused this Submission on two principal areas. First, we have highlighted the way in which the Police can be seen as operating within at least four “systems” concerned with Justice and Crime. These are: — The Criminal Justice System of Police, Courts, Prisons, and Probation; — Community Safety Partnerships with Local Authorities and a range of other partners; — The Youth Justice System, including Youth OVending Teams; and — Drug and Alcohol Action. Each of these “systems” has a diVerent relationship to Wales and to the wider England and Wales frameworks of law, policy, and delivery. The Audit Commission has done work in relation to each of these ‘systems’, so in Part One of this Submission we have summarised the key findings and messages from the most recent major work. We hope it will help to give a rich picture of the situation, and highlight some important themes and messages. Most of the work has been done on an England and Wales, rather than on a Wales-specific basis, so Part One concludes by identifying some areas where some Wales-specific work might be useful. Possibilities include work targeted to the emerging eYciency agenda; a focus on alcohol and its significance to crime and anti- social behaviour in Wales; the implications of the Welsh Assembly Government’s Public Services Policy “Making the Connections” for Policing and Community Safety; and the potential for developing a comprehensive Wales specific analysis of all four of the Criminal Justice, Youth Justice, Drug and Alcohol, and Community Safety “systems”. We also comment on the National Policing Plan and its relevance to Wales. However, at the local level of the four individual Police Forces in Wales, we also do a great deal of work through audit and through studies with a strong local component. Accordingly, Part Two of this Submission brings together the material on Assurance and Performance in relation to the four forces in Wales. This also includes matters relating to data quality and integrity, and to activity based costing. Key staV involved in the preparation of this Submission include Anthony Barrett, Bob Poulton and Andy Bruce. We would of course be pleased to elaborate on any of these matters further if that would be of assistance to the Committee in its work.
Part One:The Four Systems The field of Policing, Criminal Justice, Anti Social Behaviour, and Community Safety is complex and, to some extent, fragmented. Given that the Committee’s inquiry is focussed on Policing, one way to capture those complexities and highlight key relationships is to see the Police as part of four diVerent but related “systems”. These are: — The Criminal Justice System; — The Youth Justice System including Youth OVending Teams; — Community Safety Partnerships with Local Authorities and a range of other partners; and — Drug and Alcohol Action. Ev 394 Welsh Affairs Committee: Evidence
This can be represented as in the diagram below:
Criminal Justice System
Community Safety Drugs Partnerships Police & Alcohol Action
Youth Justice System
Source: Audit Commission in Wales
Source: Audit Commission in Wales The Audit Commission has carried out work to study each of these systems, generally on an England and Wales basis. Some of the major pieces of work and the main themes arising from them are summarised below.
Route to Justice
In 2002, the Audit Commission conducted a review into the Criminal Justice System, “Route to Justice”. The main agencies involved were the Police, Probation, Prison, Courts, Defence and Crown Prosecution Services. All have important and unique roles to play in the process, but it is also essential that they work together if the system is to be eYcient and eVective in delivering justice. The failures in this area have contributed to millions of pounds being wasted and the failure to bring to justice thousands of oVenders each year. “Route to Justice” follows the pathway of an adult oVender through the Criminal Justice System from the point of arrest. It looks at the issues that arise at the diVerent stages of the process, exploring how these impact on the ability of the system to meet its objectives. The issues are highlighted using the stories of four fictitious, but factually based, oVenders, supported by data, examples and case studies from fieldwork research. The report also looks at how the oVenders’ own experience of the Criminal Justice System may have implications for their resettlement into the community and likelihood of their re-oVending. The report seeks to help policy makers and the criminal justice agencies to understand where and why the problems arise that cause delays and ineYciencies in the system, and what needs to be done to overcome them. Route to Justice aims to be an interesting and practical guide that will help the complex range of agencies that make up the Criminal Justice System to work together more coherently and eYciently. The report identified that radical change was needed to the Criminal Justice System if real improvements are to be made and if the objectives of the system are to be met. Underpinning these improvements is the need for an integrated Criminal Justice System performance management system in which: — agency objectives are aligned locally as well as nationally; — all those working in the system have targets that flow from the aligned objectives; — incentives are built into the system to reward those who achieve targets; — information is available to managers so that they know whether targets have been met and where problems are arising; —eVective joint management arrangements are put in place; and — a culture of performance management is established throughout the Criminal Justice System. Welsh Affairs Committee: Evidence Ev 395
Drug Misuse 2004: Reducing the local impact Combating drug misuse is a principal concern of both National and Welsh Assembly Government. In response, the Government published a national strategy in 1998, which was updated in 2002. During 2004 national research was carried out into drug misuse in England and Wales. As part of the national research, ACiW conducted this cross-cutting study at three sites in Wales covering three police areas. These were Ceredigion (Dyfed-Powys), Newport (Gwent) and Wrexham (North Wales). The study focused upon Community Safety Partnership arrangements including the Police contribution to reducing the local impact of drug misuse. Part of our research identified that drug misuse was driving: — the committing of oVences, particularly acquisitive crime and so victimising individuals and businesses; — acting anti-socially and stimulating fear of crime, including prostitution and — neighbour nuisance; and — damaging neighbourhoods, including intimidation by drug dealers and discarded needles. The study produced a national handbook with guidance, case studies and recommendations for the UK Government, the Welsh Assembly Government and partnership agencies to improve reducing the local impact of drug misuse. We made recommendations to the Home OYce, the Welsh Assembly Government, Local Government, Health and Criminal Justice Services to: — improve user focus; — provide “follow-on” services enabling users to complete the road to recovery; and — reduce reliance on short-term funding streams and encouraging mainstream solutions. Local Authorities, Health Services, Police and Probation partners are currently preparing the drug misuse component of local crime and disorder strategies for 2005 to 2008. These oVer an excellent opportunity for local agencies to sign up to strategies that will provide drug users with an eVective pathway to recovery together with good prospects for a sustained and stable lifestyle. This, in turn, will help make communities safer for everyone.
Community Safety Partnerships The Crime and Disorder Act 1998, was introduced by the Government to help prevent and reduce crime, reduce the fear of crime and promote the development of community safety within local communities. Part of the Act placed statutory responsibility on Local Authorities and the Police to work in partnership with other relevant agencies such as Probation, and Health Bodies towards reducing crime and forming local crime and disorder partnerships. Section 17 of the Act additionally required that all Local Authorities and Police Authorities considered crime and disorder in their current and future service areas. As a result of this, 22 local Crime and Disorder Partnerships were created in Wales and produced audits of crime and disorder and follow up strategies. The Welsh Assembly Government is designated under the Crime and Disorder Act as one of the bodies working in co-operation with the partnerships. This designation recognised that although responsibility for crime reduction is not devolved, the Assembly has direct responsibility for a number of the bodies involved in this partnership approach. The Partnership Support branch of the Welsh Assembly Government’s Community Safety Unit focuses on supporting and facilitating the 22 Community Safety Partnerships (CSP’s) of Wales, each of which has in place a detailed strategy for combating crime and anti-social behaviour. CSP’s are statutory partnerships, consisting of: The Police Local Authorities Fire Authorities Police Authorities Local Health Boards. Partner organisations are required to work in co-operation with Local Education and Probation Authorities and invite co-operation of a range of local private, voluntary, other public and community groups including the community itself. Close contact is also maintained with the Community Safety OYcers located within each of the Local Authorities and their police counterparts in the Welsh Forces. The rationale behind creating these multi-agency partnerships is to tackle local crime and disorder issues in a co-operative multi-agency approach. Following the Act, the Audit Commission produced a cross cutting national report of Crime and Disorder: “Safety in Numbers”. It addressed the processes involved in developing Crime and Disorder Partnerships, and compliance with the Act regarding undertaking crime and disorder audits and producing strategies. Although early in the development of partnership working, the key finding from this report highlighted that all public agencies, other voluntary bodies and local people Ev 396 Welsh Affairs Committee: Evidence
must work together to produce an eVective means to address crime and disorder. It also highlighted that previous community safety strategies have not reflected the needs of local people and were not evaluated or monitored, and also that major change was necessary to make community safety the priority for local communities. Since 1998, ACiW has conducted a number of follow up audits and inspections at Community Safety Partnerships throughout Wales. These covered the corresponding Local Authorities, Police Forces, Health Bodies and limited coverage of the Probation Service. Our audit work has identified that Police Authorities play a strong and significant role within partnerships and progress has been made. However, other agencies within the partnerships need to take a greater role to increase the eVectiveness and outcomes of partnership working and significant challenges still require to be met. The key areas to be addressed are: — greater involvement is required from all agencies and not just statutory partners; — overcoming problems associated with the use of data and limited information sharing: — greater understanding and application of Section 17 of the Crime and Disorder Act (which requires a Council Chief Executive and a Chief Constable to ensure that the Council and the Police consider crime and disorder issues when planning and delivering services to the public); — limitations in costing crime; and — limited evidence of joint investment plans and resourcing. ACiW is continuing to work with Community Safety Partnerships to promote more eVective working arrangements and good practice.
Youth Justice In 2004 the Audit Commission’s National Report on Youth Justice reviewed what had happened in the Youth Justice System since the Commission’s previous report, “Misspent Youth”, published in 1999. The Youth Justice System had recently undergone a radical overhaul and this latest report took stock of the new reforms and the diVerence they had made. We identified considerable improvements in the new system: — Young oVenders are more likely to receive an intervention—in 2001 nearly one in four young oVenders said that nothing happened to them after they were caught by the Police; by 2003 it was less than one in ten. — Young oVenders are dealt with more quickly—in January 1997 the average time from arrest to sentence was 142 days; by August 2001 it had been halved to 71 days. — Magistrates are very satisfied with the service they receive from Youth OVending Teams (YOTs)— eight out of ten said that pre-sentence reports, for example, were good or excellent. — Young oVenders are more likely to make amends for their wrong doing. We also found important improvements in the new arrangements for delivering the reforms: — The Youth Justice Board sets a clear national framework with minimum standards and a performance framework and takes a lead role in monitoring progress and delivering policy. — The YOTs are critically placed between Criminal Justice, Health and Local Government services to co-ordinate and deliver services to young oVenders and the courts.
We did identify some areas where more could be done: — Although crime overall has fallen, and youth crime has not increased, the public know little about the new reforms and their confidence in the Youth Justice System is low—three out of four people have never heard of YOTs. — While some young oVenders are benefiting from early pre-court interventions, too many minor oVences are taking up valuable court time—one quarter of all Referral Orders are for minor oVences and the number of absolute discharges increased fourfold between April 2002 and April 2003. — Although young oVenders on bail are less likely to oVend (and are therefore less of a risk to the community), large numbers are still being remanded to custody, especially black and mixed-race young people. — The reconviction rates for young oVenders, given the new alternatives (Reprimands, Final Warnings, Action Plan Orders and Reparation Orders) have fallen, but they have not fallen for those in the older community, where penalties and the overall amount of contact time has hardly changed. The report does go on to suggest a number of ways in which the improvements thus far could be built upon. These cover: — A greater focus by the courts on serious and persistent oVenders, with minor oVences dealt with outside the Courts System. Welsh Affairs Committee: Evidence Ev 397
— Courts should engage young oVenders and their parents and ensure they understand fully what happens in court. — Current eVorts to reduce the use of custody should be reinforced by improving magistrate confidence in community-based alternatives and improve public knowledge about youth crime and what the Youth Justice System is achieving. — Meet the wider needs of oVenders by, for example, seconding social workers to YOTs and developing more accessible child-centred Substance Misuse Services — Targeted and well managed early intervention programmes can be eVective if they are properly co- ordinated both nationally and locally, such as those managed by YOTs.
High Crime and High Disorder Neighbourhoods As part of ACiW’s ongoing work programme to assist tackling crime and disorder issues, we are undertaking a research based review focusing on High Crime and High Disorder Neighbourhoods. This study will review how agencies and local communities can work together to make people living in diVerent types of high crime and/or high disorder neighbourhoods be and feel safer. Failure to tackle the crimes and disorders that matter most to local people can impact on public confidence and we will look at what is being done to promote reassurance. At the same time, the Commission is looking at targets and indicators within the Criminal Justice System, to determine what improvements might be made. Looking at the initiatives in this area, we aim to identify how well resources are used, to what eVect, and then we will draw lessons from them. We will also look at the obstacles to better joined-up working and identify policy and practical changes which could be made to achieve better outcomes. This work has a direct link to the Home OYce Strategic Plan which states the intention to pursue a new “neighbourhood” approach, which will take account of the National Reassurance Policing Programme, the Community Cohesion Project and Policing Priority Areas. A Neighbourhood Policing Fund is to be set up with £50 million of new money which will enable recruitment of 20,000 additional Community Support OYcers over the next three years. The Home OYce is also intending to work with the OYce of the Deputy Prime Minister to create a Safer and Stronger Communities Fund from April 2005 to bring together services, including Neighbourhood Wardens, and use existing funding streams worth £660 million over 3 years. This Audit Commission project will have a number of outputs, tailored to diVerent audiences and diVerent identified needs. — A strategic challenge paper will be produced to identify the changes needed to develop a more eVective approach across agencies to tackle high crime neighbourhoods. — We will develop an understanding of where and how to focus the eVorts of local agencies and define successful performance. This will form the basis of pull-out recommendations in our report tailored for diVerent agencies. — This will be supported by operational and training tools, such as handbooks and training programmes, for Police, Local Authorities and other responsible authorities. We will be working closely with various training bodies to support this. — We are exploring the possibility of developing a website, to enable local agencies to access various sources of data and do their own analysis of local problem areas. — Specifically, at our local operations level, we are proposing to develop a flexible tool for staV to use in facilitated discussions with agencies to enable them to develop their own action plans for improvement. — We will work with other partners and regulators to further the Criminal Justice System strategy recommendation to streamline performance assessment, inspection and regulation delivered through better co-ordination across regulators and including the engagement of the Voluntary and Community Sector. Our review will cover the Police arrangements for dealing with high crime and high disorder neighbourhoods and is being conducted in conjunction with the Audit Commission in England.
The National Policing Plan We believe the National Policing Plan (NPP) is relevant to Wales and covers a number of key areas of policing. The NPP provides a framework to promote high standards and bring every Police Force up to the performance of the best. The overarching aim of the plan is to deliver improved police performance and enhanced public reassurance with particular regard to: — providing a citizen focused service to the public, especially victims and witnesses, which responds to the needs of individuals and communities, and inspires confidence in the police, particularly amongst minority ethnic communities; Ev 398 Welsh Affairs Committee: Evidence
— tackling anti-social behaviour and disorder; — continuing to reduce burglary, vehicle crime, robbery and drug-related crime in line with the Government’s Public Service Agreement targets and Welsh Assembly Government directives; — combating serious and organised crime, both across and within force boundaries; and — narrowing the justice gap by increasing the number of oVences brought to justice. The NPP and the recent Government proposals relating to “Policing: the future is local” are very relevant to Wales as they pertain to generic areas of citizen focused policing. The issues and priorities highlighted within the NPP and “Policing: the future is local” have the same priorities and relevance in Wales to those in England. The key diVerence is that some of the local arrangements for the delivery of strategic priorities have to reflect the local (ie Welsh) context. So for example although the Police Forces and Authorities are under the direct (undevolved) policy making of the UK Government, the Policy Agenda in Local Government and Health in Wales and more recently the Fire and Rescue Services and Transport falls within the remit of the Welsh Assembly Government. So, although not a devolved function, policing in Wales is directly impacted upon by the activities of the National Assembly for Wales and the Welsh Assembly Government. The Welsh Assembly Government changed the name of their Crime Reduction Unit to Community Safety Unit in 2003. This mirrored the change for Crime and Disorder Reduction Partnerships (CDRP’s) to Community Safety Partnerships. The Unit brings together individuals and organisations from the area to co-ordinate crime and disorder policies, in line with the Crime and Disorder Act. The Community Safety Unit works primarily to the Assembly Minister for Social Justice and Regeneration. The Assembly has a £100 million Crime Fighting Fund which provides a joined up approach to combating crime, the fear of crime and substance misuse. The Community Safety Unit is divided into two branches; Policy Support and Community Safety Partnership. The Policy side of the branch undertakes the full range of policy support to the Welsh Assembly Government on community safety issues. This covers briefing for the Social Justice and Regeneration Committee, Assembly Questions and varied correspondence.
Areas for future study There is potentially a very significant agenda of work to be done in studies and assessments of Policing and Community Safety which are able to contribute to the creation of stronger and safer communities in Wales, which is one of the four key objectives of “Wales: A Better Country”. That agenda includes: (a) It would be valuable to conduct Wales-specific and wider comparative studies of issues which have a high impact on the safety of communities. This includes alcohol related crime and disorder, given the significant part that alcohol plays in crime and disorder in Wales—generally, the British Crime Survey indicated levels of crime for Wales which are similar to non-metropolitan areas in England rather than the higher crime levels of metropolitan areas. But in relation to alcohol, vandalism and disorder, the Welsh figures are closer to the higher metropolitan areas. The recognition of this was reflected in the original decision to establish Drug and Alcohol Action Teams in Wales rather than simply Drug Action Teams. Some focused study and analysis of why these problems are so prevalent in Wales, relatively speaking, and the eVectiveness of measures to tackle them, might be especially valuable. (b) The Welsh Assembly Government’s consultation paper “Making the Connections” sets out a particular approach to public services. Subject to how that policy might be refined in the light of consultation, there would be potential value in work which would help to connect the general policy framework with the specifics of action by the police, local authorities and other agencies on the ground in helping to achieve stronger and safer communities. (c) The emerging eYciency agenda is clearly relevant to matters of policing and community safety. A number of the “Gershon” categories of potential improvements in eYciency apply to the Police as much as to other areas of public service. The work that has been done on Activity Based Costing (see Part Two of this Submission) can help to provide some of the baselines and comparative material to help identify potential areas of improved eYciency without damaging eVectiveness. d) The diagram shown at the beginning of this Part of the Submission highlights some of the complexity and inter-relationship between the policies, agencies and systems which are geared to the goal of stronger and safer communities. For Wales that complexity is amplified by the distribution of responsibilities between the UK Government and the Assembly. There may be benefit in drawing together an overall picture for Wales of the way in which the Criminal Justice System, the Youth Justice System, Community Safety Partnerships, and Drug Alcohol and Action activity fits together. It would be important that such a document did not purport to cut across the responsibilities of the various agencies and Government departments, but it might help to establish a better understanding of how all the various agencies and systems are working together, or could be helped to work better together. Welsh Affairs Committee: Evidence Ev 399
Part Two:Assurance and Performance The information contained in this part of our submission is taken from Audit and Inspection reports which are already or soon will be in the public domain.
Crime Recording A key element of policing in Wales (and indeed the whole of the UK) is the quality of data available to inform decision making on policing matters and to reassure the public on the level of crime and the success of the various agencies in reducing crime and the fear of crime. As part of the drive to improve the quality of crime data the National Crime Recording Standard (NCRS) was designed and approved by the Association of Chief Police OYcers (ACPO) with the support of the Home OYce and Her Majesty’s Inspectorate of Constabulary (HMIC). The standard was introduced for adoption by all Police Forces in April 2002. The new approach is victim orientated and on the basis of probabilities requires all police forces to record incidents brought to their attention as a crime. The new system is widely regarded as more stringent than previous systems and since its introduction most forces who have implemented it have experienced a rise in recorded crime rates. Even prior to the new NCRS the Home OYce and HMIC had expressed concern that there were some inconsistencies in the reporting of crime. The implementation of NCRS in all Forces is a critical step for the Home OYce and Police Standards Unit (PSU) towards harmonising recording practices. When implemented in full this will allow them to: — better evaluate the gap between recorded and total crime figures; — better understand the reasons for the significant variances that occur between forces both in terms of reported crime levels and detection rates; and — produce more informed central funding decisions. To assess the eVective implementation of NCRS and to help all forces achieve compliance with the Standard, the Home OYce, through the Police Standards Unit (PSU), commenced a three year programme of quality assurance work on police crime data. To facilitate this programme, the Audit Commission, in partnership with the PSU is currently undertaking a three year review of all forces in England and Wales. The first phase of reviews commenced in 2003 and we have recently completed the second phase in October 2004. A scoring system was adopted using traYc lights for assessing the performance of police forces. These were: Red—Some serious problems to be resolved; Amber—Moderate performance but further work needed in key areas to move to a green assessment; Green—A good/satisfactory level of performance has been achieved and no further action is required other than to maintain performance. In Year 1, the Crime Recording performance of Welsh forces varied with North Wales achieving a good performance assessment to Dyfed-Powys being assessed as poor. The results in England were similar with performance ranging from good to poor. The majority of forces in England and Wales achieved an Amber assessment. We have recently completed the second stage of the programme. The performance of Welsh forces again varied with North Wales maintaining a good assessment, Dyfed- Powys showing clear improvement and both Gwent and South Wales police performance deteriorating since Year 1, although both forces were able to retain their amber assessment. The results in England were similar again with performance ranging from good to poor. The majority of forces in England and Wales achieved an Amber assessment but a general improvement in data quality had been achieved from Year 1. A national (England and Wales) report was published on 21 December 2004. “Crime Recording”, shows that 60% of forces in England and Wales have still not achieved the required standard in terms of crime recording. In Wales this figure is 75% and represents three (out of four) forces. The results for each of the forces in Wales is detailed below. North Wales Police: North Wales Police was assessed overall as Green in both years 1 and 2. Performance was generally very good with no significant problems relating to the categorisation of crime records. The results between divisions were similar, with all achieving impressive results and within the green traYc light range of a less than 10% per cent error rate. Management arrangements are generally strong in relation to accountability and leadership, policy and administration and resourcing. A National Crime Recording Standard (NCRS) culture appears to have been eVectively translated into working practices at operational level. We found the Force audit arrangements for NCRS particularly good. Arrangements elsewhere are satisfactory, with some scope for improvement in integration of the system for crime recording and quality of service. Ev 400 Welsh Affairs Committee: Evidence
The Force and Authority have made progress over the year. All recommendations have been implemented and the Force Action Plan is considered a live document to drive improvements across the Force. Data quality and management arrangements have continued to be robust specifically in relation to integrity, accountability and leadership, policy and administration and audit and scrutiny. The Force continues to develop its victim focused approach to crime recording and the data displays a high level of integrity. ACPO oYcers and senior staV have demonstrated strong leadership in reinforcing NCRS commitment, evidenced through regular Command Team meetings and interaction with BCU personnel. The Deputy Chief Constable takes a leading role in crime data quality and the Force Crime Registrar is acknowledged force-wide as the key role in crime data quality. Police oYcers have a good level of awareness of the requirements of the Standard and what needs to be achieved. Dyfed-Powys Police: The overall assessment for Dyfed-Powys Police improved from Red (2003) to Amber (2004) from Year 1 to Year 2. In Year 1, the level of accuracy on crime recording was found to be poor, with a particularly high error rate in relation to incidents of criminal damage, domestic violence, vehicle crime and disorder. This indicated that the approach adopted by the Force was not consistent with the application of NCRS and Home OYce Counting Rules. It was evident from our data review that delays in “crimeing” incidents are occurring to allow for investigation to be carried out prior to a decision being made whether to crime or not crime any incident. This was indicative of the Force not adopting a “victim focused approach” when dealing with incidents. We also considered that the number of incidents reported in relation to disorder/disturbance was very low in comparison to those reported by other forces with a similar demographic profile. The overall level of non compliance issues with NCRS was indicative of a lack of training of OYcers in NCRS and an inadequate audit and scrutiny process. During the year, the Authority/Force committed considerable eVort to ensuring that arrangements for crime data recording meet the requirements of NCRS and that they are applied on a consistent basis throughout the Authority. Overall, we found that there had been significant improvement in the quality of crime recording. The leadership shown by the Chief Constable and improved training and auditing processes adopted by the Force have been the main factors in promoting the understanding of NCRS and improving the accuracy of crime recording. The detailed testing of crime data showed that since the completion of phase 1 of the study in 2003: — There had been a significant improvement in the coding of crime related incidents with an accuracy rate of 82% to 94% across the 4 BCUs found in our audit sample. — All BCUs correctly transferred crime related incidents to the crime recording system. Further work is still required in respect of recording public disturbance and domestic violence crimes before the recording system is fully compliant with NCRS. Similarly, we found the level of compliance for those incidents not crimed needs to be improved primarily by keeping better evidence of the reasons for non- crimeing. The corporate audit arrangements have been a contributory factor to the improvement in crime data from Year 1 but may be diYcult to sustain in terms of resources and from a value for money perspective. The approach adopted by the force should not be viewed as a long-term measure to assuring crime data quality— operational oYcers and supervisors should play a greater role in ensuring quality. Crime recording and the appropriate interpretation of information provided is key to eVective management. This requires detailed knowledge and the designation of a member with specific responsibility for crime data is seen as best practice. Whilst there are regular reports to the Authority on activity levels and the overall compliance of NCRS, a member has not yet been specifically designated as a lead for crime data. Gwent Police: Gwent Police was assessed overall as Amber for both years, but within this categorisation there was a deterioration in data quality between Years 1 and 2. Our initial audit indicated some encouraging performance such as oYcers making reference to NCRS guidance within the text of various incident logs and including a good level of detail. However, we also identified instances where oYcers were not recording suYcient detail on the incident log to justify why a crime should not be recorded. This limited information may cause problems for Supervisors when closing incidents, as well as unnecessary double checking during any audit undertaken by the Force. The incidents where this occurred tended to relate to domestic and disturbance incidents. There was an average time lapse of 10 days in an incident being reported and transferred to the crime recording system. Management arrangements were generally good, although there are significant delays between the reporting of the initial incident and the drafting and recording of a formal crime report on the Force Crime System. This means that data held on the crime recording system is not up to date which may in turn eVect the identification of repeat crimes and the quality of intelligence for the Force. Police Authority Members have been apprised of NCRS and its application. They have also received regular reports on the progress of its implementation and the Force’s overall performance. On the basis of our second review, the implementation of the new Crime Recording Bureau has significantly reduced the time taken to record crimes. However, data quality had deteriorated from Year 1, with the highest error rate revealed in recording incidents involving domestic violence, disorder and racial Welsh Affairs Committee: Evidence Ev 401
crime. There are a number of management arrangements where improvements are required before the full benefits of the Crime Recoding Bureau are realised and crime recording is fully compliant with the standards set by NCRS. The Force had made less progress than expected since the Year 1 audit. Further work now needs to be undertaken by the Authority and Force before the recording of crime data is fully compliant with the Standard. In particular we found there is a need to:
— Assess and deliver appropriate training requirements to all staV. In particular no formal training or awareness programme has been run since phase 1 of the audit was completed in March 2003. — Provide the Authority members with details on the achievement of the Standard. — Confirm the post of Force Crime Registrar as a permanent position and that her access to senior oYcers is appropriate and fully aligned to the principles of the Standard. — Review the IT systems supporting the recording of crime data to ensure they can support the Standard and provide for the easy extraction of data. Where systems are identified as inappropriate an agreed programme for their amendment or replacement should be put in place. South Wales Police: South Wales Police was also assessed overall as Amber in both years. However, there was a reduction in the quality of data and the management arrangements between Years 1 and 2. In year 1 on crime records there were elements of good performance shown in all divisions, with 3 BCUs achieving a very low error rate. Some minor problems however existed relating to the categorisation of crime records. The incident categories relating to violent crime incidents and domestic incidents showed the highest error rate with scope for improvement in most divisions. All incidents which were closed as a crime were present on the Force crime system, which represented good practice and 100% accuracy. Management arrangements were generally satisfactory, with good practice identified in leadership, accountability, policy and administration and audit processes. Areas of improvement were identified in resourcing, training and awareness and systems for crime recording. In the second stage of the review we found that the Force had made little progress since Year 1 and there had been a decline in data quality and management arrangements. The corporate arrangements appear to have been a key contributory factor to the decline in performance from last year. The principal reasons for this were: — a change in a number of key senior personnel responsible for crime data; — there has been little formal training for oYcers in relation to the Standard since last year; —theeVectiveness of audit and scrutiny role has reduced due to staV changes and other priorities; and — although the Authority has designated a lead Member for crime data, information on crime data quality has not been produced regularly for all Authority Members. There had also been a reduction in the quality of crime related incidents. The incident categories relating to violent crime, domestic violence, disorder and racial incidents showed the highest error rate with scope for improvement at all divisions. Most of the incidents considered non-compliant did not have suYcient information detailed or a reason to justify why the incident was not crimed. Some incidents reviewed clearly indicated that a victim based approach had not been adopted, but we did not identify any clear breaches of the NCRS.
Youth OVending Teams
We have recently undertaken a review of data quality at a sample of Youth OVending Teams (YOTs) in England and Wales on behalf of the Youth Justice Board. This included two YOTs in Wales—Gwynedd and Ynys Mon and Rhondda Cynon TaV. We have not yet seen the combined England and Wales results but the overall message for Wales is that the management arrangements for data quality are poor. Data quality has been given an insuYciently high priority within the limited resources that are available and more training for staV is needed.
Activity Based Costing
Another key element of the reassurance agenda is the link between resources and outcomes. The National Policing Plan made clear that all Police Authorities and Forces are expected to implement Activity Based Costing (ABC) in 2003–04. Ev 402 Welsh Affairs Committee: Evidence
ABC is an essential tool in establishing the links between resources used and the policing outcomes delivered and is therefore a critical part of the Policing Performance Assessment Framework (PPAF) Programme. ABC is intended to help Forces and Authorities to produce important information helping to: — identify where resources are currently being used; — identify and monitor eYciency improvements; — justify business change and resource deployment; — maintain accountability and identify gaps between priorities; — assess comparative performance within and between forces; — whether the Force has identified a source of activity information for each unit/staV group within the Force; and — whether the timetable for Activity Sampling will provide a reasonable and representative allocation of costs across activities taking into account seasonal trends and other factors. In agreement with the Home OYce and Police Standards Unit, ACiW has undertaken a planned programme of reviews of ABC compliance and development at all Police Authorities and Forces in Wales. A traYc light assessment was used in year one to assess police performance in this area. — Green; the submitted plan is compliant and consistent with the national guidance issued; — Amber; some elements of the plan do not reflect the national guidance. As a result, there is some concern that the plan will not deliver consistent, valid and comparable information; or — Red; the plan is not compliant with national guidance. A revised implementation plan and an action plan addressing the specific recommendations should be submitted to the Home OYce within a timescale agreed between the Authority and the Auditor. In year two a narrative assessment was made of the two key components (data quality and the management arrangements and systems). This assessment was on a four point scale—poor, weak, good and excellent. The performance of Welsh forces in terms of ABC was mixed. North Wales and Dyfed Powys Police received good to excellent assessments. Gwent and South Wales Police received good to weak assessments. The results in England also varied significantly with performance ranging from weak to excellent. The results of our individual audits are shown as follows—
Dyfed-Powys Police Year 1 review—The force was assessed as Green Year 2 review—Data quality was assessed as Excellent Management arrangements and systems was assessed as Good
Gwent Police Year 1 review—The force was assessed as Amber Year 2 review—Data quality was assessed as Good Management arrangements and systems was assessed as Weak
North Wales Police Year 1 review—The force was assessed as Green Year 2 review—Data quality was assessed as Excellent Management arrangements and systems was assessed as Excellent
South Wales Police Year 1 review— The force was assessed as Amber Year 2 review— Data quality was assessed as Weak Management arrangements and systems was assessed as Weak. (The ABC statement originally submitted by the force was incomplete, but the necessary information has now been provided to the Home OYce and is being analysed.) Welsh Affairs Committee: Evidence Ev 403
Financial Management The current financial position of Police Authorities in Wales remains sound and, where required, eYciency savings for 2003–04 have been delivered. In common with many authorities, the funding of the police service in Wales is increasingly being aVected by the number of specific grants available. For example in North Wales Police Authority for 2003–04 the value of funding received via grant aid has increased by 25% over the previous year. During the year there were 12 new specific grants ranging in value from £8,000 to £440,000. Much of this funding only becomes available at short notice and after the annual budget has been agreed. Whilst this income is used to fund a variety of projects and schemes, by its very nature this funding cannot be guaranteed for future years. Unqualified audit opinions have been issued on the financial statements of the four Police Authorities in Wales over recent years. For 2003–04, two Authorities (Dyfed-Powys and Gwent) were able to bring forward the date for completion of the annual statement of accounts. In the other two Authorities (South Wales and North Wales), staYng issues meant that they were unable to bring the date forward but both had their accounts approved before the 30 September statutory deadline. Financial systems in each of the Authorities operate eVectively and support the timely production of the financial statements.
Corporate Governance All four Authorities in Wales have appropriate and satisfactory arrangements to consider the legal implications of significant financial transactions. Each of the Authorities has an appropriate oYcer structure.
Capital Expenditure and Asset Management Some use has been made of the Private Finance Initiative (PFI) in Wales. Dyfed-Powys and Gwent have used PFI to build/refurbish a Police Station (both schemes are less than £10 million). South Wales have not used PFI. None of these Authorities is currently considering the use of PFI in connection with future capital expenditure. North Wales has one PFI scheme up and running, covering a custody suite and oYce accommodation near St Asaph. A second scheme has been in the pipeline for some time, but issues remain to be resolved between the National Assembly and Home OYce in terms of financing responsibility. In North Wales these schemes are the flagship part of a major capital restructuring which has been underway for a number of years. The strategic aim of this has been to re-focus policing to where it is needed. The restructuring has involved the sale of redundant Police Houses and Police Stations to provide more modern and diVerent types of facilities. A key part of this strategy has involved the use of leasing to invest heavily in ICT. From April 2004 the Prudential Framework on capital expenditure provides significantly more freedom for Authorities to plan and fund their Capital Programme than the previous system of capital controls allowed. Following the introduction of the Prudential Code, the North Wales Force has commenced an options appraisal to assess what forms of financing are best suited to its future capital funding needs. None of the other three Authorities has yet used the opportunities presented by the Prudential Code to review and revise the financing of their Capital Programme.
HMIC Baseline Assessments Performance and comparison of all Police Forces including Welsh forces is normally conducted by HMIC. On 14 June 2004, HMIC published baseline assessment reports for all 43 English and Welsh Forces, oVering a high level diagnostic statement of each Force’s relative strengths and weaknesses. The baseline provides a point against which progress can be measured and an early warning of performance deterioration. It is designed as a self-assessment process, with the degree of validation/reality checking undertaken by HMIC increasingly dependent on a force’s performance and the rigour of its internal assessment. For baseline reviews, HMIC used an explicit grading process, with four bands of Achievement— Excellent, Good, Fair and Poor. This was the subject of much discussion between the Association of Chief Police OYcers and the Association of Police Authorities during 2003 and a mature consensus was reached that, while there is a downside to grading, it is a necessary development that could also deliver significant benefits in driving up Police performance. In total, 16 activities were graded and the subsequent analysis identified national themes and trends across all Forces. For example, there were strengths in professional standards and the management of critical incidents but weaknesses in call handling and level 2 criminality. On tackling level 2 criminality, HMIC is currently in dialogue with NCIS, NCS and ACPO to secure agreement on definition, current status and work to improve performance in this vital area. Ev 404 Welsh Affairs Committee: Evidence
The baseline reviews have shown that all Forces in Wales are not performing below their counterparts in England, however there are some specific areas of strengths and weaknesses between each Force and comparable Forces in England. When the first HMIC baseline reports were published, work began on transferring the evidence base to the new Policing Performance Assessment Framework (PPAF) domain structure. Some frameworks have been transferred intact, for example, Professional Standards, while others such as volume crime have been split to reflect the PPAF division between reducing and investigating crime. Revised baseline assessments for October 2004 were presented to all Forces in November 2004. Forces are being asked to provide a succinct response (self-assessment) by 31 January 2005. HMIC will oVer training to Forces on the use of the evidence-gathering software (BASE) to help in collating evidence. HMIC will then draw upon the following sources to prepare the baseline assessments: — all inspection activity in the previous year, including BCU and BVR inspections, any focused inspections on particular themes, and various types of monitoring such as that of force eYciency plans; — information from external agencies, other stakeholders, and other bodies engaged in inspection. It is then planned to send draft reports to Forces and Police Authorities in July 2005 with a view to publication by the end of September 2005. HMIC recognised that the grading of level 2 criminality in the first set of baseline reports was unsatisfactory, and for this reason the reconfigured reports do not grade this area, pending the completion of the work with NCIS. With call handling, there is already work in progress on both the technological aspects of call handling and quality of service issues. HMIC has recently begun a thematic review of call handling, mapping its contribution into existing strands of work to add value. The objective is to provide forces with a revised “new look” baseline at the beginning of the planning cycle in the format for future use. This will be the baseline for future assessments that link HMIC’s work and PPAF. HMIC StaV OYcers have liaised with forces during the early summer 2004 to undertake a very limited refresh of the evidence base, focusing on quantitative data such as volume crime statistics.
Reported Crime and Detection Overall the level of reported crime in key categories in Wales is much lower than the average for England and Wales, although “all crime per 1,000 population” in Gwent and South Wales is higher than the average and there is a similar pattern in “violent crime per 1,000 population” and also “vehicle crime per 1,000 population”.
Similarly detection rates for all categories of crime are substantially better than the reported average for England and Wales. There are some particularly notable examples of this. In Dyfed-Powys the percentage of robberies detected is almost twice the average and in Gwent the percentage of vehicle crimes detected is three times the average. The level of repeat burglaries throughout Wales is also significantly below the average. The source for all the material below is the HMIC Baseline Assessments (Revised) October 2004. The England and Wales average has been calculated excluding the City of London Police where, as a result of the small population, a diVerent method is used to record the level of crime.
England & DPPA GPA NWPA SWPA Wales average
All crime per 1,000 62.95 107.03 92.40 114.05 104.60 population
% of total crime detected 46.77 44.51 32.56 29.19 26.40
Burglary dwelling per 4.64 14.12 8.93 14.74 16.37 1,000 households
% of burglary dwellings 28.28 45.30 27.90 18.90 18.72 detected
Robbery per 1,000 0.11 0.49 0.30 0.62 1.66 population
% of robberies detected 50.00 37.59 36.32 36.09 25.57
Vehicle crime per 1,000 4.71 16.11 11.39 22.53 15.33 population Welsh Affairs Committee: Evidence Ev 405
England & DPPA GPA NWPA SWPA Wales average
% of vehicle crimes 23.48 32.63 10.01 12.60 10.93 detected Violent crime per 1,000 16.99 24.56 17.58 18.85 18.12 population % of violent crime 66.36 79.70 69.20 67.86 54.67 detected % of racially aggravated 60.32 57.92 45.32 44.21 41.83 crime detected % of domestic burglaries 4.45 3.34 9.66 4.89 13.32 where the property has been burgled in previous 12 months
Operational Performance In Gwent, North Wales and South Wales deaths and serious injuries resulting from road and traYc accidents are below the reported average for England and Wales. Levels in Dyfed-Powys are above average, possibly due to the inherent dangers of single carriageway roads and the absence of motorways.
England & DPPA GPA NWPA SWPA Wales average
No. of Road TraYc 0.87 0.35 0.44 0.33 0.49 Collisions involving death or serious injury per 1,000 population
The speed of answering 999 calls for three of the Welsh Forces is better than the reported average for England and Wales.
England & DPPA GPA NWPA SWPA Wales average
% of 999 calls answered 88.68 73.04 89.37 82.54 81.95 within local target time
Use of Resources The number of days lost through sickness for both Police OYcers and Police StaV (civilians) in all of the Forces in Wales is above the reported average for all England and Wales Forces. Apart from Police OYcers and Police StaV at Gwent the incidence of medical retirements is lower in Wales than the reported average for England and Wales. The number of complaints against Police OYcers is higher than the reported average for England and Wales at Gwent Police Authority.
DPPA GPA NWPA SWPA England & Wales average
Number of days sickness 10.92 13.78 10.54 10.24 9.79 per Police OYcer. Number of days sickness 11.43 17.09 11.30 12.93 10.79 per Police StaV. Medical retirements per 6.00 5.81 3.09 4.11 3.47 1,000 Police OYcers Medical retirements per 1.86 10.01 2.34 5.37 3.06 1,000 Police StaV Complaints per 1,000 165.38 210.76 158.77 163.95 176.56 oYcers Ev 406 Welsh Affairs Committee: Evidence
Citizen Satisfaction Overall the level of satisfaction from victims of crime to the Police response to 999 calls and incidents is mixed. For example only Dyfed-Powys has levels of satisfaction with the initial Police response for domestic burglary and the time taken to answer a 999 call which are above the England and Wales average. All of the Forces, except Gwent, report a greater than average level of satisfaction with regards to the initial Police response to racist incidents. Only North Wales reports a worse than average level of satisfaction with the response to a 999 call and with the arrival time of Police.
DPPA GPA NWPA SWPA England & Wales Average
% of victims of 88.10 80.86 83.28 85.34 86.50 domestic burglary satisfied with the initial Police response % of victims of violent 74.91 61.33 73.20 68.89 71.65 crime satisfied with the initial Police response % of victims of racist 84.62 51.35 66.67 61.59 61.02 incidents satisfied with the initial Police response % of public satisfied 80.73 76.66 69.99 77.60 73.65 with a response to a 999 call % of public satisfied 94.57 86.03 87.77 79.63 89.16 with time taken to answer a 999 call.
DPPA GPA NWPA SWPA England & Wales Average % road traYc collision 89.67 83.97 89.96 80.51 86.83 victims satisfied with service at scene of RTC.
% Public satisfied with 85.90 75.75 73.35 75.60 75.09 arrival time of Police at immediate response incident
BCS % very worried 8.21 10.11 12.84 10.05 11.55 about burglary
BCS % high levels of 9.22 12.56 13.26 15.75 14.13 worry about car crime
BCS % high levels of 10.82 10.42 11.84 9.51 14.51 worry about violent crime
BCS % high levels of 8.54 12.55 12.75 14.74 15.33 perceived disorder.
Overall the British Crime Survey shows that the public’s fear and perception of crime is lower (that is better) in Wales. The only exceptions are the relatively high levels of worry about car crime in South Wales and the level of worry about burglary in North Wales. Clive Grace Director-General Audit Commission in Wales 24th December 2004 Welsh Affairs Committee: Evidence Ev 407
Annex 1
THE ROLE OF THE AUDIT COMMISSION IN WALES The Audit Commission in Wales (ACiW) is part of the Audit Commission, an independent body responsible for ensuring that public money is spent economically, eYciently and eVectively, to achieve high quality local and national services for the public. As an independent watchdog we provide important information on the quality of public services. As a driving force for improvement in those services, we provide practical recommendations and spread best practice. As an independent auditor we monitor spending to ensure public services are good value for money. ACiW is active across local public services in Wales—Police and Criminal Justice, Local Government, Health, Housing, and Fire and Rescue Services. As a result we are well placed to provide evidence on the impact of public services on users and the way in which bodies work together to achieve shared goals. District Auditors from the ACiW are the appointed auditors for the four Welsh Police Authorities and we undertake audit and performance work at Police Authorities in accordance with the Code of Audit Practice approved by Parliament. The work the appointed auditors is based on the level of risk assessed at each individual Authority. Risk assessments are carried out on annual basis to inform the local planning process; individual pieces of work are reported to each Authority, typically at public meetings and all the work is summarised each year in the Annual Audit Letter to the members of the Authority. Each Authority is required to publish the auditor’s annual letter. The Commission’s Auditors have responsibilities to examine the economy, eYciency and eVectiveness of Police Authorities’ use of resources under section 5(1)(e) of the Audit Commission Act 1998 and in accordance with the Commission’s Code of Audit Practice. In some cases this responsibility is discharged by specific local pieces of work. In other cases the ACiW also conducts Police audit work in response to national risks identified by the Audit Commission in conjunction with the Home OYce and the Police Standards Unit. This work covers all Police Forces and Authorities in England and Wales and enables comparisons to be made between Forces. ACiW conducts cross cutting audit work involving Welsh Community Safety Partnerships and Criminal Justice Agencies which has a direct impact upon Police authorities. We regularly liaise and consult with the Crime Director for Wales and WLGA when undertaking work which has National messages. On 1 April 2005 ACiW merges with the National Audit OYce in Wales to form the Wales Audit OYce under the Auditor General for Wales. This will create opportunities for studies and value for money examinations which do look across a wider span of the systems and agencies concerned to achieve stronger and safer communities in Wales. 24 December 2004
26. Written evidence from the National Crime Squad
POLICE SERVICE, CRIME AND ANTI-SOCIAL BEHAVIOUR IN WALES
1. Introduction The National Crime Squad (NCS) is tasked with combating national and international serious and organised crime within, or aVecting, England and Wales. This is achieved through the selective targeting of oVenders and organised crime enterprises, exploiting every opportunity to prevent and reduce the destructive impact of their criminal activity on communities and the fabric of society. Formed in 1998, the NCS is a Non-Departmental Public Body. Responsibility for the accountability, management and supervision of the organisation is vested in three entities: the Director General, the Home Secretary and the Service Authority. Operational direction lies with the Director General, supported by a Deputy Director General, two Assistant Chief Constables, a Director of Finance and a Director of Business Support. The organisation is staVed by police oYcers from the 43 police forces of England and Wales, as well as police oYcers who have been directly employed under the Police Reform Act, and directly employed police staV who perform both operational and support roles. The organisation aims to have approximately 1,800 staV, including separately funded national functions. NCS Headquarters are in London, with three Operational Command Units (OCUs)—Northern, Eastern and Western—covering the whole of England and Wales. Each OCU consists of a number of branch oYces where operational teams are based. The NCS also encompasses multi-agency units tasked with addressing specific areas of criminality, such as the National Hi-Tech Crime Unit (NHTCU). On 1 April 2006, the NCS will form a central part of the Serious Organised Crime Agency (SOCA), as a result of the Serious Organised Crime and Police Bill currently going through Parliament. Ev 408 Welsh Affairs Committee: Evidence
2. The NCS in Wales The NCS has three branch oYces in Wales. Each of these branch oYces are staVed by experienced detectives, the majority of whom are currently seconded from local police forces. These oYcers are supported by specialist police staV, who provide intelligence analysis, financial investigation and technical and administrative support. The branch oYces have made a significant impact on serious and organised criminality in or aVecting Wales through the dismantling and disruption of organised crime enterprises. Over the last three years alone, the NCS in Wales has achieved the following results: — Seven major organised crime enterprises—all connected to the trade in Class A drugs or organised immigration crime—have been completely dismantled. — Significant seizures of Class A drugs (157 kilograms of cocaine and ecstasy), together with over two metric tonnes of other drugs, (such as cannabis and amphetamine). — 139 arrests of organised criminals, the majority of whom reside in and/or impact on the Welsh market. In the last three years, the majority of these main targets have been based in Wales, although they have all had many associates and contacts in the UK, Europe and internationally. — The NCS in Wales has identified to the Courts that these organised crime enterprises have accrued benefits through their drug dealing to the approximate value of £28 million. £7 million of criminal assets have been identified and over £1.5 million has already been confiscated. Furthermore, the NCS is working hard to support Welsh police forces in tackling cross-border crime at Level 2 of the National Intelligence Model (NIM), particularly as part of Operation TARIAN. NCS personnel in both north and south Wales are permanent members of the Regional Tasking and Co- ordinating Group (RTCG), which is responsible for addressing NIM Level 2 criminality within Wales. The RTCG in this region has also developed a Regional Task Force (RTF) as its operational arm, which the NCS is fully involved in supporting (see Operation CYAN below, for example).
3. Recent Operations To illustrate the eVectiveness, challenges and variety of the work of the NCS in Wales, outlined below is a precis of a number of operations over recent years:
Operation CONGLOMERATE (organised illegal immigration) Operation CONGLOMERATE was an investigation into an organised crime enterprise headed by a Bulgarian national residing in Swansea on a false passport. The group was responsible for the exploitation of young Bulgarian women for the purpose of prostitution in massage parlours in both Wales and London. Following extensive enquiries by the NCS and the UK Immigration Service, the ringleaders were arrested and subsequently deported to Bulgaria.
Operation CYAN (Class A drugs) This was an operation investigating an organised crime enterprise based in Lancaster and Bridgend supplying large quantities of cocaine and ecstasy into the south Wales market. An early breakthrough led to the arrest of the Lancaster supplier, and subsequent enquiries identified a large network of Level 2 dealers and suppliers throughout the Neath, Port Talbot and Bridgend Valley regions. Consultation with the RTF management resulted in an agreement that the NCS would provide the RTF with all the intelligence and evidence it had amassed during its investigation. This enabled the RTF to execute 20 search warrants, which in turn led to 18 arrests and the recovery of both Class A and B drugs to the value £180,000 and £160,000, as well as cash seizures. In October 2004, 12 members of this organised criminal enterprise were sentenced to a total of 60 years imprisonment at Swansea Crown Court. The two principal members of the group were jailed for 12 and 10 years imprisonment each. The net result of this collaboration was a considerable local impact in the communities concerned, with some local residents telephoning the local Divisional Commander to congratulate the police on taking such positive action. Community intelligence indicated a shortage of drugs on the streets for some time afterwards. The RTF were also commended for Operation CYAN by the Home OYce, “Tackling the Middle Market” at the Tackling Drug Supply Awards 2004.
Operation EUREKA (Class A & B drugs) Operation EUREKA was launched in May 2001 after liaison with colleagues in the National Criminal Intelligence Service (NCIS). The operation was a long-term investigation into the criminal activities of Bernard William Rees. Rees was a major criminal in Wales who controlled an organised crime enterprise of both national and international significance. Rees had been sentenced in 1993 to a term of 13 years imprisonment for oVences of importation and conspiracy to supply cocaine. He was released from prison Welsh Affairs Committee: Evidence Ev 409
in May 2001 on licence, whereupon NCS oYcers mounted Operation EUREKA into his drug distribution network. Rees’ organisation was responsible for the wholesale distribution of both Class A and B controlled drugs. A significant and pivotal figure in this organisation was Martin Barnes, a prominent South Wales businessman. OYcers mounted an extensive surveillance operation and gathered evidence as members of the gang met in car parks and other venues to set up major drug deals. The organisation dealt in cocaine, heroin, amphetamine sulphate, crack-cocaine and ecstasy. The network was dismantled when oYcers made a string of arrests between January and May 2002 and seized drugs worth up to £1 million, as well as £15,000 in cash. Half a kilo of cocaine was recovered, one of the largest such seizures in 2002 in south Wales, along with 30 kilos of amphetamine sulphate, a replica pistol and six live 9mm rounds of ammunition. 12 men were sentenced to over 80 years imprisonment following their convictions at CardiV Crown Court on 7 May 2003. The principal defendants, Rees and Barnes, were sentenced as follows: — Bernard William Rees was convicted of conspiracy to supply cocaine and two counts of conspiracy to supply amphetamine. He was sentenced to 15 years imprisonment. In addition, the Judge ordered that he be recalled to complete an outstanding three and a half years imprisonment for a previous conviction (conspiracy to supply cocaine) in 1993, when he was sentenced 13 years imprisonment, but released in 2001 on license. — Martin Barnes was convicted of two counts of conspiracy to supply cocaine, two counts of conspiracy to supply amphetamine, one count of possessing amphetamine with intent to supply, one count of supplying cocaine and one count of supplying heroin. He was sentenced to 15 years imprisonment. Judge Richards commended all of the NCS oYcers and staV involved in Operation EUREKA, stating that, “The public is indebted to the NCS, and if not for their arrests of the accused persons, the cocaine and amphetamine seized would have hit the streets of South Wales”. To demonstrate the commitment to ensure that major criminals do not profit from their criminal enterprises, the NCS applied to the High Court in London, and won a legal ruling to confiscate the proceeds of drug traYcking dating back to an Order made 10 years ago at CardiV Crown Court. In October 1993, a Confiscation Order for £142,243 was made against Bernard William Rees after he was jailed for 13 years for supplying cocaine. Rees failed to satisfy the Order and receivers were brought in to identify and seize his assets, including properties in Spain, CardiV, and a 50% stake in his marital home in CardiV. However, before his conviction in 1993, Rees and his wife Margaret divorced and she later filed an aYdavit, which claimed the majority of the assets belonged to her alone. The NCS contested the aYdavit, and after the High Court had ruled in its favour, it lifted a restriction on the Receiver, allowing the realisation of the assets over 10 years later.
Operation NEVADA (kidnap response) Operation NEVADA involved NCS oYcers traveling to Spain to assist North Wales Police and the Spanish authorities in the investigation into missing couple Linda and Tony O’Malley, from Llangollen. The couple had visited Spain in August 2002 with a view to buying property in the Costa Blanca area, and were reported missing when they failed to return home. The NCS established a full kidnap response control centre in consultation with North Wales Police, and subsequently managed negotiations after receiving e- mail and telephone demands for money. On 25 March 2003, Spanish police arrested four people after technical inquiries significantly progressed the investigation. Tragically, the decomposed bodies of Mr and Mrs O’Malley were later found in the cellar of a villa in the north of Alicante.
Operation ORE (paedophilia) The Paedophile On-Line Investigation Team (POLIT) is one of several specialised units within the NCS, and is charged with the investigation of on-line paedophilia, including the UK co-ordination of the now publicised Operation ORE. This operation started when, in 2001, the details of 7,272 British suspects who had accessed child abuse images on a US website with their credit cards were passed to UK authorities. Operation ORE subsequently became the largest ever single investigation into online activity of this nature. UK law enforcement was unprepared for the sheer volume and proliferation of child abuse images on the net, which resulted in the NCS being asked to review Operation ORE on behalf of the Association of Chief Police OYcers, the Home OYce and the wider UK law enforcement community. The resultant recommendations called for a process whereby a single team would receive, evaluate, risk assess and disseminate material relating to national and international internet-related child abuse. Regional forces would then use their expertise in investigation and intervention. POLIT was thus established in 2002, becoming the single point of contact for domestic and international law enforcement, as well as the administrative support for operational tasking and co-ordination. Since January 2004, POLIT has handled a total of 2,782 intelligence packages, including those from the USA, Norway, Canada and Germany. Ev 410 Welsh Affairs Committee: Evidence
Operation ORE has had a significant impact in Wales: 68 suspects were charged with oVences, of which 62 were convicted. Of these, 39 were sentenced and 11 were cautioned. 18 known abusers were removed, 40 additional child abuse investigations were generated and—perhaps most importantly—six children were recovered from abuse. 318 computers were examined in the course of enquiries.
4. Partnership Working Success on this scale is not achieved by operating in isolation, and the NCS are proud of the fact that it has an excellent working relationship with many other partner law enforcement agencies, both domestic and foreign. For example, Her Majesty’s Customs and Excise, NCIS and UKIS within the UK, as well as the Australian Federal Police, the Drug Enforcement Administration, the Federal Bureau of Investigation, and the Royal Canadian Mounted Police from overseas. The NCS also work extensively with several governmental departments, the security and intelligence agencies, as well as both the private and voluntary sectors. It is at the forefront of developing an innovative organised crime reduction strategy, with such partnerships forming a key pillar of the organisation’s ability to proactively create obstacles to prevent organised criminals going about their business.
5. Conclusion The NCS in Wales are currently conducting several operations which have an impact on Wales. These operations are in various stages of development and are all concentrated upon organised criminals who operate at NIM Level 3. Other specialised units of the NCS, such as the NHTCU and POLIT, have provided Welsh police forces with assistance to combat NIM Level 2 criminality in Wales. The NCS also on occasions provide specialist training to Welsh territorial police forces. The NCS remains committed to continue, in partnership with local forces, its fight against organised crime in Wales. Whilst there are many challenges ahead for the organisation, notably in the transition to SOCA in 2006, the Director General is committed to maintaining and where possible improving upon the excellent performance that has already been achieved by the NCS in Wales. Trevor Pearce Director General (Acting) 7 December 2004
27. Written evidence from the National Criminal Intelligence Service
INQUIRY INTO THE POLICE SERVICE, CRIME AND ANTI-SOCIAL BEHAVIOUR IN WALES Thank you for your letter of 22 October asking for information on NCIS and our eVect on policing in Wales. NCIS supports the Police Service in Wales against serious and organised crime through the provision of intelligence products allied with process management responsibilities as required by the National Intelligence Model Regional Tasking and Co-ordination Policy. To facilitate this NCIS has a dedicated Regional Intelligence Unit based in Bridgend. The NCIS Wales RIU has on-site access to the ELEMENTARY database on serious and organised crime. The unit is co-located in oYces with other law enforcement assets, specifically the Wales Regional Asset Recovery Team (RART), the Wales Special Branch Regional Intelligence Cell (SB RIC), and a Regional Task Force, all grouped under the generic heading of Operation Tarian!. Physical co-location inevitably supports closer working, and consequently this is an enhanced unit in comparison to other similar units supporting ACPO regions in England. The NCIS Wales RIU incorporates a Secretariat dedicated to supporting the RTCG process in Wales. It provides administrative support to ensure that meetings take place in line with national policies, and are suitably attended and recorded. The NCIS Secretariat also reports on the Performance of the RTCG process in Wales by the provision of a six monthly review and evaluation of Process and Products. The most recent review of performance in Wales covers the period 1 April 2004 to 30 September 2004, and is attached as Annex A to this paper. Although no formal comparison of RTCG performance documents has as yet been conducted by the Police Standards Unit, the NCIS assessment is that the Wales ACPO RTCG performance in terms of both utilisation of process and results achieved can be compared favourably with most other ACPO regions in England. An important enabling factor for the RTCG process in Wales is the availability of enforcement assets, specifically the Regional Task Force that is available for tasking by the tactical meeting of the RTCG. The NCIS Wales RIU also contains one Senior Intelligence OYcer and six Intelligence OYcers dedicated to the provision of the following Intelligence Products designed to inform and support the RTCG in its activity to combat serious and organised crime in Wales: Welsh Affairs Committee: Evidence Ev 411
— A yearly Regional Strategic Assessment (RSA) coupled with a six monthly update that incorporates a draft Regional Control Strategy (RCS) and a draft Regional Intelligence Requirement (RIR) for ratification by the Strategic meeting of the RTCG — A quarterly Tactical Assessment that reports on activity and results in line with the RCS. — Problem Profiles in respect of elements of the RCS as commissioned by the RTCG. — Target Profiles in respect of the most serious and organised criminal groups impacting on the RCS. — Quarterly Network Analysis of the major criminal groups responsible for the traYcking and distribution of Class A drugs in Wales. The formulation of the RSA by NCIS, and the ratification of the RCS by the RTCG stipulate the priorities for the Police Service response to serious and organised crime in Wales in terms of intelligence priorities, enforcement priorities and prevention priorities. The current RCS in Wales is: — Class A Drugs — Organised Immigration Crime — Traveller Crime — Terrorism NCIS also has an intelligence oYcer based within the multi-agency Wales RART providing intelligence support in respect of asset recovery operations, and live access to the ELMER suspicious transaction report disclosure database. NCIS assets sited in Wales are also supplemented by other resources based in Bristol, and Manchester (in the respect of North Wales Police), that have responsibility for intelligence collection in Wales in respect of national strategy requirements such as CIDA (Concerted Inter-Agency Drug Action) and REFLEX, (Organised Immigration Crime Strategy). NCIS have eVective partnerships with other national law enforcement based in Wales, in particular the National Crime Squad, H.M. Customs and Excise and the U.K. Immigration Service. Peter Hampson Director General 10 December 2004
28. Written evidence from the British Transport Police
POLICE SERVICE, CRIME AND ANTI SOCIAL BEHAVIOUR IN WALES
1. Introduction 1.1.1 This paper sets out the current structure of British Transport Police (BTP) and the context within which the organisation operates, together with the operational and organisational challenges it faces in Wales. Emphasis is placed upon the force’s adherence to the National Policing Plan and specifically anti- social behaviour oVences. 1.1.2 The BTP would like to thank the Welsh AVairs Committee for the opportunity to present evidence on the valuable role it performs in keeping the railways safe and secure in Wales. 1.1.3 The crime and performance data reflected in this document represent the BTP Western Area performance up to and including Monday 6 December 2004.
2. Contextual Background 2.1.1 BTP is the specialist national police force for the railways, providing policing across England, Wales and Scotland, operating within two legal and criminal justice systems. The jurisdiction of the Force encompasses national rail services, London Underground, freight, Docklands Light Railway and other light transit systems such as Croydon Tramlink and Midland Metro. The force has 2,300 police oYcers, 602 civilian police staV, 211 Special Constables and funding for 131 Police Community Safety OYcers (PCSO’s). 2.1.2 The Force is structured into seven policing Areas that are operated on a similar footing to Basic Command Units in other police forces. The BTP Areas include Scotland, North Eastern, North Western, Western, London North, London Underground and London South. 2.1.3 The Western Area of the Force encompasses the whole of Wales. Western Area was formed in January 2003 and was a merger of the South Western and Midlands Areas, which previously covered, south and mid-Wales respectively. On amalgamation north Wales, which the North Western Area had previously Ev 412 Welsh Affairs Committee: Evidence
covered became part of Western Area. Part of the reason for the merger was a recognition that Wales needed to be covered by one territorial BTP area for both operational and political reasons following the establishment of the Welsh Assembly and the awarding of the all Wales train franchise. 2.1.4 There are four BTP police stations in Wales in Newport, CardiV, Swansea and Bangor. The BTP station at Shrewsbury covers part of Wales. They are responsible for policing in the following geographic area:
BTP Station Geographic area covered
CardiV City of CardiV, Vale of Glamorgan, CardiV Valleys and Bridgend Swansea City of Swansea, Llanelli, Swansea Valleys, Port Talbot, Neath and West Wales area up to but not including Aberystwyth Newport City of Newport, Gwent Valleys Bangor Bangor, Anglesey and the north Wales coastline and the Lye peninsula Shrewsbury From the English border to the Welsh coast in a band bordered by Aberystwyth in the south to the Lleyn peninsula in the north including Aberystwyth and Wrexham
2.1.5 BTP oYcers are also based in and work out of the Dyfed Powys Police station in Carmarthen. They cover the western part of Carmarthenshire and Pembrokeshire. From January 2005 oYcers will be based in and work out of the North Wales Police Station in Rhyl. They will cover the eastern part of North Wales up to the English border and this will further serve to enhance the already close working relationship BTP enjoys with North Wales Police. 2.1.6 Overall, BTP oYcers based within or covering Wales provide a policing service to 234 railway stations and associated route miles of track. 2.1.7 Western Area is commanded by a Chief Superintendent. The main operational and support departments for the area are also based there. These include the Area Communications Centre, Area Intelligence Bureau and the Area Crime Management Centre. They all provide a service to Wales. In CardiV, in addition to the operational Police Station there are out-based Area Headquarters staV performing functions ranging from Event and Contingency Planning, Football Intelligence, Local Intelligence, Scenes of Crime and Crime reduction roles. 2.1.8 A breakdown of BTP staV based in Wales, by rank is shown in the table below:
Rank Number
Chief Inspector 1 Inspector 2 Detective Inspector 1 Sergeant 11 Detective Sergeant 1 Constables 50 Detective Constable 6 Special Constables 6 Police StaV 4.5
2.1.9 A Chief Inspector, stationed in CardiV, is Sector Commander for the whole of Wales. He has a mixture of uniform, criminal investigation, dog and operational support unit’s oYcers at his disposal. Additional units and resources can be deployed in line with operational requirements. A further breakdown of oYcers by location in shown in Annex “A” (not printed) 2.1.10 BTP has a full time establishment of 72 police oYcers covering Wales including the 6 oYcers based in Shrewsbury. In gender terms these are broken down into approximately 90% male and 10% female. There are 4.5 members of civilian Police staV supporting the front line police oYcers. (0.5 is reflective of a part time member of staV). The Police staV are all-female employees. At the present time BTP have no Police Community Support OYcers (PCSO’s) in Wales funded by Central Government. There are plans to seek additional funding to employ PCSO’s. 2.1.11 Force Headquarters in London provides corporate functions in support of Areas, including a number of specialist police teams that provide key support in such issues as counter-terrorism and surveillance, as well as the chief oYcer functions. 2.1.12 BTP is funded by the rail industry under a “user pays” principle. The Force has recently come under the governance of a Police Authority, with representatives from both public interest and the rail industry. The Authority is a non-departmental public body and has a reporting line through the Secretary Welsh Affairs Committee: Evidence Ev 413
of State for Transport. The Force works on a daily basis with the 43 other Forces in England and Wales and the eight Forces in Scotland It has full membership of the Association of Chief Police OYcers (ACPO) and has broadly similar powers, discipline regime, jurisdiction and accountability as Home OYce Forces. 2.1.13 The Force has sought to play a major role in the Police Reform programme. It has embraced the National Intelligence Model, reassurance policing, the street crime initiative, the anti-social behaviour programme and many other planks on this agenda. 2.1.14 BTP has the third lowest level of management on costs and a police oYcer/police staV ratio of 3.5 to 1, which is the lowest support level in the country. The national average for police forces is a ratio of two police oYcers per support staV member and the BTP ratio is indicative of much lower levels of support to front line oYcers.33 The very low level of supporting infrastructure to front line policing was identified by Her Majesty’s Inspector of Constabulary33 during an inspection of the Force in 2003. 2.1.15 Placing this in context, to enable the Force to move from lowest position in the league table of police forces for civilian police staV ratio to second from bottom would require 100 extra police staV members. To achieve mid-point would require 400 extra and to be first in class would require 1,100 additional support resources. 2.1.16 Within the jurisdiction of BTP there are in excess of 30 operators of services from the railway community. These range from passenger services operators, infrastructure owners (Network Rail), freight companies, etc. In Wales the primary user of the Force’s services is Arriva Trains (Wales) following the award of the operating franchise. A policing service is also provided to Network Rail, First Great Western, Wessex trains, Virgins Trains and Central Trains within Wales. 2.1.17 Each of these companies holds a Police Service Agreement (PSA) with the Force, on the basis of which they pay police charges. These PSA’s exist through a variety of arrangements, some of which are compulsory by virtue of a requirement contained within the operator’s licence issued by the Strategic Rail Authority (SRA). Others have a PSA with BTP but this is not a “requirement” of their operator’s licence. These parties are known a “licence exempt” or “open access users”, and include other operators such as London Underground, London and Continental Railways (owners of Eurostar and the developments at Kings Cross and Stratford). The Department for Transport (DfT) has consistently supported the role of BTP as the unified police force for the railways and has maintained the need for BTP to provide the policing to such operators. 2.1.18 Over recent years the question of whether there should be a separate police service for the railways has been aired on a number of occasions. 2.1.19 In 2001 the Department for Transport published a green paper entitled “Modernising the British Transport Police”. As a result of extensive consultation the DfT concluded that there is a need for a unified specialist policing service for the railways. 2.1.20 In early 2004 the House of Commons Transport Select Committee looked into the work of the BTP. They published their report on 4 June 2004. The Chairman of the Committee, Mrs Gwyneth Dunwoody MP said: “British Transport Police oYcers are dedicated and professional. Unless we retain a national police force charged with policing the rail network, the task will not be given the priority it needs.” “it seems ridiculous that the British Transport Police is under-funded and cannot operate in the same way as other police forces. It is expected to keep in line with Home OYce forces but has no automatic access to funding for the many new initiatives brought forward.” “The needs of the British Transport Police were overlooked at privatisation. The force must not be overlooked again in the Government’s current rail review. It is time to ask hard questions about the consequences of the rail industry funding railway policing.”
3. The National Policing Plan and its Relevance to Wales 3.1.1 The Government’s National Policing Plan was published in November 2004 and provides a framework within which police forces across the country operate. In this way, the police nationally are contributing to meeting the Government’s priorities. 3.1.2 The National Policing Plan also sets out the Home Secretary’s underpinning themes for policing and police planning with an expectation that all forces will engage with these as part of a single national endeavour. These themes are: — Community engagement and civil renewal; — Countering terrorism and the threat of terrorism. 3.1.3 The plan contains a number of national priorities. The BTP Policing Plan has been developed with these firmly in mind where they are applicable to the railway environment.
33 According to figures available from Her Majesty’s Inspectors of Constabulary Report into the British Transport Police 2003. Ev 414 Welsh Affairs Committee: Evidence
The priorities include: — Providing a citizen focused service to the public which responds to the needs of individuals and communities and inspires confidence in the police particularly amongst minority ethnic communities; — Tackling anti-social behaviour and disorder; — Continuing to reduce burglary, vehicle crime, robbery and drug related crime; — Combating serious and organised crime both across and within Force boundaries; — Narrowing the justice gap by increasing the number of oVences brought to justice. 3.1.4 With all this in mind, the BTP plan to target those issues that matter to people who travel or work on the railways, those who manage it, and to deal eVectively with those who commit crime. 3.1.5 The fight against street crime remains high on the Government agenda, and is included in the National Policing Plan. It remains a key operational focus for BTP and one we are determined to tackle in a robust and concerted manner. Also in line with the National Policing Plan’s emphasis to bring oVenders to justice, this year’s anti-social behaviour targets are aimed at increasing the number of oVenders we deal with. 3.1.6 BTP are an Intelligence led organisation in respect of the fight against crime in line with the ethos of the National Intelligence Model. There are no separate BTP Policing Plan objectives set for Wales for the 2004–05 objective year. Wales comes under the umbrella of the Force objectives and those set for Western Area. However BTP performance in Wales can be measured independently, as Wales is one of the four police sectors that form Western Area and as such is subject to weekly monitoring of performance against Policing Plan objectives. 3.1.7 In Wales local objectives are set through the use of the National Intelligence Model. Crime analysis is used to identify crime hotspots and trends that aVect the local community. Local objectives are generally set on a bi-weekly basis through the Western Area Tasking Process, a requirement of the National Intelligence Model. They are reflective of the seasonal and current trends in crime at that particular time. This is further enhanced through the use of a daily tasking process. This allows real time reaction to ongoing changes in crime and is cognisant of the need for local action to prevent local problems quickly or if problems do occur to prevent repetition or detect oVenders in real time. 3.1.8 A copy of the Force and Western Area policing Plan for 2004–05 together with a summary of Western Area performance against that plan between 1 April 2004 and 6 December 2004 is shown in Annex “B” (not printed). The Western Area Policing Plan also analyses the results achieved against the 2003/04 policing objective year. This was the first full year of operational performance for Western Area that data is available for. 3.1.9 At the present time the main problems facing BTP in Wales are violence oVences, mainly comprising of assaults occasioning actual bodily (ABH), common assaults, assaults on railway staV and those oVences that fall under the anti-social behaviour umbrella. 3.1.10 Of the total of 705 oVences recorded in Wales for all 2004–05 objective crime, violence (all classifications), staV assaults and anti-social behaviour account for 555 oVences. The majority of violence, staV assaults, and anti-social behaviour oVences occur at CardiV Central Railway Station or at railway stations/on board train services covered by the CardiV Police Station. 3.1.11 There is a relatively low level of serious crime (oVences of assault occasioning grievous bodily harm (GBH) or above) and Robberies. In total since 1 April 2004 there has been 15 reported oVences for the whole of Wales. The current detection rate in Wales for all violent assaults within the BTP Policing Plan 2004–05 (excluding assaults on railway staV) is 36 per cent, for staV assaults 38 per cent and robberies 14 per cent. 3.1.12 In the objective period there have been 22 hate crime oVences recorded for the whole of Wales. These are predominantly made up of racial, homophobic, gender or domestic related crime. Wales has a 50% detection rate at present for oVenders detected for hate crime. 3.1.13 Use of the National Intelligence Model to inform and identify areas where these oVences are occurring continues to develop. Western Area is part of the national process within Wales and sits on the Regional Strategic group, Regional Tactical group and Regional Intelligence group and this has served to inform and strengthen our role within Wales and our liaison with other police forces. 3.1.14 The 2004–05 BTP Policing Plan also contains operational objectives that are railway specific and recognise the need to provide a specific policing service to infrastructure related problems and the need to keep the railway environment free from disruption. The three chosen for this objective year are: — the need to prevent and disrupt terrorist activity and maintain an eVective response to terrorism, to maintain an eVective response to suspected and actual terrorist incidents and to minimise disruption and delay to the rail industry; — to work with our partners in the rail industry to implement the Network Rail risk rating tool and subsequently reduce the risk rating at the top hotspot locations; and — average time from receiving a report of a fatal incident to the conclusion of police activity that disrupts train movements on the line not to exceed 90 minutes. Welsh Affairs Committee: Evidence Ev 415
3.1.15 Since 1 April 2004 there have been eight fatal incidents in Wales. Of the five fatal incidents that count for the purpose of the objective the average time for clearing them and returning the infrastructure to Network Rail was 73 minutes. The remaining fatalities are excluded for objective purposes due to the nature of the incident (suspicious or unexplained). 3.1.16 In addition to the 2004–05 objective crime, there is other crime that occurs in Wales. In volume, the largest crime group is those crimes committed against the railway infrastructure and which are considered specialist railway oVences. They are referred to as route crime. The most prevalent of these is trespass upon lines of Railway and stone throwing (normally at trains) under Sections 55 and 56 of the British Transport Commission Act 1949 respectively. Linked with these are oVences of endangering safety and obstruction of lines of railway under Section 34 OVences against the Person Act 1861 and Section 36 Malicious Damage Act 1861. If intent is proved for either of these oVences they carry a term of life imprisonment. 3.1.17 Stone throwing, if it causes damage, is recorded under the Criminal Damage Act 1971. From 1 April 2004 to 6 December 2004 there were 993 oVences recorded in Wales under the trespass, stone throwing, endangering safety, obstruction of the line of route or stone throwing (criminal damage) category. By far the greatest volume of oVences recorded in the route crime category was trespass on lines of railway and this accounted for 733 oVences, endangering safety 16 oVences, stone throwing 169 oVences, stone throwing (damage) 38 and obstruction of the line of route 37 oVences. In the corresponding period in 2003 there were 1,203 line of route oVences and this year’s total represents a 17% decrease upon that figure. 3.1.18 BTP target route crime in an active way by working with Network Rail to identify problem hotspots and areas where the infrastructure fencing is in need of repair and through education and enforcement. BTP have a dedicated route crime oYcer based in CardiV who works with a priority policing team to tackle known trouble spots and detect oVenders. In the last 12 months their eVorts have been supported through the running of Operation HAWK an initiative that uses a helicopter to identify oVenders and uses the helicopter observer to direct ground support units to the location.
3.1.19 Welsh crime Data 1st April 2004 to 6th December 2004 for all crime classifications including non BTP Policing Plan oVences is shown in Annex “C” (not printed) .
3.2 Terrorism 3.2.1 In March 2004 following the Madrid bombings South Wales Police established a Joint Security Review Group. BTP are included as part of the group, which meets weekly, comprising of relevant departments within South Wales Police and the military. 3.2.2 The remit of the group is to review intelligence in line with the current security threat and examine its eVect on the South Wales area. 3.2.3 BTP have their own separate arrangements in South Wales tailored to meet the specific threat to the railway infrastructure, which has previously been the target of a number of terrorist related incidents. These arrangements are part of the BTP Force response to terrorism. They are constantly reviewed in line with the current threat assessment.
4. Combatting Serious and Organised Crime 4.1.1 Supply of Class “A” Drugs34 into Wales: The BTP Police Multi-Agency Joint Approach to Tackling the Problem. “”The drugs problem is the biggest crisis that is facing our Communities—people in these Communities are being torn apart by what drugs are doing to their families and the crime that is related to it.”—David Francis, Assistant Chief Constable, South Wales Police, 2002. 4.1.2 In recent years there have been legislative and procedural eVorts to address the problem of Class “A” drugs being traYcked into Wales, in particular to the Welsh Valleys. In April 1998, the Government launched a 10-year anti drugs strategy called “Tackling drugs to build a better Britain.” Police Force Objectives and Control Strategies reflected the need for serious attention to be focused on prevention and enforcement of Class “A” drug oVences and oVenders, and in 2002 TARIAN the regional taskforce was established. However, it is a fair assumption to make that enforcement alone will not succeed in the fight against drugs and Building Communities emphasises the need for a joint approach looking at treatment, education and rehabilitation. If all agencies continue to work together, then victims of drug abuse will receive the support and treatment they require in assisting them to stop using drugs and committing crime. However, the work continues to target and bring to justice the suppliers and traYckers of drugs into Wales.
34 Class “A” drugs is defined under the Misuse of Drugs Act 1971 and includes Heroin, Cocaine, Opium and Amphetamine. Ev 416 Welsh Affairs Committee: Evidence
4.1.3 It is a known fact (through defendant interviews, surveillance and other intelligence), that certain parts of Bristol play a central role in the illegal supply of class A drugs to the Welsh Valleys. With thousands of people passing through mainline railway stations such as CardiV Central, Newport and Bristol Temple Meads on a daily basis, the opportunities are there for people to pass unnoticed as they travel to and from Bristol to collect their drugs. 4.1.4 The BTP along with South Wales, Gwent and Dyfed Powys Police have worked together on a number of intelligence led Operations that in the last five years have proved very successful. The operations to note are Operation BRONX, Operation MANHATTAN, Operation BROOKLYN, Operation SNOWMAN, Operation PORTSMOUTH, Operation COBRA and Operation RATTLESNAKE. 4.1.5 There were high numbers of deaths in the South Wales Valleys due to drug abuse and intelligence pointed in the direction of Bristol as the main area supplying the drugs. The aim of these was to combat the traYcking of unlawful substances from the Bristol Area, being brought back to Wales. BRONX, MANHATTAN and BROOKLYN were run over three days and were local initiatives between British Transport Police and “B” Division of South Wales Police covering Rhondda Cynon-TaV. BRONX resulted in 45 arrests with over £100,000 in drug seizures. The arrests were in the main on the M4 with 5 at CardiV Central Railway Station. Intelligence then showed as a result of the success of BRONX that people were travelling by train to Bristol and Operation MANHATTAN was launched. This saw a dramatic increase of people arrested at CardiV Central Railway Station, 23 in total, one in possession of 9 ozs of heroin. In total this Operation led to 40 arrests. BROOKLYN was run on the same principle as the previous operations and led to 67 arrests, 17 of them being on CardiV Central Railway Station. 4.1.6 Operation PORTSMOUTH was launched from a regional perspective and was aimed at continuing the same procedures but on a monthly basis. From this COBRA and RATTLESNAKE were also run which again proved successful. 4.1.7 In November 2003, a two-day BTP initiative (Operation LIMA) took place to test the information that persons were still using CardiV Central Railway Station as an interchange for onward travel to the Valleys, after returning from buying drugs. Two passive BTP drugs dogs were utilised. They proved invaluable in indicating oVenders and 46 people were either reported or cautioned for possession of drugs. The information from this has been shared with TARIAN and National Criminal intelligence Service (NCIS). 4.1.8 The BTP has not been involved in any recent Operations with TARIAN although the information sharing continues through regional intelligence meetings and regional network analysis. BTP continues to work with our colleagues from the Welsh Forces and Regional Task Force in arresting oVenders, seizing illegal substances and confiscating personal property. 4.1.9 Operation EAGLE was in response to the fact that criminals regularly travel outside their own residential area to commit crime. It was a joint initiative between South Wales, Dyfed-Powys and BTP targeting travelling criminals suspected of being involved in auto-crime, burglary and supply of class “A” drugs in the Swansea Area and West Wales. Intelligence was shared between the three forces that enabled us to target travelling criminals and their mode of transport. 4.1.10 The Operation involved a series of initiatives whereby the automatic number plate reader (ANPR) was deployed on the road. The ANPR equipment allowed oYcers to identify persons that are either wanted for or suspected of committing an oVence anywhere within the UK and also allowed us to proactively target these individuals. 4.1.11 The Operation progressed into two phases; from early morning raids and arrests to providing a high visibility response during the night. BTP took an active role in assisting our colleagues during the day’s arrests and undertook high visibility patrols at Swansea Railway Station providing a safer environment and reassurance to the public. 4.1.12 Operation JUBLIEE is an ongoing joint operation with North Wales police aimed at detecting and disrupting the supply of drugs into North Wales from the north west of England by targeting the road and rail links. Several joint operations have and continue to be run. In the past BTP have used passive drugs dogs and have sought to extend the boundary of the Operation by including Chester and Crew, both of which have BTP police stations. 4.1.13 Operation ARROWHEAD is a quarterly strategic, planned and co-ordinated one day operation run by South Wales Police to target local criminality and provide reassurance to the public. There are a number of core elements to the Operation, including arrests on warrant, arrests for DNA and fingerprint identifications as well as targeting those who are wanted for questioning. Seeing the benefits of the Operation, the Chief Inspector (Wales) met with South Wales Police to discuss support for BTP’s involvement. 4.1.14 BTP have now been involved in two ARROWHEAD Operations over the last six months. The last one, in October 2004, was the first time Gwent and Dyfed Powys Police forces were included. BTP co- ordinated late night train patrols, execution of outstanding warrants and a targeted drug initiative at Port Talbot station using a BTP passive drugs dog. In CardiV, BTP oYcers worked with South Wales Police and the Education Authority representatives on truancy patrols throughout the day. Welsh Affairs Committee: Evidence Ev 417
5. The Reassurance Agenda and Partnerships This section gives an overview of some of the reassurance initiatives and partnership involvement BTP has with various agencies in Wales.
5.1 Community Safety Co-ordinators 5.1.1 The Force has recently received £25,000, for matched funding, from the Welsh Assembly for two new Community Safety Co-ordinators posts. These posts will be based in North and South Wales and the individuals will work closely with all Welsh police forces, railways and local communities. This is part of a cohesive approach in delivering the railway safety message as part of the wider message in tackling antiısocial behaviour in the local community. The individuals will be responsible for going into schools and Crucial Crew Events throughout Wales. 5.1.2 Crucial Crew events are a multi-agency approach to deliver diVerent safety messages as part of one event. Several thousand children attend the event over a period of two to three weeks and typically the agencies involved would be police, fire, ambulance and the utility services.
5.2 Adopt A Station Scheme 5.2.1 In April 2004 the ground-breaking concept of “Adopt A Station” scheme was oYcially launched at Gowerton Railway Station and was a joint initiative with Arriva Trains (Wales). Since that date there have been 65 stations in Wales adopted. The scheme encourages community involvement in working with Arriva Trains (Wales) to improve their local railway station. 5.2.2 Arriva Trains (Wales) followed a template that worked in their northern franchise. BTP identified stations and areas that would most benefit from the scheme. The ethos is aimed at improving non-staVed railway stations, and encouraging feedback about the railway station area and buildings. This assists in advising Arriva Trains (Wales) of any maintenance needs and also follows on a neighbourhood watch style principle. 5.2.3 This initiative has been further advanced with the assistance, help and management of Valley Kids. This educational partnership follows the school children as they progress through the educational system and mentors them in life skills and further education in the wider community. 5.2.4 The Force realises the importance of such a concept and is fully supportive of the scheme. Indeed the Force’s role in responding to reports of anti-social behaviour has been made easier due to “intelligence” gathering by station adopters. Incidents of this nature can now be more eVectively responded to thanks to prompt reporting of problem areas, which allow the police to target their resources. 5.2.5 It has been particularly pleasing to see the number of young children and teenagers taking an active interest in their local stations, particularly at Dinas Rhondda and Mountain Ash. 5.2.6 At the first national Adopt A Station Conference at the Millennium Arts Centre in CardiV, the BTP Chief Inspector for Wales spoke on the importance of community involvement and a tidy environment as important components in the fight against the very destructive impact anti-social behaviour can have. 5.2.7 The impending recruitment of Community Safety Co-ordinators will ensure that BTP continue active involvement in the scheme. 5.2.8 The proactive programme for tackling crime on the railways uses the above initiatives together with Crucial Crew and a similar Safety Zone as part of its educational and crime reduction strategy.
5.3 Dyna Ddigion 5.3.1 Dyna Ddigion is a significant operational objective for North Wales Police and is a main strand of strategy to deal with the growing priority of anti-social behaviour. Over the last few months BTP has attended the monthly Project Board meetings chaired by the North Wales Chief Constable. 5.3.2 As a result BTP has agreed to implement the Yellow Card Scheme in BTP posts that cover North Wales Police jurisdiction. 5.3.3 The Yellow Card Scheme is a method of deterring anti-social behaviour. It allows oYcers to reinforce the verbal warnings they give during a range of operational situations when dealing with unacceptable behaviour, by issuing a formal notice if the decision not to arrest has been made. 5.3.4 The Scheme is quick and simple to use. The evidence it provides will help to identify those who repeatedly engage in anti-social acts. The benefits of collaborating and sharing of information with North Wales Police will enable a holistic approach in targeting persistent anti-social oVenders. 5.3.5 Further benefits of attending these meetings has led to collaborative working with North Wales Police on specific drugs operations—Operation Jubilee and the prospect of the new BTP Community Safety Co-ordinator for North Wales working at St Asaph police station. Ev 418 Welsh Affairs Committee: Evidence
5.4 Community Safety Partnerships 5.4.1 The Force as Statutory Partners under the Crime and Disorder Act regularly attend the Strategic Community Safety Partnerships at Rhondda Cynon-TaV and CardiV. 5.4.2 Chief Inspector (Wales) also chairs the CardiV Public Transport Sub Group with an annual budget of £10,000. This Task Group’s main aim is to reduce crime and disorder on public transport in CardiV by sharing best practice between the diVerent public transport operators. 5.4.3 BTP have encouraged rail operators to adopt DNA Swab Kits. Spitting at railway staV is an ongoing problem especially when staV members are in confrontational situations with members of the public. If this occurs the DNA swab kits can be used to retrieve a sample of saliva which is then passed to BTP for DNA analysis. 5.4.4 As a result of the CardiV Public Transport Sub Group meetings, CardiV Bus have agreed to follow Arriva Trains (Wales) on the issuing of DNA Swab kits to its front line staV. The Group has agreed to fund this initial launch, which is planned to take place in January 2005. 5.4.5 This is an example of good inter-agency working and transference of good practice and is in line with current Government thinking. In November 2004, the Department for Transport published a briefing paper entitled “Links between bus related crime and other crimes”. One of the key conclusions from the case studies stated: “the potential for wider partnership involving the British Transport Police, Customs and Excise and Immigration oYcers and Education Welfare services has been demonstrated by these case studies. Joint operations with these agencies have revealed that they can provide a “gateway” for apprehending people who are of interest to them”
5.5 Rail Passenger Committee, Wales—RPC (Wales) 5.5.1 BTP and Western Area in particular have good links with RPC (Wales). RPC Wales sit as a permanent member on the Western Area Strategic Tasking Committee, which meets every six months to decide the strategic direction of the Area over the following six months. 5.5.2 The Strategic Tasking Committee was formed as a result of a requirement under the National Intelligence Model and it encourages stakeholder involvement in the police service and the direction it takes. 5.5.3 BTP also report quarterly to the RPC (Wales) public meetings on its performance and general railway issues in Wales.
6. Tackling Anti-social Behaviour 6.1.1 The National Policing Plan outlines the requirement to tackle anti-social behaviour and disorder and bring oVenders to justice. In respect of BTP, the oVences under the anti-social behaviour category for the 2004–05 objective year are: — Achieve a 10% increase in number of oVenders receiving a judicial disposal35 for drug supply oVences by 31 March 2005. — Achieve a 10% increase in number of oVenders receiving a judicial disposal for graYti oVences by 31 March 2005. — Achieve a 5% increase in number of oVenders receiving a judicial disposal for low-level disorder oVences by 31 March 2005 6.1.2 The crime categories that are included within the anti-social behaviour objectives for the 2004–05 objective year can be found on Annex “D” (not printed) 6.1.3 A statistical analysis of the performance of BTP in Wales between 1 April 2004 and 6 December 2004 compared to the corresponding period for 2003 is shown in Annex “E”. 6.1.4 BTP in CardiV recorded the highest number of anti-social behaviour oVences of all BTP stations in Wales. This is mainly due to covering a capital city and because of the nature of the geographic area it covers, policing all the Valley Lines services in addition to the city itself. In total 242 anti-social behaviour oVences were recorded in CardiV from 1 April 2004 until 6 December 2004. By far the greatest number (237) were for low level disorder. 43% of low level disorder oVences were detected. 6.1.5 Swansea recorded a total of 84 anti-social behaviour oVences for the same period, Newport 29, Shrewsbury 32 and Bangor 80. OVences recorded and detected by Carmarthen based oYcers are included within the Swansea crime figures as they are a satellite of Swansea for BTP crime recording purposes.
35 Given that these are mainly non-notifiable oVences the measurement will be oVenders who are subjected to “judicial disposal”, charged, summoned, cautioned (reprimanded or final warnings for young oVenders) or dealt with by way of fixed penalty notice. The targets are complementary to the “incidence of crime against passengers and others on railway property”–reduction target in the Railway Group Safety. 1,007 oVenders received a judicial disposal for disorder during 2003/ 04, 39 for graYti oVences and 13 for drug supply oVences. This means next year’s targets are 1,057 for low-level disorder, 14 for drug supply oVences and 43 for graYti. Welsh Affairs Committee: Evidence Ev 419
6.1.6 The overall detection rate in Wales to 6 December 2004 for low-level disorder oVences is 40%, for graYti 31% and possession with intent to supply drugs is 80%. However the numbers of recorded oVences for graYti and possession with intent to supply drugs are low at 24 and 5 respectively. 6.1.7 Under Section 30 of the Anti-Social Behaviour Act 2003 police have powers to disperse groups of two or more and return to their place of residence young people under 16 who are unsupervised in a public place after 9 pm. However these new powers are only available with the written authority of at least the rank of Superintendent and only in a designated area. Rhyl Railway Station was a particular problem area for BTP. Youths were congregating during the early and late evening making the station an unpleasant environment for staV and public alike. North Wales Police were experiencing similar problems in the vicinity and in the adjacent bus station. In conjunction with North Wales Police, two Section 30 orders were signed for the railway station and the area around it so that a consistent approach to policing in the vicinity was established and to good eVect. BTP have recently been granted two full Anti-Social Behaviour Orders (ASBOs) again for the Rhyl area and these were jointly applied for in conjunction with North Wales Police. BTP also have two current post conviction ASBOs in existence in South Wales. 6.1.8 Anti-social behaviour at stations and on trains continues to provide an ongoing challenge for the Force in Wales due to the geographic spread of the railway infrastructure allied to the spread of oYcers. However the vast majority of reported anti-social behaviour oVences occur in and around the major stations, which either has BTP oYcers based there, or in the vicinity. There are low numbers of anti-social behaviour oVences reported for the rural lines of railway covering Pembrokeshire and mid and North Wales. 6.1.9 High profile uniform initiatives aimed at preventing and detecting anti-social behaviour oVences are regularly run. These tend to focus on the policing of football and late night disorder in order to increase the reassurance level to legitimate passengers using the railway network. 6.1.10 Of reported anti-social behaviour oVences in Wales, 81% of reported oVences occur at railway stations and 19% on board trains. These generally tend to be for oVences revolving around public disorder, drunkenness, railway travel fraud and those that cause harassment, alarm or distress to other members of the public and staV. 6.1.11 The policing of football continues to be a major drain of the Force’s resources especially matches played at the Millennium Stadium, particularly Football Association Finals which can require a large deployment of BTP oYcers depending on the categorisation of the event. These also bring their own unique challenges policing CardiV Central railway station in particular and also the feeder stations to CardiV from as far afield as London, Bristol and Gloucester. They are resource intensive and do lead to sporadic outbreaks of public disorder generally for those oVences that form the anti-social behaviour objective. 6.1.12 As part of the policing strategy for these events, Western Area have authority to use mutual aid public order units from other Force’s to assist in the policing operation in CardiV. In the past considerable assistance has been aVorded by Dyfed-Powys Police in providing this mutual aid and when deployed they fall under the command of the senior BTP oYcer responsible for the particular event. 6.1.13 In addition to major events, Wales has a number of football league teams based in CardiV, Swansea and Wrexham and these provide an ongoing requirement for weekly policing and train escorts in addition to policing football league supporters coming into Wales to attend fixtures. There has been ongoing anti-social behaviour problems involving some of the Welsh based teams. BTP continue to make use of the powers granted by the Football Disorder Act 2000 in respect of football banning orders which prevent convicted football hooligans from attending football matches. At the present time, Western Area have 32 active football banning orders in place divided between 31 in CardiV and one in Swansea. These numbers are location specific as opposed to team specific and take into account a number of supporters from English based teams attending the Millennium Stadium. At the present time there are five football-banning orders pending. 6.1.14 Of the 32 active football banning orders in Wales, 10 were issued following the successful completion of Operation Thunderbird an investigation into organised football hooliganism involving predominantly Swansea City supporters at CardiV Central Railway Station April 2003. Banning orders were issued for periods between three and six years. The investigation into the disorder was part funded by the Government led initiative into football hooliganism leading up to the European Nations Championship Finals in 2004 in Portugal.
7. Division of Powers/Working Relationships between UK Government and the Welsh Assembly 7.1.1 Formal consultation with the UK government falls under the remit of the Chief Constable and the British Transport Police Authority, who regularly engage at central Government level. The police Authority must have at least one member who has a special interest in Welsh matters. At police area level, consultation and communication is generally via letter with local MPs about constituency issues. All local level communication is responded to by the respective Area Commanders or forwarded by Force Headquarters for local attention. Ev 420 Welsh Affairs Committee: Evidence
7.1.2 At area level and through legislative changes in the Civil Contingencies Act 2004 BTP are becoming increasingly involved in the Regional Resilience Forums as we are defined as a Category 1 responder in the legislation. This has further served to increase BTP involvement at regional and local Government level as hitherto involvement has tended to be ad hoc when compared to the interaction and liaison Home OYce police forces have locally. 7.1.3 The Chief Inspector in CardiV has recently set up quarterly meetings with a leading civil servant who reports to the Assembly Minister for Economic Development and Transport. As a result of this liaison BTP have secured £25,000 funding from the Welsh Assembly towards the recruitment of two Community Safety Co-ordinators. BTP will match the funding. 7.1.4 Liaison with Assembly Members (AM) tends to be on the same basis as that with Members of Parliament and varies dependant on the rail related Constituency problems the AM faces. At the present time considerable liaison is taking place with Ann Jones, AM for Rhyl and as a result we have recruited oYcers for and have established an additional base in the North Wales Police station in Rhyl. Not only will this improve the policing service BTP oVer in the area but it will also enhance the evolving and close relationship the force enjoys with North Wales Police. 7.1.5 The BTP has recently appointed a new Deputy Chief Constable, Mr Andrew Trotter, and he has assumed Chief OYcer responsibility for Wales as part of his portfolio. With this appointment, BTP will improve ACPO level involvement in Wales with the four Welsh Forces and the Welsh Assembly.
8.1 Conclusion 8.1.1 The document provides an overview of some of the work being carried out in Wales by the BTP in the fight against crime and particularly anti-social behaviour. 8.1.2 Through continued and evolving use of the National Intelligence Model and active participation in the opportunities aVorded by the police reform process BTP will continue to improve the quality of service given to people who travel and work on the railway network in Wales. British Transport Police December 2004
29. Written evidence from Tenby Town Council
ANTI-SOCIAL BEHAVIOUR IN TENBY Tenby is struggling to meet the challenges of the 21st Century and maintain its reputation as the premier seaside holiday resort in South Wales—the Jewel in the Crown. Despite all the input both local and from Government Agencies to enhance the natural attractions, the image is becoming tarnished by the growing problem of Anti-Social Behaviour and Vandalism which is exacerbated by the failure of the Police to take positive action. Tenby is a small medieval walled town located in the Pembrokeshire Coast National Park. Originally a small fishing port, with the advent of rail travel the Victorians developed the town as a summer holiday resort based upon its four magnificent sandy beaches. Since then the economy of the town and the surrounding area has been dependent upon tourism and leisure oriented activities. The resident population has remained at between 6,000–7,000 for the last 50 years, as there is little career opportunity in the area for the younger generation who tend to move away to pursue a career but often return on retirement. During a sunny summer season the population can rise to 40,000 with up to another 10,000 day trippers. The introduction of relatively cheap air fares to sunnier climes and the decline in the traditional catchments areas of the Welsh mining valleys and the industrial Midlands have presented a serious challenge to the local economy. The Town Council supported by local resident organisations has striven to meet to this challenge and raise the image of Tenby as an attractive family-friendly holiday resort. The Town Council has introduced a policy to promote Tenby as an all-year round holiday resort which has already witnessed an extension to the shoulders of the summer season and Tenby has become a popular venue for Christmas breaks with a reputed 5,000 revellers in the Town on New Year’s Eve. Located in the scenic Coastal National Park, it is becoming more popular as a centre for walking and painting holidays; the Tenby Round Table organises Summer Spectaculars on Sundays in August; the Tenby Arts Festival Committee organise a week long Arts Festival each September presenting music, drama and art; the Tenby Sailing Club organises national and regional sailing competitions and regattas in Carmarthen Bay; the Tenby Fire Brigade organise annual Summer and Winter Carnivals around the streets; a Trust, with funding from the European Regional Development Fund, has been recently established with the objective of putting the De Valence Hall on a financially stable basis and present live entertainment and Welsh Affairs Committee: Evidence Ev 421
attractions throughout the year and Tenby was the founder members of the Walled Towns Association which now includes over a hundred Towns in this Country and Europe. In addition there are spectacular family attractions in the immediate area at Oakwood, Heatherton and Folly Farm whilst the oVshore Caldey Island oVers a unique retreat or interlude with its Monastery and frolicking seals. The Pembrokeshire County Council has for the last three years created an experimental pedestrianisation scheme in the centre of the Town to help create a “cafe culture“” on the streets and make the Town more visitor friendly. Currently the Council are engaged upon a major enhancement scheme in the centre of the Town as part of this objective. The Town and immediate hinterland was recently designated a “Tourism Growth Area” with Tourist Board and Welsh Assembly funding to enhance the tourism “product”. The only negative aspect in this generally positive picture is the increase in anti-social behaviour and vandalism in the streets. In this context Tenby has been the subject of unfortunate publicity in both the local and national press and on television. The Town Council and the majority of Tenby residents firmly believe that a root cause of this problem is the lack of a visible Police presence on the streets. The declared main 2003–04 priorities of the Dyfed- Powys Police being: (a) Ensuring a greater Police Presence; (b) Tackling drug & alcohol related crime; (c) Tackling anti-social behaviour & vandalism; (d) Detecting oVenders. As long ago as the 50s there was a more visible Police presence on the streets than at present and the reports and letters published in the Tenby Observer clearly reflect an increase in alcohol related oVences and anti-social behaviour; thus it would appear that the Police have failed to achieve the first three of their four major priorities in respect of Tenby. Interestingly these three priorities have been deleted for 2004–05. This failure can be attributed to a number of inter related factors all of which are clearly illustrated in the attached documents and summarised in the following paragraphs. Police practice is to be “pro active” and place oYcers in patrol cars to respond to incidents rather than on the street where their presence will PREVENT incidents from developing. One senior oYcer is quoted as saying that “the crime rate in Tenby does not merit the full time deployment of limited resources” which is clearly at odds with the citizens perceptions and with media reports. The permanent closure of the Custody Suite in Tenby Police Station and the operation of the Station on only a part time basis. Apparently funding has not been sought to renovate the custody suite nor has any funding/approval been sought for a post of Custody OYcer even though local organisations have oVered financial help on behalf of the community Four CCTV cameras have been installed in the Town at public expense and the Town Council meets the annual BT Line Rental of £2,250. These cameras can be monitored from the Police Station, but this is a pointless exercise when the Station is closed and, even when open, there are limited resources to man the monitors. Earlier this year the Town Council provided a list of nine civilian volunteers to man the monitors but up to the present none of them has been approached for checks or to start work. It appears that Police policy is not to take any action against “minor oVences” in the Town since, if any arrests are made, the oVenders have to be taken to Pembroke Dock or Haverfordwest for processing. This means the oYcers are “absent” in another Police Sector for three to four hours and there is no provision for cover in their absence. This “tolerance” breeds a disrespect for law and order which in time leads to more serious oVences being committed. The Force policy that “Fixed Penalty Tickets” for Anti-Social Behaviour can only be issued by a Custody OYcer after due process would seem to be at complete odds with the objectives of the Scheme as outlined in Parliament. The majority of the Licensed Premises in Tenby try to contribute to the well being of the Town and all premises are now in radio communication with each other, many employ more door persons than are legally necessary and many establishments have introduced a ban on “Hen” or “Stag” parties in an eVort to curtail anti-social behaviour. Local residents are thoroughly disillusioned with the Police and have little confidence their ability to respond to any incident. It frequently takes a prolonged eVort to establish any telephone contact since calls to the local station are either not answered or are transferred to Haverfordwest, and, even after a report is made of a disturbance or vandalism, the response time can often be over half an hour, by which time the incident is over and the culprits have left the scene. In fairness the Police response to “emergency calls” is usually well within the 20-minute commitment. The Police Sector Commander meets with the Town Council twice annually and presents a written progress report. It is unfortunate that his reports are often less than convincing when examined in detail. Despite ample evidence to the contrary, he appears to believe that there is no problem with Anti-Social Behaviour on the grounds of the relatively few reports being made to the local Station and refers to statistics Ev 422 Welsh Affairs Committee: Evidence
from other towns, which have full time Police Stations. He claims to have ample manpower yet Police OYcers are conspicuous by their absence on the streets and, often, when they are present they come from other Police Sectors. The Town Council and the residents of Tenby are united in their ambition and eVorts to create a safe and family friendly environment for both residents and visitors and enhance the profile of as a holiday resort but their eVorts are being undermined by a lack of eVective policing in the Town. In the long term this could have a serious impact on the economy of Tenby and the immediate hinterland. The Tenby Town Council therefore respectfully urges the Committee to direct that the Dyfed Powys Police should review the Police establishment for Tenby Sector, reinstate the Custody Suite in Tenby Police Station and open the Station on a 24 hrs basis, at least for the Summer Season, and establish a policy of zero tolerance of ALL oVences committed in the public domain. Andrew Davies Financial OYcer/Clerk of the Council 6 October 2004
30. Written evidence from the Tenby Walled Town Residents’ Association
WELSH POLICING AND ANTI-SOCIAL BEHAVIOUR; POLICING AND ANTI-SOCIAL BEHAVIOUR IN TENBV
Introduction Tenby Walled Town Residents Association is a community organisation set up to represent the views of the residents who live within the walled town of Tenby. This is the Association’s submission on their concerns with Dyfed Powys Police Authority’s performance in Tenby and in particular their strategies for combating anti-social behaviour within the walled town. Tenby developed as a holiday resort in the 1850s and is still solely dependent on tourism. Since the 1950s the client base promoted a “cheap and cheerful” holiday, a by-product being to establish a culture that Tenby was an ideal place for excessive drinking and more recently as a stag and hen party resort. This image was promoted by newspapers and sited the town as a top national destination for “groups” whose sole purpose is to get drunk and test the boundaries of acceptable behaviour. The latest Lonely Planet Guide even warns of these revellings. The Town Council and Welsh Tourist Board are trying to change this image and are now actively engaged in promoting the town as an upmarket resort which is safe for all. The County Council in a move to control the traYc in Tenby has introduced a series of pedestrianisation experiments during July and August for the last three years within the walled town of Tenby and promoted “cafe culture”. With the national increase in reported drink related anti-social behaviour the people of Tenby look to the police to control its rise in Tenby. The police data suggests that l5% of Pembrokeshire’s drink-related anti- social incidents occur within the walled town of Tenby. This statistic justifies the association’s concerns that Tenby has a problem and backs up the experiences of its members. We are told by the police that Tenby “markets itself as a holiday town and with that it has got to put up with a certain amount of the situation”. The residents consider the balance has shifted too far; it is because Tenby is a town that relies heavily on the holiday trade that the residents call on the Police to show a lead and control the situation. Adverse experiences by well behaved, law abiding tourists will deter their repeat bookings and give Tenby a bad name that will attract only the loutish element. We accept the police are working with local licensees and have encouraged the Licence Victuallers Association (LVA) to start a pub watch scheme and employ private bouncers. However, the residents feel that the presence of bouncers on the street and at the entrance to most pubs is intimidating and signals trouble. The need to employ a bouncer at weekends by the local Wimpy restaurant that has no liquor licence shows that the initial reason for the scheme has failed and is outdated. The pub watch scheme has its merits but as long as some pubs still continue to serve drunken customers, oVer happy hours and karaoke in a club atmosphere that creates a noise nuisance that lasts all evening the root cause of the problem is not solved. It falls to the police to sort out problems caused by the clients of these pubs once they are on the streets, whether they leave voluntarily or are thrown out. The continued instances of anti-social behaviour in Tenby has sported local headlines of disgust: “Call time on the yobs”(Page 1 Tenby Observer 14 May 2004), “Call to halt yob culture” (Page 2 Western Telegraph–28 July 2004), “Garden vandals strike again” (Page 1 Tenby Observer 13 Aug 2004). Fighting, urinating, defecating, nudity, graYti and wanton damage are major concerns. Most of the behaviour was witnessed to be drink related and would be considered unacceptable anywhere, and in the residential streets within the walled town in particular. The atmosphere in the town changes after 9pm at weekends and has the feel of a war zone with police CCTV vans, bouncers on every pub door and rowdy behaviour in the streets. Many residents tend to stay indoors and tourists with families do not linger. Welsh Affairs Committee: Evidence Ev 423
We consider that at the moment enforcement is limited by the Police by the resources they have available and they are unable to act on all their published priorities. The Police have a vital part to play in shaping the future of the town.
Use and Availability of Resources The police station in Tenby historically had a Custody Sergeant and Custody Facilities and so had the ability to detain oVenders eYciently. The loss of this facility must influence the police’s response to incidents. They are aware that if they decide to detain anyone a critical proportion of their resources will be unavailable for several hours travelling to the nearest custody facility and so leaving the town with reduced cover and oYcer capability. This approach feeds back to the persistent oVenders who are aware that antisocial behaviour is condoned and will go unchecked. The converse is also true; if the police were given the resources to act quickly to detain troublemakers it would soon send out a message that this behaviour is unacceptable in Tenby. The number of police on duty at any given time is not generally available, although statistics are sometimes published. These statistics do not diVerentiate between part time and full time oYcers and so do not give the full picture. Given the ineYcient use of police resources that are needed to detain people at Pembroke Dock or further, the meaning of any published statistic of the resources available are further reduced. The number of police available at any one time in Tenby is dependent on the population it serves, both in number and nature. The transient nature of the tourist population is supplemented in the summer by others from outlying parts of the County who look on Tenby as a good place for a night out. Many of the young people who holiday or visit Tenby are attracted by its appeal of its pubs; the level of policing that these groups of people require when on a night out in Tenby is greater than other circumstances. The Association questions that if the numbers of police that are available in the summer are adequate for the special conditions that exist in Tenby. It was reported that the CCTV camera in St Georges Street, that was erected with some funding from community support, could not be used during the hours of pedestrianisation (11am to 5pm during July and August 2004) to follow any crime incident or monitor antisocial behaviour as it was required to monitor vehicle movements. To lock out a camera to enforce traYc regulations that could otherwise be capable of aiding an arrest for public disorder is wrong. The promotion of “Cafe Culture” together with the introduction of pedestrianisation by the County Council has led to an increase in the police’s responsibilities due to the legalisation of drinking in the streets during the day; many have likened it to an extended beer garden. The labour intensive method that is adopted of enforcement of traYc regulations to prevent unauthorised motorists entering the walled town and of parking regulations during the summer pedestrianisation period has been another drain on the available police resources. The police appear to disregard parking oVences in Tenby at any other time apart from during in the peak summer period, and then only during the daytime. The change three years ago from seasonal yellow lines (valid 1 April to 30 September) has been ignored by the police and so motorists have become confident they will not be booked unless they are causing an obstruction. The contrast between the police’s and the Council approach of rigorously enforcing the parking regulations in their car parks could not be more marked, motorists using the pay and display car parks know where they stand and abide by the regulations. The police by their “hot and cold“” approach to enforcing the yellow line parking regulations leads to general confusion and much abuse. This Association calls for the Police to liaise with the County Council to ensure that whatever parking regulations are in force are able to be enforced by the police. What the Association looks for is: — Custody facilities in Tenby during the peak summer period. — Policing levels reflect the special conditions that exist in Tenby during the summer. — The CCTV camera in St Georges St is available at all times to monitor potential public disorder. — The police liaise with the Council to introduce traYc restrictions in the walled town that require less police time to enforce and so allow resources to be used elsewhere. — The police liaise with the Council to ensure they are able to enforce whatever parking regulations are in place in Tenby. Without proper control and ground rules on what is permitted and what is not, the situation will get out of control and Tenby will have failed those who come here to enjoy themselves for any other reason than getting drunk. Ev 424 Welsh Affairs Committee: Evidence
Strategies to Address Crime and Anti-Social Behaviour The service provided by the central call centre has frustrated and deterred some callers with the frequent delays in answering a call. Also a call to a distant operative gives no confidence that a prompt response will be made to an immediate problem and this has been borne out in practice. Instances of anti-social behaviour are frequently spur of the moment and generally petty. The experience of reporting rowdy behaviour in the early hours of the morning to a distant call centre with no guarantee of prompt action often deters repeat complaints, and so a general reluctance to report this sort of incident has developed. There is no substitute for a system where a person can to speak to a local oYcer and see an immediate response. This is of particular relevance when the police appear to rely heavily on reports of disturbances to maintain order rather than a visible police presence. This Association is working with the County Council’s Licensing Committee and has great hopes that the new licensing laws due to come into force will be of benefit to the community by reducing crime and disorder, instances of public nuisance, securing public safety and protecting children from harm. We hope that the police will be active in appeals against licensed premises that already have regular anti-social behaviour problems in or near their premises and actively enforce any conditions imposed. This Association has a policy of working toward a town in which all licensed and unlicensed premises close at midnight. It is hoped that the police will support all such moves and that this will limit the number of incidents reported in the early hours of the morning and so reduce the police workload. The association considers that by operating a policy of not tolerating any anti-social behaviour the police will create in the long term a town that will have considerably less problems and be a more inviting place for residents and visitors to live and stay. What the Association looks for is: — A manned presence in Tenby Police station at night during the summer and New Year that is able to respond to telephone calls, preferably within a target performance indicator of three rings. — That the police work closely with the County Council and other community groups to ensure that the potential benefits of the new licensing laws are realised. — That the police work towards Tenby being a town in which all licensed and take-away premises close at midnight. — That the police reduce the instances of anti-social behaviour by a strict approach to enforcement.
Summary The Association believes that the police by accepting the degree of anti-social behaviour in Tenby that has become the norm nationally it have lost an opportunity to reverse this trend. Tenby with its national profile and significant resident population could become a bench mark for the eVective policing of seaside towns. We accept that the situation here has not deteriorated to the degree of that reported in some other seaside towns such as New Quay in Cornwall or in Rhyl; but call on the police to put what ever resources are necessary into ensuring that Tenby is perceived as a quality resort that is safe, appeals to a wide variety of tourists and one that both Pembrokeshire and Wales are proud. Richard Walker Chairman, Tenby Walled Town Residents Association 10 October 2004
31. Written evidence from Paul Flynn MP The committee’s decision to visit Gwent as part of their investigation into police is welcomed. As an elected representative of parts of Newport for the past 33 years, I have long admired the splendid work of Heddlu Gwent Police. Under five Chief Constables they have maintained an extremely high level of service. However, they are a number of current issues of concern: — The anti-drugs policy; — The disparity of treatment between urban and rural areas; — The expectation of deteriorating outcomes from the new ward manager system. It was heartening to hear a warm tribute paid to the Kaleidoscope project in Newport by a senior police oYcer at a recent briefing. Having followed at first hand previous work to reduce drugs use, harm and crime, I am convinced that the harm reduction approach of Kaleidoscope has had a greater beneficial eVect than many years of police activity or the work of the Gwent DAAT. Welsh Affairs Committee: Evidence Ev 425
While it is a criticism of the lawmakers rather than the police, the result of a strict imposition of irrational drugs laws often increases drugs problem. Often, success is failure. The arrest of a Newport gang of heroin addicts was hailed as a triumph. The immediate result was new chaos to the disordered lives of local addicts. Their sources of supply disappeared ovenight; there was a swift increase in the price on the reduced supplies on the streets. Addicts had to commit more crimes to raise the price of the drugs. The availability of well established market of heroin of known strength and purity was interrupted. It is likely that lives were lost in the period that immediately followed the arrests and the collapse of the reliable market. New suppliers from Bristol, Birmingham and London filled the vacuum. There was a vital diVerence. The new pushers were armed and reputed to be more vicious and unscrupulous than the long established Newport gang. They present a greater threat to law and order than their predecessors. In London a few years ago, exactly the same process occurred. The arrest of more than 20 heroin pushers in one area of London opened the doors to new armed gangs who still dominate with turf wars and frequent killings that are now an inescapable part of London life. There is an increasing disparity between police standards and activity between rural and urban areas. This is largely the product of persistent, powerful lobbying from the rural area, principally in the area known locally as the Abergavenny Triangle. A new police chief in Gwent told me that all the pressures he received in his first month in the job came from rural interests. A telling comment was made by a Gwent police oYcer at a briefing for MPs. He said that conduct that was acceptable in a certain part of urban Newport would require police intervention in rural Tintern. Two standards of policing operate to the disadvantage of the urban areas of the valleys towns and Newport. All wards are to be treated equally in the establishment of the new ward managers. This discriminates against the urban areas because crime levels are three times higher in urban wards. Even allowing for rural sparsity factors one manager per ward unjustly denies urban areas a fair share of police manpower. A hilarious episode involving a dozen of my constituents is significant. A group of ramblers from Caerleon were arrested on the way to the Brecon Beacons caught in the act of feeding ducks. In spite of their protests they were bundled into police vehicles and kept in custody for several hours. Their solicitor subsequently said the police go a bit potty when a hunt is held. Ramblers were suspected of being hunt saboteurs on the basis of no evidence whatsoever. The police paid each of the ramblers’ compensation of £2,000. It is hoped that the police behave with similar diligence in enforcing the Hunting Act. Operation Tarian is based on the view that firm policing plus anti drugs education and treatment will reduce drug use and drug crime. This is the policy followed by all British Governments since 1971. The result has perversely been a continuous increase in drugs use, crime and deaths. While no sensible judgement can yet be made on the eVectiveness of Operation Tarian, its value should be independently audited. The opportunity should not be missed to test the value of prohibition representing by Tarian and the harm reduction approach represented by Kaleidoscope. The latter is confined to a small area of that covered by Tarian. The cost of Tarian is £500,000 of additional funding. The results of an audit would be very informative for future policy drafting. A pioneering project is proposed for CardiV that will use a “safe- injecting” bus. The group promoting this is a pioneering one that has achieved great things in their practical aid to those with alcohol problems. It is reported that they have the support of some local MPs and the police. I would urge the committee to consider encouraging this life saving venture. The previous Gwent Chief Constable said that Ward Managers will reduce the eVectiveness of the Gwent Force. DAATs were established with high hopes that “coordination and consultation with all parties concerned” would bring about a reduction in drug harm. Little or nothing was achieved except a wasteful new bureaucracy with countless meetings and reports published. Drug use and drug deaths have continued to increase relentlessly. Bundling up many failed policies creates not a successful one but a larger failure. When the previous Chief Constable contacted Gwent MPs about his proposal for ward mangers combined with new committees, I replied: The main eVect will be to take away your oYcers from their duties for no useful purpose. Happily there was only one DAAT in Gwent, which was set up with similar high hopes but few, if any beneficial outcomes. Your proposal to set up 133 committees that will have to be attended by Police OYcers and presumably serviced by Police personnel in preparing reports and minutes. What estimate you have made of the necessary working hours to undertake this task? Past experience suggests that the time required would be enormous. The meetings themselves would occupy a great amount of time, but the travel, preparation, and follow up would multiply the time by a factor of at least four. This would seem to be an enormous additional burden on the Police that will lead to changes that are of questionable value, and possibly of no value. On the basis of your present proposal of at least bi-monthly meetings in the 133 wards there would be a minimum of 3,192 meetings per year For the Newport West MP that would be an additional 288 meetings a year to attend. The new Chief Constable of Gwent has inherited these plans which he may amend. If not, they may drain vital police resources from frontline service. There have been welcome reductions in crime levels. It would be wrong to suggest that the rise and fall of crime is attributable entirely to the actions of the police. In the same way that the rise in crime during the 1980s would be more accurately attributed to the great increase in unemployment in those days, so the recent fall in crime is related in great part to the decrease in unemployment. Ev 426 Welsh Affairs Committee: Evidence
Perhaps the committee would consider calling for: — An audit of the outcome of Operation Tarian, Kaleidoscope and the proposed “injecting bus” in CardiV. — An assessment of the priorities for urban and rural policing. — Monitoring of the results of the introduction of ward managers and neighbourhood committees on police eYciency. 10 January 2005
32. Written evidence from Jocelyn Davies AM There are several general issues in relation to this topic which concern me and perhaps you would be so kind as to raise them during your question sessions. We are informed that crime is at its lowest for two decades. This is very welcome and the latest British crime survey seems to confirm this. However, fear of crime has increased, as has the number of telephone calls, made by the public, to the police service. If crime figures are down, why has the number of calls to the police significantly increased? This may be linked to the issue of Anti-social Behaviour and the increased fear of young people. I am concerned that young people are increasingly being portrayed as a group to be afraid of and much of their activity seen in this context. Are we, as a society, in danger of demonising all young people unjustifiably and at the same time putting them in this very powerful position of being feared? My other concern is the failure rate of prosecutions. Certainly in Gwent, the detection rate is very high, yet the recent Crown Prosecution Service inspection report demonstrates that a significant number of prosecutions are unsuccessful. This is not acceptable and is not currently explained. Either the prosecution service is not suYciently robust, or innocent people are being prosecuted. Either way the system is failing the victims of crime. I would be most grateful if you could suggest to your committee that these matters are explored. 14 December 2004
33. Further written evidence from the Home OYce
ANTI-SOCIAL BEHAVIOUR IN WALES In the course of the evidence to the Welsh AVairs Committee on 24 November, I undertook to provide further information about the response of the courts in Wales to anti-social behaviour and in particular whether the approach across Wales is consistent. The courts in Wales (and England are committed to dealing appropriately with anti-social behaviour and are making an increasing number of anti-social behaviour orders. Looking at the statistics for Wales the latest available figures show that the courts in Wales have granted 114 applications for anti-social behaviour orders up to 30 June 2004. They had refused no stand alone applications (no figures are kept on the refusal of post-conviction ASBOs). I believe that this evidence demonstrates that the courts in Wales are responding appropriately to anti-social behaviour—however they do of course rely on the cases brought to court, and the evidence brought before them. The Magistrates’ Association sentencing guidelines which came into force on 1 January 2004 make it clear that the starting point for sentencing for breach of an anti-social behaviour order is custody. The guidelines highlight key areas and suggests magistrates consider the seriousness of the oVence, including the impact on the victim aggravating and mitigating factors and the weight to attach to each (eg group action, continuation of a pattern of behaviour, use of violence etc); and oVender mitigation such as evidence of remorse. In the most serious cases magistrates may feel that their powers are inadequate and may decide to commit the case for sentencing in the Crown Court. We believe that this guideline has helped to ensure that courts treat breaches of anti-social behaviour seriously. The statistics the Home OYce currently holds for breach of ASBO figures are the period June 2000–December 2002. These show that across all courts in England and Wales that 46% of all defendants (adults and young people) found guilty of breaching an ASBO received a custodial sentence. However, it should be borne in mind that the numbers of ASBOs for this period were fairly small, and more up-to-date figures on breaches and disposals, including a breakdown for Wales, will be available shortly. The Government is not however complacent, and believes that the courts play a crucial role in tackling anti-social behaviour more generally. In July 2004, the Department for Constitutional AVairs started to roll out “anti-social behaviour response courts” around England and Wales. These magistrates’ courts were identified because of the focus on anti-social behaviour in their area and a commitment from those courts to deal eVectively with anti-social behaviour in co-operation with other local agencies. These courts included CardiV in South Wales which was seen as an exemplar of best practice, because of its excellent work on Welsh Affairs Committee: Evidence Ev 427
training (including steps to ensure that ASBO cases were only heard before trained magistrates), and its responsiveness to other agencies (including the identification of dedicated ASBO contact points in each court). Although it is a matter for each individual area to decide the approach to be taken in their areas the hallmark of the courts are: — a commitment to dealing eVectively and swiftly with anti-social behaviour, whilst safeguarding witnesses; — responsiveness to local agencies (including consideration of specialist sessions where they are appropriate); work to ensure that magistrates are eVectively trained and aware of the concerns of the local community, — the identification of a court champion to identify and share best practice and act as a focal point within the courts. The Department for Constitutional AVairs is now working to ensure that lessons from these courts are shared with all courts in England and Wales and that anti-social behaviour response courts are identified in all areas where they are needed. As at 21 December, 76 magistrates courts in 21 police force (MCC) areas had signalled their commitment to work as anti-social behaviour response courts—visibly demonstrating their commitment to deal with anti-social behaviour. A significant further tranche of courts were intending to draw upon the best practice guidance to ensure they were in the best possible position to respond eVectively to anti-social behaviour. Clearly diVerent parts of Wales will have diVerent needs (because of the very diverse problems in diVerent parts of Wales) however all courts have already signalled their commitment to tackle these problems through closer inter-agency working. Courts in South Wales and Gwent are anti-social behaviour response courts and the courts in North Wales and Dyfed-Powys are actively considering whether they would wish to adopt this approach and draw from the best practice. One of the underlying concerns expressed by the Committee was the perception of variation of approach across they system. The 1 April 2005 will see the creation of Her Majesty’s Court Service, a single agency to replace the 43 separate organisations running the courts across England and Wales. The Lord Chancellor will be accountable to Parliament for the running of this new organisation The Government believes that the unification of the management of the courts will create a real opportunity to improve performance and consistency of approach across all courts whilst of course allowing local areas to make decisions about their own local circumstances. I hope that this is helpful. Louise Casey National Director—Anti Social Behaviour Unit 20 January 2005
34. Written evidence from the Welsh Local Government Association
Introduction 1. The Welsh Local Government Association (WLGA) represents the 22 local authorities in Wales. The three national park authorities, the three fire and rescue authorities, and four police authorities in Wales are associate members. The Association seeks to provide representation to local authorities within an emerging policy framework that satisfies the key priorities of our members and delivers a broad range of services that add value to Welsh Local Government and the communities they serve. 2. In response to the request by the Welsh AVairs Committee, the WLGA would like to submit the following written evidence to the Committee’s Inquiry into the Police Service, Crime and Anti-Social Behaviour in Wales.
Evidence
3. Local Government and Community Safety Partnerships in Wales 3.1 Local authorities in Wales have embraced their responsibilities as statutory members of Community Safety Partnerships (CSPs) under the Crime and Disorder Act 1998 and are committed to providing the best possible services that enhance the lives of the people of Wales. Local Government in Wales fully endorses the principle that partnership working across agencies is the best means of delivering safer communities to the people of Wales. The 1998 legislation in many respects remains a relatively new piece of legislation. Along with other partners, local authorities have had to undergo significant cultural changes in the way that they operate in order to ensure the long term success of multi-agency partnership working in the area of community safety. Since 1998 CSPs have faced increasing demands, by both central government and the Ev 428 Welsh Affairs Committee: Evidence
Welsh Assembly Government (WAG), as further legislation and guidance have been published. It would be more than fair to say, however, that local authorities have successfully risen to this challenge. Since their inception CSPs in Wales have steadily progressed in their development and operation, and have accumulated many successes. 3.2 As current involvement has proven, local authorities have a key role to play in the community safety agenda of local communities. Perhaps nowhere is this more true than in relation to the role of Councillors. Local Councillors are the democratically elected representatives of communities in Wales. The WLGA welcomes the proposals in the Police Reform White Paper—Building Communities, Beating Crime: A Better Police Service for the 21st Century—to enhance the role of Councillors in relation to community safety. This move recognises that as the democratically elected representatives of communities, local Councillors have much to give in relation to addressing issues around community safety, particularly by ensuring that the needs of local communities are realised. The WLGA has also welcomed further proposals in the White Paper for increased statutory responsibility on local authorities to address community safety issues. 3.3 One area in particular where local authorities, working in partnership with the police and the courts, have played a significant role in the community safety agenda is in tackling anti-social behaviour. For the most part, ASBOs in Wales have been greeted warmly by the public, particularly by those communities who have suVered the consequences of anti-social behaviour. ASBOs should, and indeed are regarded, however, as a measure of last resort. The emphasis should be on early intervention to tackle the issues which can lead to anti-social behaviour, and on diversionary activities. Figures for CardiV demonstrate the eVectiveness of early intervention: between January 2003 and January 2005, 729 first warning letters were issued; 167 second warning letters were issued; 56 individuals were involved in third warning meetings with a Chief Inspector, of which 32 signed Acceptable Behaviour Contracts; and 20 ASBOs were ultimately issued.
3.4 Local government and its relationship to CSPs in Wales enjoys a particular advantage over its English counterpart. CSPs in Wales benefit from co-terminousity with unitary authorities. The diYculties and complexities for Crime and Disorder Reduction Partnerships (CDRPs) in England operating within two- tier authorities has recently been highlighted by the Home OYce Review into the Partnership Provisions of the Crime and Disorder Act 1998.
4. The NAW Current Review of the Local Authority Strategies, and its Potential Impact on the Community Safety Agenda
4.1 The overall aim of the Welsh Assembly Government’s Plan Rationalisation Programme is to rationalise and reduce the number of plans that the WAG requires local authorities to produce. In particular, it seeks to subsume the current set of specific plan requirements within the wider planning and improvement framework, leading to greater clarity and consistency and lower administrative burdens. The Programme Board oversees overall progress whilst 6 expert sub-groups, one of which has the Community Safety remit, are responsible for the detailed assessment of planning requirements in their areas. The WLGA has estimated that working on required plans takes up to £20 million of resources in local government. For this reason the WAG is committed to establishing firm proposals and are hoping to implement them by April 2005. 4.2 The Community Safety sub-group includes representatives of the WAG, the WLGA, local authorities, the Audit Commission in Wales and the voluntary sector. Following its second meeting the sub- group undertook a consultation with key stakeholders inviting views on the proposal to remove the requirement to produce three year Community Safety Strategies. It was stressed, however, that despite the removal of the requirement to produce strategies local authorities should continue to be subject to a duty (as per s.17 of the Crime and Disorder Act 1998) to exercise their function and that there would still need to be eVective planning—strategic, business, operational—for local authorities and partners to decide, although the Audit Commission and Wales Audit OYce should continue to evaluate robustness of the planning processes as part of the Wales Programme for Improvement and long term aims should be represented in each local authority Community Strategy. 4.3 Responses to the consultation were generally supportive of the Sub-group’s proposals. In particular respondents felt that removal of the requirement would reduce the administrative burden on CSPs, with respondents highlighting the cost of undertaking the audits and producing the strategy in both administrative and financial terms. Respondents also expressed that while community engagement was of paramount importance, the three-yearly audits only rarely uncovered issues of local concern that CSPs were unaware of. This was usually due to the on-going consultation with the community that takes place by partners individually and the CSPs collectively. There was also, however, a strong feeling from respondents of the need to ensure that the removal of the requirement did not undermine participation in CSPs by partners and other bodies, nor impact negatively on the profile of Community Safety. Welsh Affairs Committee: Evidence Ev 429
4.4 A number of responses reflected the sub-group’s acknowledgement that both the publication of the Police Reform White Paper and the review of the Partnership Provisions of the Crime and Disorder Act 1998 would have an impact on the plan rationalisation programme. 4.5 The Sub-group is currently preparing its report to be presented to the Programme Board in March 2005.
5. The Sufficiency of the Current Enforcement Mechanism (Crime and Disorder Act 1998) for Community Safety Partnerships 5.1 Section 17 of the Crime and Disorder Act 1998 is of pivotal importance in ensuring that community safety issues are addressed holistically. Moreover, mainstreaming community safety is imperative to the ability of public bodies to deliver safer communities in Wales and within the UK. There is significant concern, however, that in spite of this statutory responsibility, not all public bodies are committed to the community safety agenda to the same degree. Many attribute this to the fact that s.17 comes with no enforcement mechanism ie it has “no teeth”. Health is often cited as a partner that does not always engage to the same degree as others. It is important to state, however, that this is not the case across the board. There are a number of examples of eVective engagement with health throughout Wales. For example, CardiV and Swansea CSPs enjoy an involved and eVective relationship with their respective Local Health Boards. This successful joint-working was recently highlighted by the Mobile Response Units deployed in both CardiV and Swansea over the Christmas period 2004. 5.2 A crucial aspect to ensuring engagement from all partners is the ability to eVectively communicate the constructive role partners can play and the positive impact engagement with CSPs can have on the work of individual partners and organisations. 5.3 It is also important to recognise that some agencies find it diYcult to engage to the same degree as other partners due to a lack of resources. For example, the probation service teams in Wales have to cover more than 1 CSP.
5.4 Similarly, for local authorities, the challenges to mainstreaming community safety are far less a result of unwillingness on the part of other departments/services to engage with the agenda than the pressures on resources faced by all local authority services. Notwithstanding this, mainstreaming requires a significant cultural shift amongst organisations and individuals and adequate training for both oYcers and members is imperative. 5.5 The diYculty in seeking to address the problems associated with mainstreaming is formulating eVective enforcement mechanisms for s17.
6. The Legal Personality of the Community Safety Partnership: ie Enabling it to Contract Services in its Own Right 6.1 CSPs, as currently constructed do not have “legal personalities” and as such are not able to contract services in their own right. They can, however, enter into a partnership agreement to contract services. The question essentially is whether a partnership would wish to become a legal entity to contract services or agree for a member partner to undertake work on its behalf. This is the current situation for many CSPs in respect of Substance Misuse. In Denbighshire CSP, for example, the local authority as the fund holder enters into contracts.
7. Setting Common Targets/Goals as a Means of Improving Partnership 7.1 One of the biggest challenges faced by CSPs has been the tension between responding to local needs and meeting national targets. Overall, nationally-determined targets have increasingly matched the local priorities determined by the audit undertaken by CSPs. The one particular exception to this is the national target to reduce burglary, which in many Welsh CSPs is not an identified priority. Whilst the relationship between national and local priorities is not necessarily one of conflict, greater synergy between the priorities is required. CSPs need to be able to meet national priorities and targets in a flexible manner which best meets local needs and situations. 7.2 Another diYculty for CSPs has been the Home OYce’s tendency to over emphasise a percentage reduction in crime as the key measurable outcome for CSPs. This does not adequately take account of the successful initiatives of CSPs, for example, youth diversionary activities, substance misuse education programmes or crime prevention programmes. Not all of the work and priorities of CSPs are measurable by a percentage reduction in crime. It is the WLGA’s opinion that a reduction in the fear of crime is a crucial target for CSPs in Wales. Not only is this immeasurable by a reduction in crime, it has little or no eVect on the Ev 430 Welsh Affairs Committee: Evidence
perception of crime and the fear of crime. Yet, fear of crime is a hugely significant issue for a large number of individuals and communities across Wales and has a huge impact on the quality of life of Welsh people. The work that CSPs do as part of the reassurance agenda is of paramount importance. 7.3 Another diYculty for CSPs has been the relative lack of co-ordination in determining priorities between partnerships and the police. Traditionally CSP’s Community Safety Strategies have fitted into Policing Plans with only little consultation and collaboration. Over recent years, however, CSPs have been working more closely with the police in the production of Strategies. The proposals in the Police Reform White Paper for a new responsibility on police authorities to ensure that policing plans are reflective of Community Safety Strategies is a welcome proposal which formalises this development and is also recognition of the new thinking in relation to CSPs especially of their ability to identify local priorities. 7.4 There are a myriad of targets in relation to community safety and crime and disorder across diVerent services, bodies and organisations. There would be some benefit for all agencies to have common or complimentary targets set at the national level. At the same time, however, it is imperative for CSPs to have local priorities as their key drivers and any move which would undermine this would not be beneficial to local communities. The key is ensuring a balanced approach where CSPs have flexibility to meet local needs whilst at the same time contributing to meeting national targets.
8. Procedures for Data Sharing Across Partners Within the Community Safety Partnerships
8.1 Data sharing between partners is an essential aspect to the partnership approach. While it is recognised that more needs to be done in this area, progress has been made. 8.2 Protocols for data sharing have been put in place in North Wales through Project Dragon. It was anticipated that this would serve as a pilot leading to a pan-Wales protocol, although this has yet to be fully realised. 8.3 The issue of data sharing has recently been highlighted by the Local Government Association’s research into reducing re-oVending. The report from that research, Going Straight: Reducing Re-oVending in Communities, highlighted the need for local authorities and Criminal Justice agencies to share data in order for responsible agencies, such as local authorities, be better able to address many of the common issues and risk-factors associated with re-oVending eg housing, employment, and benefits. The WLGA would support the need for eVective data sharing and believes this would help in ensuring there was a holistic approach to improving community safety through both reducing potential crime and disorder instances and supporting the settlement and integration of oVenders within local communities.
9. Views on the All Wales Community Safety Forum
9.1 The membership of the All Wales Crime and Disorder Forum consists of Chief Executives of Local Authorities, Chief Probation OYcers, Chief Constables, NACRO Cymru, the H M Prison Service, the WLGA and more recently the National Assembly’s Crime Reduction Unit and Fire Services. However, the Forum has not met recently and no date has been set for a future meeting. 9.2 With the secretariat provided by Bridgend County Borough Council, via the Chief Executive, the Forum was established (in approximately 2001) to address strategic crime and disorder agenda issues between key partners on an all Wales basis. Members of the Forum felt it was a useful vehicle in terms of information exchange between all partners involved in combating crime and developing community safety and in lobbying on issues of mutual interest. Agenda items for meetings covered issues such as drug markets in Wales, youth oVenders and secure estates, and the resource requirements of the crime and disorder agenda. 9.3 As highlighted previously, partnership working is a critical success factor in being able to provide a strategic, holistic approach, setting common objectives and joined up working. Such partnership work needs to be addressed at all levels. The WLGA supports the need for a strategic Wales-wide Forum addressing community safety issues. Such a Forum could support the work of CSP’s at the local level, and the formal and informal mechanisms that currently exist at the regional level (for example, the South Wales area Overarching Leadership Group). Whilst the All Wales Crime and Disorder Forum has not met recently, the meetings that were held identified the potential benefit of discussing the existing and further developing crime and disorder agenda, its impact upon the various agencies involved and discussing further opportunities for developing joint working and sharing information. Should further meetings of the existing Forum be convened, the WLGA would be keen to continue in membership. 9.4 The Association is currently seeking regular annual meetings between the Chief Executives and Chief Constables of Wales. Welsh Affairs Committee: Evidence Ev 431
10. The Capacity of Local Government (Personnel and Resources) to Participate in Partnerships 10.1 There are a large number of excellent practitioners in the field of Community Safety within local authorities in Wales. As the key drivers of CSPs in management terms, for CSPs to succeed these staV and appropriatestaVstructuresarevitallyimportant.ThereisnodistinctpatternforstaYngacrossCSPsinWales, with each operating in many diVering ways. The Association believes that having a common staYng structure across all CSPs is not wholly necessary. What is imperative, however, is that CSPs have the right level of support from senior oYcers and that CSPs have a voice at the highest strategic level within authorities. 10.2 The funding of dedicated anti-social behaviour, domestic abuse and substance misuse coordinators hasbeenahugelywelcomedevelopmentforCSPswhichhashelpedenabletheprogressionofprojectstotackle priorities in these areas across Wales. This funding, however, is on a short term basis and CSPs are concerned regarding the future funding of these important posts. 10.3 The funding of CSPs themselves is an area of significant concern for Partnerships. The biggest challenges facing CSPs is that funding allocations are short term, announced late in the financial year and are unduly bureaucratic. CSPs are presently required to produce three year strategies, yet the funding received is for 12 months only, which accompanied with the late allocation of funding, makes long-term planning diYcult. 10.4 In addition to funding applications being overly bureaucratic they are also heavily prescriptive, which combined with the number of funding streams, makes it diYcult for CSPs to obtain funding to tackle locally- identified needs. Furthermore, the current capital-revenue split does not mirror the financial needs of CSPs. CSPs are in need of increased revenue support and far more flexibility around the capital spend. 10.5 Funding streams in England are due to be merged into the Safer and Stronger Communities Fund. Whilst it is assumed that funding streams for CSPs in Wales are also due to be merged, no detailed plans and timescales have yet been announced. Rachel Morgan Community Safety Policy OYcer Welsh Local Government Association 21 February 2005
35. Written evidence from The Welsh Association of Community Safety OYcers
Statement of purpose The Government is committed to improving community safety. Central to that purpose are the 22 Community Safety Partnerships in Wales and there is value in those who are responsible for co-ordinating activity in those Partnerships coming together in a structured manner.
Core Values Each individual will be treated with equal respect dignity and value. Individual preference will be recognised. Discrimination will not be allowed and negative labelling avoided. Preferred language will be oVered. Communication will be clear open and honest. Individual strengths and resources will be recognised. All members will have equal status. Ever attempt will be made to work in open partnership with others.
Terms of Reference WACSO has decided upon these terms of reference. The Association is in essence didactic and is in place to ensure that: — Members are empathetically supported — Information is shared — Lobbying is structured — Duplication of eVort is avoided — Success is celebrated and shared as good practice and failure recognised and reviewed for “lessons learnt”. Ev 432 Welsh Affairs Committee: Evidence
Membership The Association has Core and Associate Members. Membership costs £50 and £25 respectively. Core members are: — the nominated community safety oYcers for each of the 22 CSPs in Wales; — the Director of the Community Safety Unit at the Welsh Assembly Government and — the Community Safety Representative of the Welsh Local Government Association; — regional Community Safety Coordinators. Each of the 24 Core members will have one vote. If a member is unable to attend s/he can be deputised by another operational oYcer from the parent Community Safety Partnership team. A deputy will have the same status and can act as a Core Member. Associate members are: — as Core members for conference and events; — copied into all correspondence and well receive all papers; — included is all development and policy debates of the Association (Plenary Sessions). To ensure balance admission as an Associate member will be at the discretion of the Core Membership. Requests for Associate Membership can be made to the Chair, and must be approved by a majority vote of core members. Meetings The Association has an annual conference every June and five/six other meetings per annum. The meetings are in two parts: 10 am to 12 am Core members only; 1 pm to 3 pm, Plenary Session. The Association meets in Llandrindod. Core and Associate members can influence the agenda for the Core Group and for the Plenary Session. Minutes and Agenda will be sent out to Associate and Core members before each meeting by e-mail. Officers OYcers of the WACSO are elected by the Core Members at the AGM. The AGM is held in March/April. Every eVort is made to ensure that the Chair is shared between the North and the South. Representation on national bodies including the Home OYce working Group is agreed at the AGM. Coda — This paper is reviewed annually at the AGM. — Guests can be invited on a common-sense basis. — Extraordinary meetings are at the discretion of the Chair. — Guest speakers will be at the discretion of the Chair David Jeremiah January 2005
Further written evidence from North Wales Police
The following information was promised during the oral evidence session on 30 November 2004 in relation to Q 386 from Mrs Betty Williams MP. All our posts are classified in accordance with current HMIC guidance and the following figures are correct as at 25 February 2005. Classed as: 1. Foot/Car/Beat Patrol—Operational—The ACPO Working Group on Patrol settled on the definition: “The overt presence, whether on foot or mobile, of a locally accountable uniformed police constable who provides public reassurance and who is approachable and available to ensure an appropriate response from all the resources of the police service, to the needs and demands of the general public”. Thus, include staV who are predominantly assigned to operational patrol in uniform either on foot, on a pedal/motor cycle or in a motor vehicle (includes “Home Beat”, etc). Also include Task force/support group/territorial patrol. Do not include traYc and motorway patrol (see 54) and members of dogs’ sections (see 22). OYcers of Welsh Affairs Committee: Evidence Ev 433
supervisory rank who perform patrol duties, eg shift supervisors, should be included. Local beat/home beat oYcers should be included. Specials should be included. Do not include recruits undergoing training on modules 1–7. The figure for the above nationally recognised measure in North Wales is: 840 Police OYcers and 24 Police staV Overall classed as operational, we have: 1,517 police oYcers and 316 police staV Overall classed as operational support we have: 183 police oYcers and 90 police staV Overall classed as organisational support we have: 41 police oYcers and 491 police staV. These figures change daily as people move posts/posts are made obsolete/created. It does not include seconded oYcers or those mid transfer. Undeg T Jones StaV OYcer to the Chief Constable 1 March 2005
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