London Borough of Camden

Research project to support the Statement of Licensing Policy

Review 2015-2016

Full Technical Report

Con

Contents

Executive Summary 3

1. Introduction 48

2. Research design and methodology 52

3. Profile of the study areas 55

4. Observational study findings 111

5. Place management recommendations 138

Appendix one: References 158

Appendix two: Author biography 160

Appendix three: Research instrument 161 Appendix four: Strengths and limitations of the research design 166

Appendix five: Glossary of terms 168 Supplementary material: Photographic diary (separate accompanying document)

Executive Summary

Background

The Evening and Night-time Economy (ENTE) is an increasingly important subject of interest to local government, private businesses and public agencies, as well as to the media and to wider communities. Within Camden, this economy is concentrated in the south-western corner of the Borough; in parts of Holborn, Covent Garden and Kings Cross, and further north in Camden Town and Kentish Town. The Council’s Statement of Licensing Policy adopts the term ‘Special Policy Area’ (SPA) to refer to what the Guidance accompanying the Licensing Act 2003 calls a ‘Cumulative Impact Area’ (CIA), regulated in accordance with a ‘Cumulative Impact Policy’ (CIP). CIPs apply where a Licensing Authority has identified that there is a consistently high incidence of crime, disorder and public nuisance over time, related to the sale and consumption of alcohol, and relative to other areas within the Authority’s jurisdiction. There are currently two SPAs within Camden: the Seven Dials SPA and the Camden Town SPA. Both SPAs in Camden apply only to a very small geographical area, as a proportion of total land use within the Borough. These areas, together with Camden’s other nightlife areas, contain richly attractive and creative aspects of the Borough’s leisure industry. They form the economic heart of licensed entertainment businesses within Camden. The most recent ‘Night-Mix Index League Table’ places Camden as the sixth-largest ENTE in the UK, with a turnover of £955.9 million (2.3% of the Borough’s total economy) in 2011 1. Moreover, the ENTE undoubtedly helps shape Camden’s reputation and visitor appeal, both across London, and more broadly. In the UK, SPAs and other nightlife areas almost invariably become ‘victims of their own success’. The relatively high crime and disorder levels recorded relate directly to the outstanding success of particular locations as localised leisure economies, rather than being a reflection of poor standards of management amongst particular clusters of licensed premises. The high numbers of visitors attracted and the subsequent intensity of human activity has the almost inevitable effect of increasing the raw numbers of crimes recorded (although the crime ‘rate’, when viewed in terms of total visitor footfall, may, in fact, be low). These crimes occur often alongside the more desirable aspects of social behaviour and city life, with most visitors enjoying their nights out unhindered and with no negative consequences2.

1 TBR Observatory (2014) Night-Mix League Table – Urban LAs 2011. Newcastle-upon-Tyne: Trends Business Research Ltd.

2 Brantingham, P. L. and Brantingham, P. J. (1995) ‘Criminality of Place: Crime Generators and Crime Attractors,’ European Journal of Criminal Policy and Research, 3: 5-26. © Phil Hadfield 3

Camden’s two SPAs are not the central foci of this study - although repeated reference will be made to them. Rather, attention is paid to other important ENTE locations in Camden. Some of these areas abut one or other of the SPAs; others represent quite separate, rapidly developing, locations for commercial nightlife in the Borough.

Study rationale

The purpose of this research is to provide a unique and valuable source of evidence to inform the drafting of the London Borough of Camden’s (the ‘Council’s’) Statement of Licensing Policy3. The Policy is now revised every five years, following a period of consultation, research and data analysis; the latest phase of which occurred in 2015-2016. The Camden Licensing Authority has a duty to promote the four national statutory Licensing Objectives:

 The prevention of crime and disorder;  Public safety;  The prevention of public nuisance;  The protection of children from harm

In order to do so, the Licensing Authority is required by Central Government to obtain a detailed understanding of the local evidence concerning these issues and objectives. The gathering of evidence ‘on-the-ground’ concerning the impacts of Licensable Activities forms an essential component of this exercise. The analysis of local evidence allows the development of licensing policies that are nuanced, targeted and justified, in the manner required by the Home Office4. Carefully-targeted and proportionate licensing initiatives also represent value-for-money: resources are expended in the most efficient and effective ways and costs are reduced in related areas, such as in enforcement, policing and litigation. The origins of this research lie in the mapping of police-recorded crime and disorder and ambulance call-out statistics for four areas of Camden. In these areas, there appeared to be emerging problems of alcohol-related crime, disorder and emergency health services demand at night over a 24- month period. For the existing SPAs, the Camden Community Safety Partnership had found a continuation of established patterns of crime and disorder. However, the data indicated four newly-identified locations, outside of the two existing SPAs, where crime and disorder at night appeared to have increased. These areas had not previously been subject to detailed examination as part of a review of licensing policies; at least, not to a degree that might

Felson, M. (2008) ‘The Routine Activity Approach’ in R. and L. Mazzerole, (eds.), Environmental Criminology and Crime Analysis. UK: Devon Press. 3 London Borough of Camden (2011) Statement of Licensing Policy 2011. London: Borough of Camden. 4 Home Office (2015) Revised Guidance issued under section 182 of the Licensing Act 2003. March. London: Home Office. © Phil Hadfield 4 inform evidence-led practice. Readers are referred to the 24-month period data mappings produced by the Camden Community Safety Partnership as a source of cross-reference to this research. These mappings provide an overview of recorded crime and ambulance data hot-spot analyses in the two-year period prior to the 2015-2016 review of licensing policies in the Borough.

This research was commissioned as an independent view, to look in detail at the public usage of the four areas identified in the crime and emergency health statistics. Using the statistical mappings as an initial reference point, the project provides further insight into localised problems within the Camden ENTE. Specifically, it provides intelligence, derived from close observation of the four areas over a six-month period, as to why these concentrations of alcohol-related harms are occurring in the places and times they are. This examination of the public functions of the areas is set against descriptions of the licensing landscape, the built environment, utilities and services, and pipeline developments in each area.

Aims and objectives

The specific aims and objectives of this research are to:

1. Examine and explain, through fresh independent data collection, the most likely causes / contributory factors behind the recent rises in alcohol-related crime and disorder in the four locations as recorded by the Metropolitan Police Service (MPS) in the evening and night-time economy hours (18.00-06.00).

2. To report on issues contributing to ‘public nuisance’, ‘public safety’ and ‘the protection of children from harm’ in these areas at night. Duties to prevent these matters are set out (alongside ‘the prevention of crime and disorder’) in the Licensing Act 2003 as the four Licensing Objectives. We take particular note of how different combinations of issues relating to the four licensing objectives may be effecting the four locations in different ways.

In order to do this, the following approach was adopted:

Fieldwork for the project began on the evening of 19 February 2015, stretching over six months to the early morning of 12 July 2015. The sample framework for the research was as follows:

Six weekends (second weekends of each month), running from Thursday night to Sunday morning (18 nights / 138 hours in total). Full coverage of the 21.00 – 04.00 period (126 hours) Additional evening sample periods between 18.00 and 20.59 (12 hours) Each area was visited six times: twice on each of the nights, Thursday evening / Friday morning, Friday evening / Saturday morning and Saturday evening / Sunday morning. Structured (repeatedly replicated - see Appendix Three) observational methods were used. Visits across six months, with different seasons and weather conditions, helped the research team to gain deeper understandings of how the areas ‘worked’ at night. Six visits to each location were made in order to reduced the possibilities of the observations being conducted at particular times which were not generally representative of the areas in question (eg., when weather conditions were unusually bad or good). It was also necessary to include some aspects of the ‘events calendar’ and these were subject to specific analysis. For example, the influence of Premiership football fixtures in London and the South East on the activities of travelling fans in and around Kings Cross. The concentrated research focus across six weekend periods allowed opportunities to incorporate aspects of the events calendar and to compare these time-periods with the more general social environments that pertained. Following interim progress meetings with council officers involving the discussion of current licensing themes in the four areas it was decided that the research team would also conduct a number of test purchases of alcohol at off-licensed premises. This activity allowed the research team to gain insight into compliance with late-night alcohol sales restrictions in local shops and stores and therefore the potential accessibility of alcohol for night-time street drinking in certain key locations. We did not count and statistically analyse the ‘numbers’ of crimes and public nuisance incidents observed in the four areas. To do so would have provided an additional source of numerical information to the existing data sets that are tracked and analysed by the Camden Community Safety Partnership. It would have required the addition of a survey element to the research. A survey audit of ENTE public behaviours was not considered appropriate to the Council’s needs due to the project’s necessarily limited timescale and budget. Survey research would have added substantially to the cost of the project. Furthermore, surveys of public behaviour in the ENTE are particularly sensitive to changing conditions on-the-ground. Street survey approaches lack validity unless of sufficient duration to cover changes in weather conditions and the annual events calendar across a period of 10-12 months. This was underlined by the findings of recent quantitative survey work by the author in adjoining

© Phil Hadfield 6 areas of Westminster (Hadfield, et al., 2015)5. Investment by Camden in a ‘snapshot’ survey of public behaviour was not felt to represent value for money as concrete supporting evidence for the Statement of Licensing Policy.

Profiling the study areas

Section Three (below) provides a sense of the location, primary functions and trading hours of the licensed premises that comprise the ENTE of our study areas. This includes a full audit of the licensed premises found to be operating in the four study areas at the time of our research. The premises are listed spatially next to their neighbours and numbered in order to illustrate the size and density of the ENTE in each area. Both on-licensed and off-licensed premises are included. Hotels are included only if they offer licensed facilities that are advertised as available to non-residents. Cafes and takeaways that do not serve alcohol, or require a Late-Night Refreshment (LNR) Licence (for the service of hot food and drink between 23.00 and 05.00), are included only if they operate in the 20.00-22.59 period and therefore form part of an area’s night-scene. The trading hours listed are those hours of operation that the premises advertise to the public. These hours will not necessarily be the same as those listed on the Premises Licence (they may be shorter in duration). We believe the listing of advertised and actually-used hours gives more of a sense of the ‘lived experience’ of the areas than that which might be obtained by simply reviewing the licence of each premises and extrapolating the trading hours artificially. Section Three also reports observations of people’s behaviour where the customers or staff of identified licensed premises were involved in activities relating directly to their attendance at those premises (drinking on pavements outside specific pubs or off-licences, for example). In Section Four, we report on how public spaces are used and specifically the behaviours of people present within the four areas at night when occupying the public realm of streets and pavements, transport termini, public squares and highways etc. A photographic diary, containing images captured in the course of our observational fieldwork, can be found in Supplementary Materials to this report The areas are seen as ‘natural areas’ for nightlife, with human activity and routines surrounding clusters of licensed attractions. In three of the four areas there are important interactions occurring with clusters of premises that are regulated by other Licensing Authorities, but which sit adjacent to clusters of premises licensed by Camden. Due to the importance of these issues they are flagged at a number of points within the report. Premises licensed by other boroughs are clearly indicated in Section Three, but are otherwise treated similarly in their depth of description.

5 Hadfield, P., Sharples, S., Bevan, T. and Measham, F. (2016) Westminster Evening and Night- time Behaviour Audit 2013-14. Final Report to the West End Partnership Group and the City of Westminster. London: www.philhadfield.co.uk.

Summary findings for each area

1. Kings Cross (including St Pancras / Somers Town and Euston)

Key Statutory Licensing Objectives for the area:

Crime and Disorder Public Safety

Key features of the social environment

This area contains a large and rapidly growing concentration of licensed premises: it comprises a new ENTE destination within Central London. Kings Cross has a historical reputation as being a somewhat lawless and ‘edgy’ area at night. Some elements of this history remain in long-standing © Phil Hadfield 8 venues on Caledonian Road and in the continued presence of organised street prostitution, begging and homeless drinkers. The current climate, however, is of an area in ascendency; rapidly developing economically and slowly gentrifying. In comparison with our other areas there are comparatively few residential properties in close proximity to licensed premises. The area is a major night-time transport hub for visitors to Central London. It provides a first impression of London and the UK for international arrivals. This is ‘Camden on view to the world’ and therefore a priority location for active place management. The area - containing three major national mainline / regional rail stations - is particularly affected by large public events occurring across London and the South East. More locally, events at the Scala live music / nightclub venue on Pentonville Road can attract over 1000 (mostly additional) people to the area and often run up to 06.00 in the morning. There are five backpacker hostels in close proximity to Kings Cross Station, including two on Caledonian Road. This means that the area attracts and retains a high number of young international visitors. These travellers are very apparent in the area late at night and many attend the late-night refreshment premises and convenience stores, particularly those on Pentonville Road, where they purchase alcohol. In general, these visitors are often looking for activity and excitement, although many do not attend the on-licensed premises, which appear to be mostly populated by UK nationals. These young travellers from around the world are often new to London and the UK. A high proportion come from European countries in which unsupervised alfresco drinking in public squares is the norm6. At the same time, they may not be ‘street wise’ to the extent that they are not necessarily attuned to localised risk on the streets late at night. The area is also an important first-stop location for UK business travellers and also leisure bookings at weekends, including group bookings such as hen and stag parties. At night, weekend visitors are often heading for the West End, although Thursday nights see more retention of business travellers who can be seen, often in large male-only groups, attending restaurants on Gray’s Inn Road and Euston Road and the pubs on Euston Road and Caledonian Road, in particular. The area contains a number of hostels for the homeless and homelessness services. This may be one reason why instances of begging and rough sleeping seem especially prominent in the area, particularly around Kings Cross Station. Although the homeless were a constant presence, there were only a few occasions on which homeless people could be seen drinking alcohol. Street prostitution and the activity of pimps have a long history in Kings Cross. This was not apparent on our winter visits, even in the later hours. From May

6 Basanta, A.R. (2009) ‘Spain’, in Hadfield P. (ed.) Nightlife and crime: social order and governance in international perspective, pp. 153–65. Oxford: Oxford University Press.

Demant, J. and Landolt, S. (2014) ‘Youth drinking in public places: The production of drinking spaces in and outside nightlife areas’, Urban Studies, 51/1: 170-84.

Selmini R. and Nobili G.G. (2009) ‘Italy’ in P. Hadfield (ed.) Nightlife and crime: social order and governance in international perspective, pp. 139–52. Oxford: Oxford University Press.

© Phil Hadfield 9 onwards however, this was apparent and members of the research team were solicited. The area is an especially sensitive location for the policing of travelling football fans and their drinking in and around the transport hubs and in local pubs. It is the key entry and exit point via the East Coast and West Coast Mainlines for travelling fans from locations north of London. A number of pubs in the area, particularly on Euston Road and Caledonian Road, provide large- projection screenings of live sporting events and tailor their offer to the sports fan market. Whilst this is a perfectly acceptable case of supply meeting demand in predominately well-managed premises, there can, of course, be an unruly element to the spectator population. As discussed in Section Three, a large incident of hooligan violence and disorder occurred at 18.00 at a pub on Caledonian Road (licensed by Islington) during the months of our research. It was notable that music fans could also swamp the area for short periods of time. In July, the musician Ed Sheeran held a three-night residency at the Wembley SSE Arena, Thursday 9 - Saturday 11 July. This event brought 80,000 (mostly additional) people per night into North London, which had a clearly apparent effect on road traffic congestion, the occupancy levels of tube services, as well as on mainline services departing Euston and Kings Cross until well beyond midnight. Mainline rail services at all three stations in the area are used extensively by ENTE patrons on their journeys into and out of Camden. At present (pre- night tube), a number of local and regional mainline services provide additional options for late-night travel homeward after the closure of the tube services that would otherwise be available. Rail services are, of course, much more rapid than the Night Bus options; albeit serving a much more restricted set of destinations. There is not simply an outflow of ENTE customers using the mainline rail services after midnight. We also noted large numbers of people entering Euston, for example, en-route to late-nights out. The 02.00 Watford Junction (outbound) service is the last activity at Euston overnight and the station closes soon after, re-opening at 05.00, Kings Cross is locked at around 01.45, reopening at 05.00. St Pancras concourse remains open throughout the night.

Profile of licensed premises

29 premises were seen to be operating until 02.00 or later in our patrol area on Friday and Saturday nights (with reduced numbers on all other nights). 17 of these late-night premises are licensed by Camden (five bars/pubs, five café/restaurants, and six off-sales shops (although none of these are licensed to sell alcohol after 01.00) and one snooker club). 12 are premises licensed by Islington. Islington’s late-night premises are more spatially concentrated, all being in or around Caledonian Road. Islington’s late- night premises comprise: six bars/pubs, four café/restaurants and two off-sales shops. Islington therefore have a higher concentration of on-trade bars within a smaller geographical area (all adjoining one street); Camden’s late-night premises are more mixed in function and more geographically © Phil Hadfield 10 spread. Islington also appear to permit comparatively later off-sales of alcohol (in Camden areas, off-sales conclude by 01.00 in all local outlets). Camden, however, has the largest capacity on-trade premises in the area; these being Scala, The Big Chill House and The Camden Centre. All three premises appear well-managed (based on external features such as queue supervision, dispersal management, and noise breakout), although they deal with large numbers of customers so some environmental impacts are inevitable. In the case of Scala and The Camden Centre (as with The Forum in Kentish Town) these impacts may differ markedly depending upon the type of event that is hosted. New public spaces and unsupervised alfresco drinking There are three recently-developed public squares with street furniture seating in the area: at Euston Station Piazza, Kings Cross Station Piazza and Battle Bridge Place Piazza (located between Kings Cross and St Pancras). Similarly to the re-development of Leicester Square in recent years these public facilities encourage unsupervised outdoor drinking. High levels of evening and night-time occupation of the Kings Cross and Euston piazzas was notable from April onwards; June and July saw day-time temperatures of over 20 degrees, falling to no less that 15 degrees C overnight. During these warmer months the new public spaces at the stations retained people as meeting places and areas for socialising; often accompanied by outdoor drinking to late-hours and further encouraged by easy direct access to off-sales alcohol. Our field notes record routine activities such as, groups of middle-aged men drinking from tins of larger and singing at the tops of their voices, young women being physically sick and in tears (Saturday 11 April 23.40, Euston Station Piazza). Litter is picked regularly on the piazzas during the day-time, but not at night, when waste bins become overflowing. The noise footprint of licensed premises also increased in the warmer months from persons occupying terraces, beer gardens, pavement seating and vertical drinking / smoking outside licensed premises. This effect was notable in Kings Cross / Euston and across all our study areas. Supervision of the streets by licensed venues The most prominent instances of private sector policing of the late-night scene occurred in relation to Scala, the large live music venue / nightclub located at the junction of Pentonville Road and Kings Cross Bridge. Scala employ Sabre Security (‘Sabresecurity.co.uk’) to provide SIA-registered door supervisors. Scala contain and monitor their queues behind high-sided temporary barriers stretching along Kings Cross Bridge and on occasions also provide a static guarding function at the junction with Gray’s Inn Road. Islington Nightsafe scheme Scala’s security appear to work closely with the ‘Islington Nightsafe’ team who were on occasions seen to patrol Calendonian Road and Pentonville Road in a logo-emblazoned silver ‘people-carrier’ type vehicle. The ‘Nightsafe’ team are a partnership initiative, introduced in December 2014 and funded by the Islington Late-Night Levy (which is an additional charge placed on licensed premises selling alcohol between the hours of midnight and 06.00 in Islington). The © Phil Hadfield 11

Nightsafe team comprises four patrol officers accredited by the MPS. They patrol every Thursday, Friday, Saturday and Sunday from midnight until 06.00. Our experience of observing the Nightsafe team at work was that they were regular visitors to Caledonian Road and Pentonville Road. They generally kept themselves within the Islington boundary, apart from occasions in which they worked alongside the Scala security team. On one occasion in April we saw Nightsafe officers attending to visitors who were slumped, apparently incapacitated through drink, on the pavement of Caledonian Road.

Other notable venues in the area:

The Big Chill House

The Big Chill House on the southern flank of Pentonville Road (Camden section) is notable for being the second-largest capacity, regularly trading, on- licensed premises in the area. The venue operates to 03.00 on Fridays and Saturdays; also making it one of the latest opening, with customer departures from the area lasting until around 03.50 on occasions. There were three door supervisors in attendance outside the premises on the nights of our visit. This reflects the fact that this is one of the busiest licensed premises in the area. There is considerable movement of customers to-and-fro from The Big Chill House and the northern flank of Pentonville Road, where there are two late- night convenience stores licensed by Islington. Mini-cabs often collect customers of The Big Chill House outside these stores.

McDonald’s Restaurants on York Way and Euston Road

There are two McDonald’s restaurants open in the late-night period that both attract large numbers of customers, although their styles of operation are somewhat different. McDonald’s Restaurant at 13-21 Euston Road is licensed by Camden and open until 05.00 on Thursdays, Fridays and Saturdays and until 01.00 on all other nights. The premises comprise the largest late-night refreshment premises in the area, with extensive seating across two floors. The premises employ two door supervisors in the evening and at night. There is a further McDonald’s restaurant on York Way at the junction with Pentonville Road (302-304 Pentonville Road). These premises are licensed by Islington and are open until 05.00 on Fridays and Saturdays, until 04.00 through the week, and until 03.00 on Sundays. In the York Way premises, the first floor (main) seating areas and the toilets are partitioned from the counter service area after 01.00 so that the areas that remain open to the public have little or no available seating from then on. The York Way restaurant employs two door supervisors at night and was consistently more crowded than the McDonalds on Euston Road on the nights © Phil Hadfield 12 of our visits. At York Way, customers could be seen in large numbers standing and consuming their purchases in front, or just to the side of, the service counter. Euston Road, by contrast, continues to offer sofa seating and tables on the ground floor throughout its late-night operations. It was notable that many of the customers of Euston Road had luggage and appeared to be travellers awaiting early-morning rail services. By contrast, the vast majority of York Way customers were ENTE patrons who visited the premises after leaving on-trade premises and ahead of seeking public transport on their homeward journeys. This suggests that, even in the winter months, revelers seeking fast-food will proceed immediately to the outlet that is most proximate to the on- licensed premises they have attended, rather than seeking additional standards of comfort in premises that are also nearby.

Starbucks on St Pancras Station concourse

Starbucks have a coffee shop on the ground floor of the station near to the exit onto Pancras Road. This premises is licensed for late-night refreshment 23.00- 05.59 seven days a week. The premises operate for almost 24-hours-a-day, closing only briefly at around 04.30, before re-opening at 05.00. Starbucks is often used as an unofficial waiting room in which as many as 50 people can be found spending several hours waiting (and sometimes sleeping next to their luggage) ahead of catching early-morning rail services. As one of the latest- opening facilities in the area the premises are also attended by police officers seeking refreshment on their shifts. It was notable that ENTE users on their way home tended not to use these facilities. The research team used these premises for their late-night refreshment breaks and very few instances of drunken behaviour were observed amongst other customers.

The Camden Centre

This venue is located directly opposite Kings Cross Station on the south flank of Euston Road, next to the old Council offices. The Centre was active at night, with its entrance onto Euston Road illuminated and guarded by a door supervisor on several occasions. The venue is available for private hire and has a large function room with a stage and a capacity of up to 1,000 people. The potential impact of late-night functions at the Centre was underlined for us on Saturday 11-Sunday 12 July by a large ‘Urban Music’ event. This event increased the usual footfall of people along the south pavement of Euston Road / Gray’s Inn Road and on Bidborough Street. There appeared to be a strong crossover audience for an event at Scala on the same night. Groups of people leaving the Camden Centre at around 01.00 were seen to walk along the road to join the queue for Scala on Kings Cross Bridge (which still comprised around 200 persons at this time). There were also a number of alcohol purchases by event attendees from the convenience stores on Gray’s Inn Road at around this time.

Licensed convenience stores, late-night refreshment premises, and late- night restaurants on Gray’s Inn Road / Euston Road Gray’s Inn Road merges into Euston Road just to the south of Kings Cross Station. Along the southern pavement of these two roads, in a section beginning at the junction of Gray’s Inn Road and St Chad’s Street, running west to the junction of Euston Road with Argyle Street, there are: five licensed convenience stores, six late-night refreshment premises, and seven late-night restaurants (18 licensed premises overall). All are licensed by Camden. These premises present as the most densely clustered in the area. Licensing records indicate there should be no off-sales in Camden premises around Kings Cross / St Pancras and Euston Stations beyond 01.00. We made test purchases in convenience stores on Gray’s Inn Road in July and recorded two instances of failure to comply with these restrictions. Regardless of the potential opportunities for ‘stockpiling’ alcohol, it is likely that having a cut-off point for alcohol sales contributes to safer late- night scenes. This was further indicated by our observation that, after 01.00, some homeless street drinkers were seen to transfer from Gray’s Inn Road / Euston Road to Pentonville Road, where alcohol could still be purchased at two off-sales premises licensed by Islington. Violent incidents in public spaces in Central London at night remain, thankfully, rare and therefore not always apparent to street-level observational research. Instances of low-level disorder, anti-social behaviour / pro-social behaviour, discreet noise events and public safety issues, by contrast, are commonplace. Two instances of physical violence were noted in this patrol area, one being of a serious nature and potentially life-threatening. These incidents are described in Section Four. Minor instances of disorder, drunken antics, inebriation / physical incapacity through drink, shouting, and lurching/staggering gait were apparent on all our visits to the area. It was apparent that some after-work drinking occasions involved heavy consumption. We witnessed ‘the stragglers’ on frequent occasions; people still in their work clothes, appearing tired, vulnerable and sometimes isolated as they slowly made their way along Euston Road to the later-night rail services. Not all of these persons would have attended on-trade premises in the immediate area. A notable issue for ENTE patrons who are drunk and tired - or equally, those who are exuberant, disinhibited and oblivious to normal precautions - is road traffic safety. This is generally prominent on the local environmental agenda due to the very high levels of vehicular traffic on Euston Road, which at night flows at greatest speed and volume into Pentonville Road and Kings Cross Road. At the same time, one finds narrow and crowded pavements and many persons making journeys by bicycle, who often move quietly and at speed, whilst poorly-illuminated. The Red Route status of Pentonville Road does not deter minicab picks-ups from creating dangerous road traffic situations. It was routine to witness minicabs waiting to collect customers of the Big Chill House and Scala venues in front of the late-night convenience stores on the northern flank of this road. This practice prompted customers of the venues, who were often in-drink, to negotiate fast-moving traffic on Pentonville Road, so as to cross at the most direct point, in front of the venue entrances. © Phil Hadfield 14

At the time of writing, the area’s roads had not been selected for inclusion in Transport for London’s 20 miles-per-hour speed limit pilot; a measure being introduced in a number of other areas (the nearest being more southerly sections of Kings Cross Road). There is continued concern, as reported in print, broadcast and social media, regarding the number of cycling deaths and injuries on London’s roads, together also with poor air quality; these concerns being particularly apparent on and around the busiest routes and junctions, including Euston Road and the Kings Cross Gyratory. The ENTE is not typically highlighted in these conversations; however, in this location, the connections were very apparent. One finds large numbers of fast-moving vehicles in areas where drunken revellers are crossing roads. During the course of our research near misses were witnessed on several occasions, some ENTE patrons being seemingly oblivious to the dangers in crossing the roads in front of and between fast-moving traffic. A further environmental feature of the area linked to vehicular traffic is the high ambient noise levels. Residents and hotel guests are subject to unusually high levels of background noise from traffic throughout the night. Yet, it was apparent to us that the permanent residential presence was proportionately smaller than that to be found in our other patrol areas in the Borough. This means that instances of Public Nuisance and noise disturbance are likely to affect comparatively fewer people; this may be counterweighed to some extent by the large numbers of short-duration hotel and hostel guests that stay nightly in the area and the number of day-time businesses that may have to deal with the aftermath of occasional overnight street fouling and property damage.

Cross-borough boundary effects

Kings Cross is an area in which licensed premises located within two different boroughs form a 'natural area' of attraction for ENTE visitors. Islington have created a Special Policy Area (Cumulative Impact Zone) along the strip of Caledonian Road in order to gain greater control over further licensed development. In comparison with the Camden areas of Kings Cross (and Euston), Caledonian Road has a higher concentration of on-licensed drink-led premises with post-02.00 closure times. Camden is developing its ENTE in and around Kings Cross / St Pancras at a faster rate than Islington, with investment moving into formerly undeveloped or industrial/commercial locations. Development in the Camden areas is increasingly food-led, of high quality and in comparative terms, it is more spatially dispersed. The new Camden food-led premises often feature alfresco dining. Crime Prevention Through Environmental Design (CEPD) research commends ‘active frontages’ of this nature within urban design. This is because seated diners and table service increases the natural surveillance of an area, thus contributing to the deterrence of crime and disorder7.

7 Gehl, J. (1996) Life Between Buildings, 3rd edn (Copenhagen, Arkitektens Forlag). © Phil Hadfield 15

Camden. What can be said categorically is that when licensed premises on Caledonian Road close there is a natural pattern of pedestrian movement towards Kings Cross Station and Euston Road in search of transport and fast food. Following introduction of the night tube services, the impacts of these pedestrian flows are likely to extend more often to later hours of the night8.

Recommendations

The re-development of Camden areas of St Pancras and Kings Cross is moving in a positive direction creating more appealing, well-used, economically prosperous, and potentially safer public spaces. The licensing and planning policies of the London Borough of Camden and the activities of the wider Camden Community Safety Partnership must continue to play an important role in shaping, supporting and encouraging these trends.

A useful mid-term step may be to support the establishment of a night-time- focused Business Improvement District (BID) for Kings Cross and Euston which would introduce a clear programme of sustained place management (similar to that applied by the Heart of London BID to Leicester Square); an obstacle to this is that few Camden premises remain open during the late-night hours when such supervision is most clearly required.

Some practical measures that could be taken include:

 Encourage dining with alfresco waiter/waitress service to help preserve dining as the key function of premises, promote active frontages and enhance natural surveillance of public spaces.  Encourage extensions of hours for alcohol-free cafes in order to increase the options for night-time visitors through the diversification of leisure offers.  Encourage the extension of hours for retail uses to promote day-time levels of social diversity and mixed-use vibrancy into the evening and beyond.  Monitor the number of new on-licence applications / licence variation applications for late-night drink-led uses in order to track any gradual shifts away from the current high proportion of food-led offers.  Work with private sector partners to extend further into the night services such as litter picking / collection and uniformed guardianship of the public spaces around the three mainline rail stations. Ideally, this would extend as far as the 01.00-04.00 period.  Increase PCSO / Police enforcement of the Camden-wide Public Spaces Protection Order (PSPO) in response to incidents of anti-social behaviour associated with drinking. Sensitive and highly visible areas include the piazzas around the three stations, and opposite Kings Cross Station, along the southern pavement of Gray’s Inn Road / Euston Road.  Conduct regular intelligence-led licensing compliance operations in off- sales premises on Gray’s Inn Road and Euston Road.

8 Bromley, R. and Nelson, A. (2002) ‘Alcohol-related crime and disorder across urban space and time: evidence from a British City,’ Geoforum, 33: 239-54.

 Produce ‘Action Plans’ for non-compliant premises, pending the option to Review specific Premises Licences.  Work with services for the homeless to discourage static street drinking and begging in the area.  Consider the installation of pavement barriers along Pentonville Road, at Kings Cross Bridge and on York Way to improve public safety for ENTE patrons and road users.  Increase partnership working with the London Borough of Islington regarding all of the above and most specifically: licensing compliance, crime and disorder and public nuisance on Caledonian Road and the north pavement of Pentonville Road.  In partnership with Islington, create cross-borough hot-spot mappings to provide broader insight into crime patterns at night and issues of cross- borough displacement requiring immediate, mid-term and long-term strategic responses.

Gray’s Inn Road / Euston Road (Off-sales and Late Night Refreshment)

Along the southern pavement of Gray’s Inn Road, as it merges into Euston Road, there are: five licensed convenience stores, six Late-Night Refreshment (LNR) premises, and seven late-night restaurants (18 licensed premises overall). All are licensed by Camden.

These premises present as the most densely clustered in the area. We assess this density of supply to have a cumulative impact on the Licensing Objectives in three ways: 1.) It provides ready access to off-sales alcohol, thereby facilitating unsupervised street drinking, including on the Kings Cross Station Piazza. The facilitation of street drinking encourages increased and unregulated alcohol consumption, street fouling and detritus, and increases the risk of negative crime and disorder, emergency health and public safety outcomes. 2.) Access to late-night off-sales and takeaway food encourages delayed departures from the area amongst groups of people who have already consumed large amounts of alcohol. 3.) Access to off-sales alcohol after and before attending on-trade premises increases overall levels of consumption amongst some visitors, leading to more problems in and around on-trade premises and on pathways, public transport and local and outlying residential communities late at night9.

Our research on Gray’s Inn Road and Euston Road found that non- compliance with hours-of-sale restrictions on alcohol off-sales remains a concern. With full compliance, sales of alcohol in this location would cease at 01.00. This would usefully reduce the plentiful supply of alcohol

9 Hadfield, P. (2004) ‘The Prevention of Public Disorder’ in P. Kolvin (ed.), Licensed Premises: Law and Practice. 1st edition. Haywards Heath: Tottel.

In order to prevent further deterioration of the street scene to the detriment of the Licensing Objectives, we recommend that sustained licensing enforcement action be taken in relation to licensed premises operating in the late-night period along the southern pavement of Gray’s Inn Road and Euston Road. There is a small and specific section of concern that runs from the junction of Gray’s Inn Road and St Chad’s Street, west to the junction of Euston Road with Argyle Street.

This report does not recommend the application of a SPA to any part of Kings Cross/St Pancras/Euston at this time.

We do recommend that Camden consider the possible future creation of a SPA which applies to off-sales and Late-Night Refreshment (LNR) premises-only within the small and clearly-designated area noted above. This action may be considered appropriate if it is found that the negative cumulative impacts of Licensable Activities cannot be resolved in other ways; primarily through sustained enforcement action and advice to licensees.

2. Kentish Town

Key Statutory Licensing Objective for the area: Public Nuisance

Key features of the social environment

Kentish Town contains a growing concentration of licensed premises based around food offers and also a music and sports-centred pub and bar scene. During the six-month course of our fieldwork, three new on-licensed premises opened on Kentish Town Road and one further venue was extensively re-furbished. These investments indicate that the area’s ENTE may be undergoing further, quite rapid, development.

Several of the licensed premises on Kentish Town Road are of large physical capacity and are young adult and music-focused, attracting a similar clientele to many of the venues within the Camden Town SPA. Saturday nights were not always the busiest nights of the week in the area. Thursday nights appeared popular with a local audience who attend events such as comedy nights and live music nights at the various public houses. The ENTE serves this local population, particularly on weeknights and in the evening period, thereby adding

© Phil Hadfield 19 to the array of local shops and services which afford the area an ‘urban village’ feel. Although the ENTE has tangible local amenity benefits, the high density of residential properties along the strip of Kentish Town Road and directly to either side of this thoroughfare make the area especially sensitive to public nuisance impacts.

In comparison with our other study areas, we found less evidence of an ‘after-work’ drinking and dining culture on Kentish Town Road. This is most likely to be a simple case of the area being more peripheral and not sitting amongst large centres of employment in the same way as the other three locations. Seven premises were seen to be operating until 02.00 or later in our patrol area on Friday and Saturday nights (with reduced numbers on other nights of the week). All of these late-night premises are licensed by Camden (one pub, four takeaway restaurants, one health spa, and one live music venue). There are two convenience stores with unrestricted closing times, although these premises, and all other shops in the area, are licensed to sell alcohol no later than 23.00. Pubs and bars traded on occasions (for example, over Bank Holiday periods) until 03.00 hours. Checks with the client’s Licensing Team create doubt as to whether Temporary Events Notices (TENs) permitting late-night trading were obtained in all the instances of occasional later trading we noted at premises in the area (although further investigation would be needed to establish the facts).

Notable licensed premises in the area

The Forum The Forum is a renowned live music venue, which attracts large crowds to Kentish Town at night on an ad-hoc basis relating to its events calendar. The Forum is by far the largest capacity on-trade premises in the area; these premises appear well-managed (based on external features such as queue supervision, dispersal management, and noise breakout), although they deal with large numbers of customers, so some environmental impacts are inevitable. Large events at The Forum occasionally brought many more people into the area, with associated noise and congestion. The majority of event attendees proceeded to walk south when leaving The Forum and many then attended the Late-Night Refreshment premises on Kentish Town Road. A high proportion walked south along the whole length of Kentish Town Road to enter the Camden Town SPA in pursuit of further entertainment.

These impacts differed markedly depending upon the popularity and type of event that was hosted. Some crowds attending music events may be themselves vulnerable to predation due to their early-teenage status and not of an age to be served alcohol. The young adult ‘clubbers’ who were seen to attend some of the other events at the premises presented quite different security and safety management challenges.

The Forum is operated on an irregular basis in accordance with its events listing. This complicates matters. Most events close by around 23.30; a few extend to 03.00, and one event on Friday 8 May extended to 06.00. It is reasonable to expect faster dispersal of the later-night events following introduction of the 24- hour weekend tube services. However, this assumption is based upon the continuation of current licensing arrangements at surrounding premises. The impacts of night tube require careful monitoring here and indeed across the Borough.

The Abbey Tavern

The Abbey Tavern at 124 Kentish Town Road is a large capacity public house located on the eastern side of the street at the corner with Bartholomew Road. The premises trade until 01.00 on Fridays and Saturdays with midnight closure on all other nights, including Sundays. The Abbey Tavern consistently presented as the busiest night-time licensed venue on Kentish Town Road. The premises have a heated and covered beer garden and roof terrace. DJ-nights and live bands are a feature of the offer. The premises attract a young adult music-loving crowd.

Late-night takeaways (several independents)

Kentish Town Road has four late-night takeaway outlets that attract people who have been drinking and thereby delay dispersal from the area when pubs, bars and events close. Some of these LNR premises, most notably Kentish Delight, were seen to attract significant additional business when customers left The Forum.

McDonalds

A McDonald’s restaurant is positioned at the corner of the western side of Kentish Town Road and Holmes Road at number 295. These premises are open until 01.00 daily and due to their consistently later trading hours often presented as the hub of activity on Kentish Town Road in the evening and at night. Despite their late-night-hub status, it was not apparent that the premises employed door supervisors. Security duties, when required, appeared to be performed by the Duty Manager.

Particular environmental features of the area:

Street drinking and alcohol off-sales

There is a small public square with bench seating located at the junction with Leighton Road, just north of the Kentish Town LU station and directly opposite The Assembly House pub. This was the only public space that might potentially accommodate static street drinking by groups in our patrol area and no evidence of this was found. We noted prominent warning signs in the square to deter street drinking. These notices, attached to the framework of the palisade shelter, informed the public that the area was part of a “controlled drinking zone” (PSPO) supported by fines from the police. In general, Kentish Town Road presented as a thoroughfare rather than a gathering point. Persons, including customers of the licensed premises on Prince of Wales Road, were seen moving south-to-north and north-to-south between Prince of Wales Road and Kentish Town Road via Anglers Lane. This route is used as a pedestrian shortcut between the two streets, entering or leaving Kentish Town Road near to Nandos (227-229 Kentish Town Road). On occasions, we saw pedestrians carrying bags containing off-sales alcohol on Anglers Lane, sometimes swigging directly from bottles and cans. These were the street drinking behaviours of persons on the move; those destined for private parties, homes and on-licensed premises. We found no evidence of street drinkers congregating in the residential streets adjacent to Anglers Lane, such as Alma Street, Raglan Street and Willes Road, or on Anglers Lane itself.

Up until 23.00 there is much availability of relatively cheap alcohol from shops and supermarkets. This offer is used by ‘pre-loaders’ on their way to on-licensed premises in the Camden Town SPA, others who appear to be en- route to parties in private dwellings and occasionally by more static homeless street drinkers. Many people were seen carrying and/or drinking from bottles and cans of alcoholic beverages on the street. By far the majority of these street drinkers were groups of young adults engaged in the nightlife of the area, or on their way into Camden Town.

Violent incidents in public spaces in this part of North London at night remain, thankfully, rare and therefore not always apparent to street-level observational research. Instances of low-level disorder, anti-social behaviour / pro-social behaviour, discreet noise events and public safety issues, by contrast, form the staple of such in-situ recording. Minor instances of disorder, drunken antics, inebriation / physical incapacity through drink, shouting, and lurching/staggering gait were apparent on all our visits to the area.

Kentish Town Road has high levels of vehicular traffic and is subject to congestion due to large lorries parking to make deliveries of stock to supermarkets. As in Kings Cross, road traffic safety was notably placed at risk in some instances of pedestrian drunkenness.

Police activity

Kentish Town Police Station is located close to Kentish Town Road at 12a Holmes Road, a street that stretches west from the western flank of Kentish Town Road, just south of the LU station and directly behind McDonalds. The proximate location of the police station goes some way to explain why officers were seen at regular intervals, mostly in pairs, walking up and down Kentish Town Road. We did not witness any static police guarding of particular locations in Kentish Town, nor did we see more than half-a-dozen responses to incidents. Most of the police officers we saw on the street appeared to be on their way either too, or from, the Camden Town SPA.

Residential amenity

The area has a big residential population with a wide-range of housing types, including large social housing schemes, a sizable private rental market (particularly for flats) and streets adjacent to Kentish Town Road containing high-value owner-occupied period terraced properties. As noted, Anglers Lane is a small interconnecting road and pedestrian cut-through (short-cutting desire line) which links Prince of Wales Road and Kentish Town Road. It contains potentially noise-sensitive low-rise period terraced housing with traditional bay windows and single glazing on Alma Street, Raglan Street and Willes Road. Kelly Street has similar architecture and is also directly accessible from the western flank of Kentish Town Road. Although we often saw Anglers Lane used by individuals and groups carrying drinks - sometimes open drinking vessels - we found no evidence of street drinkers congregating here, or on the surrounding residential streets.

Summary

Kentish Town Road has a low-key ENTE, mostly serving local residents, with the occasional influx of much larger visitor footfalls relating to events at The Forum. The area’s proximity to the Camden Town SPA, with its cluster of late- night attractions, encourages journeys on foot along Kentish Town Road. These journeys were often seen to involve ‘pre-drinking’ (when southbound) and ‘post- drinking’ (when northbound) with alcohol obtained from off-sales sources.

The ENTE appeared to have particular attraction value for local residents on Thursday nights (when several venues ran special promotions such as ‘comedy nights’ and live music events). Weekend evening use of venues in the area was more prominently as ‘pre-drinking destinations’ ahead of later transfers on-foot, tube, or bus, into the Camden SPA. The clearest evidence to suggest that Kentish Town has a significant attraction value for ENTE patrons from other areas of London is the ‘swamping’ of the area that occurs when large numbers of people disperse from live music / club night events at the area’s largest licensed venue, The Forum. These scenes arise on a sporadic basis relating to The Forum’s events’ calendar. There is evidence, however, that Kentish Town is developing its drinking and dining offer and may, in the near future, begin to experience a greater influx of people from outside of the immediate area on a more routine basis. Kentish Town certainly has extensive public transport provision at night to facilitate any such expansion.

Only one on-licensed premises at 65 Kentish Town Road (Quinn’s public house) at the very south of the area, trades routinely beyond 01.00. Post-01.00 trading is limited to occasional events at The Forum, four fast-food takeaways, and bars/public houses that have (or should have!) applied for TENs. None of the off-sales outlets are licensed to sell alcohol beyond 23.00. We found no direct evidence of non-compliance with these trading hours, although checks were conducted on one night only in July.

Licensed premises in Kentish Town, therefore, close relatively early compared with premises in the current Camden SPAs. When one walks south from Kentish Town into the Camden Town SPA from 01.00 onwards, the difference in activity levels and observable negative impacts of Licensable Activities is quite dramatic.

Despite venue closing times being quite restrained in comparison with our other research sites, conflicts of amenity between the Kentish Town ENTE and local residents are likely to be chronic. This is due to the extent of residential presence in upper floor flats on Kentish Town Road itself and also in the many wholly residential streets to the east and west of the Kentish Town Road, along its entire length. The area is predominately residential in nature; Kentish Town Road being an anomaly in having a strip of commercial premises.

There is certainly some displacement of public nuisance into Kentish Town from the Camden Town SPA. The area suffers from the displacement effects of noise / nuisance, street fouling and street drinking detritus associated with the Camden Town SPA, as pedestrians walk up and down Kentish Town Road to access and exit the SPA. The most prominent issue is people who have been drinking loosing their inhibitions and being thoughtlessly noisy as © Phil Hadfield 24 they make their way home through residential streets. In comparison with our other sites, it is more a case of local people from within the Kentish Town community annoying their neighbours, rather than influxes of transient visitors. The most likely exception to this would be in the case of popular late-night events at The Forum. Also, as a result of recent venue openings and re- developments, we may be on the cusp of Kentish Town achieving enhanced status as a North London ENTE destination.

Kentish Town is an ‘urban village’ within North London, with a high proportion of residential properties and with commercial high street-style amenities found predominately on the single strip of Kentish Town Road. Different communities, including residential communities, have different views and different tolerance levels with regard to alcohol-related anti-social behaviour at night10. However, any general shifts towards later hours for licensed premises and increased numbers of such premises, in what is a generally quiet neighbourhood of long- standing, may be of understandable concern to local residents if the attraction value of the area’s ENTE grows.

Recommendations

Currently, the key Licensing Objective at stake in Kentish Town appears to be Public Nuisance and particularly noise-related nuisance. A difficulty faced in this case is that of attributing the harms of public nuisance to the customers of licensed premises operating within Kentish Town itself. Local licensed premises are not that great in number and few operate beyond 00.30. The main theme of the late-night noise nuisance is that of pedestrian movements into and out of the Camden Town SPA to the south. To this extent, Kentish Town suffers from the negative externalities of the Camden Town ENTE, which draws in much higher numbers of people than its own night- time attractions. Kentish Town’s proximity and easy access to the Camden Town SPA results in the negative effects on residential amenity that are commonly recorded on the routes and pathways in and out of popular destination locations for nightlife. Where what is recorded is displacement activity from a neighbouring area, the attribution of negative effects of Licensable Activities to the customers of specific licensed premises becomes extremely difficult; if not impossible.

Nonetheless, there are alcohol-related and licensed premises-related issues in and around Kentish Town Road and particularly in the section of our patrol area north of Prince of Wales Road. This is supported by the MPS hot-spot crime mappings and ambulance call-out data. To the extent that these problems can be attributed to local premises, it would most likely be off-sales premises – those supplying the street drinkers – which would be the relevant outlets for regulatory attention. It seems most likely that the contribution of locally-purchased alcohol to local levels of alcohol-related crime and disorder occurs in relation to the activities of mobile street drinkers and also in the case of large influxes of persons attending late-night events at

10 Taylor, J., Twigg, L. and Mohan, J. (2015) ‘Understanding neighbourhood perceptions of alcohol-related anti-social behaviour’, Urban Studies, 52/12: 2187-202.

The Forum.

Licensing Authorities and their partner agencies have, of course, many powers that can be applied in the case of any problems arising at individual licensed premises. These controls can be applied on a case-by-case basis as the need arises. This is likely to be a preferred approach in Kentish Town, where the creation of an area designation that applies to all existing and proposed licensed businesses within the relevant geography might be only weakly justified.

A key opportunity in the case of noise control measures would be the ability of the Licensing Authority to impose relevant Conditions on a Premises Licence in the case of a Review. Such opportunities would equally arise in the deliberation of new licence applications and licence variation applications. Local residents or residents’ associations who made Relevant Representations would have the opportunity to have their concerns heard and considered as part of deciding the package of measures applied to certain premises.

In terms of active place management we would recommend the following actions be considered:

 Careful scrutiny by the Environmental Health Team (and the MPS) of Temporary Event Notice (TENs) applications by on-trade premises, particularly regular and repeated TENs applications, which can be made up to 15 times per annum under current regulations.  In respect of off-sales. Currently, no premises are permitted to sell alcohol beyond 23.00. Where intelligence suggests there is non- compliance, premises may be subject to regular monitoring to ensure that they are not conducting after-hours sales.  One of the core local issues is people drinking from open bottles and cans whilst walking the streets. The Borough-wide Public Spaces Protection Order (PSPO) affords Police Officers and PCSOs the power to confiscate alcoholic drinks from persons on the street in the case of anti-social and disorderly behaviour. There is a strong case for greater enforcement of the PSPO on Kentish Town Road, Anglers Lane and Prince of Wales Road in order to reinforce acceptable standards of public behaviour.  Kentish Town would benefit from the development of a food or non- alcoholic beverage-based café culture with active frontages, where possible. Such uses might be encouraged in circumstances and at hours that do not impact negatively on residential amenities. In Central London, Charlotte Street, Great Titchfield Street and Marylebone High Street might be cited as examples of areas where something akin to this situation already pertains.

This report does not recommend a SPA designation to any area of Kentish Town at this time.

We would advise that the number of licensed premises - taking into account the whole strip of Kentish Town Road, from a patrol area starting from Hawley Crescent, through to the Forum on Highgate Road - is most likely insufficient to present a robust evidential basis for such a designation. © Phil Hadfield 26

In the case of localised impacts from within Kentish Town, we did not find evidence to suggest that problems were arising as a result of the number or density of licensed premises. In current Statutory Guidance to the Licensing Act 2003, these are the only relevant criteria for the demarcation of a SPA.

Licensing records indicate there should be no off-sales on Kentish Town Road beyond 23.00. Regardless of the potential opportunities for ‘stockpiling’ alcohol, we feel it is important to maintain these hours in contributing to the management of Public Nuisance, given the highly residential nature of the area.

3. Tottenham Court Road / Charlotte Street / Goodge Street

Key Statutory Licensing Objectives for the area:

Public Nuisance Crime and Disorder

Key features of the social environment

1. Tottenham Court Road

Tottenham Court Road is primarily a thoroughfare for ENTE activity, being a key entry and exit point for visitors to the West End. Its natural gathering points are at Burger King to the very south, at northbound night bus stops on the western flank of the road and outside a small number of licensed premises; those with outdoor tables and chairs. There is a small public square with bench seating just to the north of Tottenham Street which is used by homeless persons at night for rough sleeping, some of whom were seen drinking alcohol whilst seated in this location. This square is only dimly-illuminated and was not observed as a congregation point for persons involved in nightlife leisure activity. The road traffic restrictions due to occur on Tottenham Court Road will improve pedestrian accessibility during the day-time, but will not apply after 19.00. As a result, we do not anticipate any significant changes in the public use and functions of Tottenham Court Road at night; although Crossrail 1 is widely predicted to create a large upturn in localised footfall. 30 licensed premises were recorded on or directly-around Tottenham Court Road. These premises were mixed in nature and functions and spatially dispersed. There is no discernable cluster of ENTE premises on Tottenham Court Road based on current development patterns. Seven premises were seen to be operating until 02.00 or later in our patrol area on Friday and Saturday nights (with reduced numbers on all other nights). These comprise: three LNR premises, one café/restaurant with table service, one casino bar, one hotel bar and one Gentleman’s Club. A further four premises close as late as 01.00-01.30 on Fridays and Saturdays; these comprise two pubs, one bar, and one lounge bar attached to a restaurant. There are no premises licensed to serve off-sales alcohol beyond midnight (although the research team obtained a failed test purchase at one of the two stores that remain open late at night).

Notable licensed premises in the area

Spearmint Rhino

The most prominent larger licensed premises on Tottenham Court Road are the Spearmint Rhino Gentleman’s Club. These premises are also notable for being one of the last to close, with operations routinely proceeding into the early hours of the morning. We noted one isolated incident of public nuisance involving a group of customers of Spearmint Rhino.

Other notable issues

Where street drinking was apparent in the area this was mostly the case of individuals and groups drinking from bottles and cans as they walked southbound in the pre-midnight period. Saturday 6 June was the evening of a football Champions League match between Barcelona and Juventus at Berlin’s Olympic Stadium. This game was shown on large screens at several pubs and bars in our Tottenham Court Road/Charlotte-Goodge Street patrol area. This sporting event had the notable effect of significantly increasing the numbers of persons attending these premises in comparison with our other visits. The evening in question was also warm and dry. This combination of factors gave rise to an increased amount of noise nuisance in the two areas, particularly after completion of the game and at premises’ closing times. We did not, however, witness any more serious incidents of crime and disorder associated with the additional activity from sports fans. During the period of our observations we became aware of the re-emergence of mobile hot-dog vendors on the streets late at night. These vendors had been largely absent from the West End for a number of years following earlier enforcement activity. Hot dog vendors were apparent in our Tottenham Court Road, Holborn and Kings Cross patrol areas. In all instances, these street traders chose to stand near to Night Bus stops; these being the locations containing the largest congregations of static persons on the streetscape. In the case of Tottenham Court Road, a vendor was noted consistently from midnight onwards, on the western pavement, adjacent to the junction with Hanway Street, which lies just below the southernmost bus stop.

2. Charlotte Street / Goodge Street

The local food and drink scene in these streets is, in fact, even busier than our listings suggest as there are many other cafes which do not serve alcohol but which operate into the evening period, together with outdoor seating (a particular feature of this area). As noted above, our listings cover only those premises that operate beyond 20.00. Three premises in the area operate beyond 01.30 (two are licensed by Westminster, one by Camden) and these lie on the outskirts of the cluster. Most premises in the cluster operate no later than 23.30. At the time of writing, Camden are considering an application for an extension of hours from midnight to 01.00 for one of the four drink-led bars in the area. All other premises close by 00.30 at the latest. There are fewer variations in advertised closing hours across the week in comparison with our other three areas. This reflects the focus on customers who attend after-work, Monday-Friday. The cluster is unusual in having so many premises with active frontages, primarily achieved through seated outdoor drinking and dining. The relatively slow movement of road traffic on the two main streets compliments this use, thereby assisting the creation of a vibrant but relaxed atmosphere. The après-work socialising aspect, combined with extensive use of outdoor tables and chairs, is comparable to the social scene found in and around Marylebone High Street, an area of the City of Westminster which lies approximately 1-mile to the north west. There are no notable larger-capacity licensed premises within the cluster, such as live music venues or nightclubs. Nonetheless, the combined capacity of the 57 licensed premises is undoubtedly considerable. It is understandable that local residents may express concern about the scale and speed of investment by licensed businesses (it appeared that many of the premises were recently developed or re-vamped) into this small geographical location in Fitzrovia. On the basis of our observations, it appeared that premises within the cluster were generally well-managed (based on external features such as door supervision and noise breakout). We did not observe incidents of violence, street crime, or serious disorder in the area. The noise impacts we encountered related to alfresco dining and drinking to the frontage of various licensed premises and to the departure of customers from the pubs and bars at closing time. The former issue was more apparent from April onwards than in the earlier, colder, months of our study. The latter issue may be considered in the context of what is typical for Central London. In general terms, premises in this cluster close earlier than their counterparts in Seven Dials. They also close earlier than what we found to be the norm in our other study areas. We found little evidence of street drinking and associated detritus in the vicinity of this cluster. This is likely due to the high levels of natural surveillance afforded by the active frontages and also the general absence of immediately-accessible off-sales alcohol and fast-food.

Cross-borough boundary effects

The premises in this area cluster at the cusp of the Camden-Westminster boundary. Premises across both boroughs form a 'natural area' of attraction for ENTE visitors. The City of Westminster’s ‘West End Stress Area’ (WESA) Cumulative Impact Zone stretches as far north as the southern section of Rathbone Place, a street immediately south of Charlotte Street. Restrictions on new premises’ openings and licence variations in this nearby section of Westminster may have encouraged a displacement of investment into the Charlotte Street / Goodge Street nightlife hub: that is, into streets within Westminster and Camden that lie outside of the SPAs of both Licensing Authorities.

The cluster is so integrated across the two boroughs (with the boundary lines dissecting the main thoroughfares) that it is not possible to identify displacement effects relating to public behaviour and the use and functions of specific premises. At present, the premises within Westminster trade to a similar, mostly food-led, format as their Camden neighbours.

Recommendations

a) Tottenham Court Road

Our patrol area encompassed Tottenham Court Road in its entire length, together with adjoining streets to the west and east where licensed premises were visible from Tottenham Court Road. 30 licensed premises were recorded on or directly-around Tottenham Court Road. These premises were mixed in nature and functions and due to the length of this major thoroughfare, spatially dispersed.

There is no discernable cluster of ENTE premises on Tottenham Court Road, based on current development patterns. The number and location of premises in and around Tottenham Court Road itself does not create the conditions wherein these premises, in and of themselves, generate negative cumulative impacts within the surrounding public realm. For this reason, we cannot commend Tottenham Court Road as a suitable candidate for SPA designation.

It should be noted that this is not to say:

1. That the area does not suffer the effects of the cumulative impact of Licensable Activities. We found evidence to suggest that it does. However, the impacts are ‘displacement effects’ from other areas to the south. These occur on Tottenham Court Road as a result of it being a key ‘pathway’ for ENTE patrons dispersing from wider areas across the West End late at night.

2. That licensed premises operating on Tottenham Court Road do not sometimes impact negatively on the licensing objectives, as a result of their management styles and the behaviour of their customers. We noted such instances. These were, however, premises-specific effects, not cumulative © Phil Hadfield 31 impacts arising as a result of the premises forming part of a cluster of similar premises.

3. That future premises’ developments and commercial re-positioning will not give rise to the generation of cumulative impacts specific to Tottenham Court Road in the future. Such is the speed of Central London’s re-development, the popularity of Fitzrovia as a residential neighbourhood and leisure destination, and the increasing connectivity of the area to public transport, that this must be considered a distinct possibility.

We do believe that, to help improve community safety at night, some other actions should be considered: Public Square: Improved lighting. The area contains a public square with bench seating just to the north of Tottenham Street. This space is directly visible and accessible from Tottenham Court Road. We noted that the square was poorly illuminated at night and was occupied by homeless street drinkers and on some occasions by other static persons who exuded a somewhat menacing presence. Much brighter illumination of the area at night, so that activities therein come ‘under-the-spotlight’, would, we believe, be a simple but highly effective target-hardening measure that would also help reduce the fear of crime. Night Bus stops: Improved lighting and CCTV. Given the very high levels of customer usage at night and their status as key congregation points, we would also recommend improved lighting and the installation of CCTV at Tottenham Court Road’s Night Bus Stops.

b) Charlotte Street / Goodge Street

We would add a note of caution, however, given the combined capacity of the 57 licensed premises now trading within this confined geography. It is important to consider how negative cumulative impacts could arise in the circumstances of the operators of licensed premises making commercial decisions to trade to later hours and adopt a more drink-led business format. There are some signs of a trend towards the restaurants developing cocktail bars with DJ-entertainment / dancing / vertical drinking space, in areas of their premises that are spatially divided from the dining area and separately branded. Further trends in this direction may become apparent in the case of licence variation applications. We recommend that Licensing Officers within Camden track and monitor such applications with care, whilst also seeking to consider the comments of local people in particular detail. Due to the size of the existing licensed estate it is especially important that the right balance be struck between potentially competing interests in this location. It will only be through maintaining such balance that the unique attractions of the area will be sustained. The sharing of jurisdiction with Westminster concerning the regulation of premises in this cluster undoubtedly means that Camden lacks the tools to shape the area as a whole in the ways it might wish to. It is unclear if Westminster have identified Charlotte Street / Goodge Street as an emergent ENTE cluster. The cluster lies just to the north of Westminster’s WESA CIZ, the boundary of which cuts across the mid-section of Rathbone Place. One might speculate as to whether some of the development of the cluster has occurred as a result of the displacement of entrepreneurial energy and investment from the WESA and possibly other CIZs, including Camden’s own Seven Dials.

We would recommend establishing dialogue with Licensing Officers at Westminster concerning issues arising within the Charlotte Street / Goodge Street cluster. This dialogue would concern the cluster’s future governance, including monitoring the direction of further development and close evaluation of data measures (on a cross-borough area-wide basis) relating to the licensing objectives.

4. Holborn

Key Statutory Licensing Objectives for the area:

Crime and Disorder Public Nuisance

This patrol area contains three distinct sections:

1. High Holborn (west): The section of this street to the west of Kingsway that forms part of the Seven Dials SPA.

2. New Oxford Street / Bloomsbury Way: These two streets lie within the Seven Dials SPA, with the exception of the northern flank of New Oxford Street, west of the junction with Bloomsbury Way. The streets in question include junctions with Shaftesbury Avenue and Bloomsbury Street which provide direct access to Covent Garden to the south.

3. Kingsway / Southampton Row/ High Holborn (east): The western flanks of Kingsway/Southampton Row are within the Seven Dials SPA, between the junctions with Kemble Street to the south and Bloomsbury Place to the north. The eastern flanks of these streets, together with that section of High Holborn that lies east of the junction with Kingsway, are outside of the SPA boundaries.

Key features of the social environment

Late-trading hours for licensed premises are more prevalent in this location than in our other patrol areas (with the exception of Tottenham Court Road). This reflects the area’s more central location, with concentrated commercial, retail and leisure uses and observably larger ENTE visitor footfalls. In comparison with the other areas, we also found more direct displacement of visitor activity from an existing Camden SPA: the Seven Dials SPA (and also, in the case of New Oxford Street, from Westminster’s ‘WESA’ Cumulative Impact Zone). New Oxford Street and Kingsway are key exit points by Night Bus for visitors to the West End. They are also proximate to Tottenham Court Road and Holborn LU stations respectively. These are major exit points for theatregoers and after-work ENTE patrons, up until 00.30. Following the introduction of night tube services the LU stations will, of course, share a proportion of the post-00.30 exits of visitors, licensed premises staff and other night workers.

High Holborn (west)

A number of cafes and casual-dining restaurants have opened in the vicinity of Holborn LU station, particularly along High Holborn, in recent years. This expansion has emerged mostly to serve local office workers in the day-time and after-work evening period. On High Holborn it has not translated, thus far, into a late-night pub/bar/club scene. There are two bars / pubs operating to 01.00 or later on High Holborn and two LNR takeaways operating through the early morning hours. There is no off-sales alcohol provision after 23.00; although we recorded a test purchase failure after midnight at one of three nearby outlets.

The most prominent premises operating in the late-night on High Holborn at the time of writing were the bar and restaurant at the ‘Hoxton Holborn Hotel’. These facilities were in-vogue and attracting large numbers of non-residents.

New Oxford Street / Bloomsbury Way

There are two bus stands on the northern flank of New Oxford Street close to the junction with Tottenham Court Road. Both bus stands attract large crowds of people late into the night; the crowds primarily consist of young adults who have attended licensed entertainment and LNR venues in the West © Phil Hadfield 35

End (both Camden and Westminster). There is a propensity for people to run, often whilst shouting and screaming, from west-to-east along New Oxford Street, as they attempt to arrive at the bus stops in time to catch soon-departing Night Buses. When observing these bus stops we consistently encountered large amounts of littering, comprising fast-food packaging and street drinking detritus. Also observed on New Oxford Street near to the bus stops, from around midnight onwards, was a man running a mobile hot dog stand, hoping to attract custom from those attending the bus stops. This immediate location, although just outside the Seven Dials SPA boundary, was found to contain the most consistently intense late-night usage by ENTE patrons of all areas researched within this study. There are four on-licensed premises operating to 01.00 or later on New Oxford Street / Bloomsbury Way, together with one LNR takeaway operating to 04.00. The two convenience stores with off-sales in the area trade late at night, although they are not licensed for the Sale of Alcohol beyond 23.00. Our investigations suggest non-compliance with these time restrictions arising in respect of both these premises. Furthermore, there appears to be a link between alcohol sales from these outlets and street drinking. Street drinking involving groups that were static and groups and individuals on the move, was noted at frequent intervals.

A key location for street drinking is the terraced area occupying the triangular block formed by the junctions of Shaftesbury Avenue, Bloomsbury Street and New Oxford Street. This fully-paved public space lies directly opposite the two licensed convenience stores. We found the area to be heavily littered with street drinking detritus on each occasion we visited. Groups of persons were seen drinking alcohol whilst seated in this location on several occasions from May onwards.

The most prominent licensed premises operating in the post-midnight period is the British Luxury Club (BLC) at 55-59 New Oxford Street on the southern side of the street, at the corner with Dyott Street. Alcohol service hours on the Premises Licence run until 06.00, making this venue a potential draw for after-hours clientele moving from other premises in the early hours of the morning (in 2014 the premises were marketing themselves as an after-hours club, operating Tuesday-Saturday, 03.30-07.00). Our experience was that the premises began operating from around 22.00, closing at around 03.30-04.00. The premises were especially popular with young adult clubbers, a large proportion appearing to be from South East Asian communities. Queues formed outside the premises on Dyott Street and were a constant presence throughout our observation periods. Dyott Street was also used as the premises’ outdoor smoking area. These activities were heavily policed by a team of door supervisors and our impression was that the venue was selective as to who was permitted entry, based upon the gender-mix of groups (all male groups denied entry) and levels of prior intoxication.

Kingsway / Southampton Row / High Holborn (east)

There are two pubs / clubs operating to 01.00 or later in the immediate vicinity of Kingsway / Southampton Row, two LNR cafes/takeaways and one unlicensed (no-alcohol) café/restaurant operating into the early morning hours. We found no off-sales alcohol outlets within this micro-location of our patrol area (apart from Sainsbury’s on the junction with High Holborn (west), which closes no later than 23.00).

A key feature of the night-time scene in Kingsway, on both sides of the street, is the proximity of the Seven Dials SPA. Kingsway, much like Tottenham Court Road, is an important exit point for visitors leaving the West End by Night Bus. Late at night, the pedestrian flow on streets such as High Holborn (west), Parker Street and Great Queen Street is notably west-to-east, as the customers of licensed premises located within the Seven Dials SPA walk towards the bus stops on the west and east flanks of Kingsway, located just south of Holborn LU Station.

Great Queen Street, in particular, is a popular direct-exit route for visitors to Covent Garden. Moreover, the street itself has a cluster of popular high- capacity licensed premises, including Sway, the Grand Connaught Rooms and the Red Rooms lap-dancing club, whose customers naturally feed into Kingsway as the most convenient exit route.

Patrons of the Seven Dials SPA are also drawn to Kingsway and High Holborn (east) by the area’s three late-night cafes / takeaways; these premises are often attended by visitors ahead of their homeward journeys.

Notable licensed premises

The Shakespeare’s Head

The Shakespeare’s Head is a large public house on the eastern side of the street at Africa House, 64-68 Kingsway, opposite the junction with Parker Street. The premises are operated by national pub chain J. D. Wetherspoon Plc; operating hours are to 01.00 Friday and Saturday and to midnight on all other days, including Sundays. The premises are located very close to a Night Bus stop. This was seen to create something of a bottleneck on the pavement, wherein customers who were stood outside the pub mingled in close proximity to persons waiting at the bus stop.

Overview

Several important ENTE facilities in this location are to be found just outside the SPA, on the eastern flank of Kingsway and on High Holborn (east). High Holborn (east) stretches from the crossroads junction of Kingsway/Southampton Row and High Holborn. In these locations east of the SPA, one finds a bus stop providing four Night Bus services, The Shakespeare’s Head, Holborn LU station (soon to provide 24-hour services at weekends), a McDonalds restaurant which operates 24/7, and an unlicensed Lebanese restaurant/takeaway with outdoor shisha smoking, that operates into the early hours. The presence of a mobile hot dog vendor, who positioned himself from midnight onwards next to the Night Bus stop on the eastern flank of Kingsway, served to underline the importance of this location as a major exit point for ENTE visitors. Hot dog vendors choose their locations with care and on the nights of our research only four locations were chosen: these being, the Night Bus stops on Tottenham Court Road (south, western pavement), New Oxford Street (west, northern pavement), Kingsway (north, eastern pavement) and in Kings Cross, Pentonville Road (west, south pavement; also lying between the two largest licensed premises in that area).

Recommendations

1. Action on street drinking

Unsupervised street drinking was found to take place on the terraced area occupying the triangular block formed by the junctions of Shaftesbury Avenue, Bloomsbury Street and New Oxford Street. This public space lies directly opposite two licensed convenience stores. We found the area to be heavily littered with street drinking detritus and often occupied by groups of persons stood or seated whilst drinking in this location. These activities occur despite a warning sign indicating that police have the power to confiscate alcohol from persons drinking in this area and to impose an associated fine of up to £500. The presence of the sign indicates that the area is subject to a Public Spaces Protection Order (PSPO); a power which, in fact, applies to the whole of the Borough of Camden.

We recommend:

PCSO / Police enforcement of the PSPO in response to anti-social behaviour associated with drinking at this location. Even in the absence of anti-social behaviour, large drinking gatherings in this space should be discouraged by regular police disruption and dispersal. Intelligence-led licensing compliance operations in nearby off-sales premises. ‘Action Plans’ for non-compliant premises, pending the option to Review specific Premises Licences. © Phil Hadfield 38

2. Action on improved street lighting

Levels of illumination on New Oxford Street are notably lower than that found on other roads in Central London that have higher levels of vehicular traffic. New Oxford Street, by comparison, has routinely higher levels of pedestrian usage at night than many of these comparable thoroughfares. Pedestrians entering New Oxford Street encounter a comparatively gloomy environment. Low lighting adds to the feeling of the area being more neglected, unsupervised and potentially dangerous than its nearby surroundings. This atmosphere is compounded by the presence of overflowing waste bins, empty bottles and urine traces on the pavement near to the Night Bus stops. Much brighter illumination of the area at night, so that activities therein come ‘under-the-spotlight’, would, we believe, be a simple but effective target- hardening measure that would also help reduce the fear of crime.

3. Extensions to the Seven Dials SPA boundaries

a) New Oxford Street

We recommend that the northern flank of that section of New Oxford Street that lies to the west of the junction with Bloomsbury Way be brought within the boundaries of the Seven Dials SPA. The justification for this suggestion is that many of the cumulative impacts of Licensable Activities that may be attributed to the cluster of premises in Seven Dials are experienced at this location; indeed, more so than on the south flank of the street which already lies within the SPA.

As a result of the above considerations we recommend: a) That the eastern flank of that section of Kingsway that lies between the junctions with Sardinian Fields to the south and High Holborn/Southampton Row to the north, be brought within the boundaries of the Seven Dials SPA. b) That both flanks of High Holborn, east of the junction with Kingsway/Southampton Row, be brought within the boundaries of the © Phil Hadfield 39

Seven Dials SPA, as far as the junction with Proctor Street only.

The justification for these suggestions is that many of the cumulative impacts of Licensable Activities that may be attributed to the cluster of premises in Seven Dials are also experienced in these locations, just to the east of the current SPA boundary. The customers of premises within the Seven Dials SPA were observed to move towards the facilities on Kingsway (east) and High Holborn (east) late at night.

Moreover, these locations east of the current boundary have themselves licensed premises and transport facilities that form an intrinsic part of the Holborn ENTE and its interactions with the Seven Dials SPA. These are not therefore ‘displacement effects’; rather they suggest that the pattern of development and externalities of the Seven Dials SPA has involved expansion slightly to the east since the last evaluation of the SPA boundaries was conducted. These conclusions are likely to go some way toward explaining the slight movement eastwards in crime patterns, as recorded by the MPS and illustrated in the hot-spot mapping analysis conducted by the Camden Community Safety Partnership.

Our suggested adjustments to the SPA boundary, although small, would afford Camden more ability to control the development of licensed businesses in those locations where this matters most: areas of intensive late-night usage that form part of the established social and economic life of the Seven Dials SPA.

4. Reductions to the Seven Dials SPA boundaries

In reviewing the current Seven Dials SPA boundaries proximate to our patrol area we identified a further location where it may be justified to reduce geographical coverage. This area lies to the north of Bloomsbury Way, stretching as far as the south pavement of Great Russell Street, just below the British Museum. This northern section of the SPA is bounded by Bloomsbury Street to the west and Southampton Row, to the east, thus forming an oblong block when highlighted on a map. Within the streets in question, we did not find a concentration of licensed premises, nor did we observe much movement or interaction between this area and areas of the SPA to the south of Bloomsbury Way, where most of the Seven Dials ENTE is located. At present, Bloomsbury Square is encompassed by the SPA, although it contains no licensed premises. The most prominent premises within the SPA block in question are Salvador and Amanda on Vernon Place, the Museum Tavern on Great Russell Street, The Plough (public house) on Museum Street, Pizza Express on Coptic Street and Wagamama on Streatham Street. There are a few other small independent restaurants within the area, one off-licensed convenience store, and additional cafes open during the day-time. Outside of the SPA, just to the north and west, on Bloomsbury Street and Great Russell Street, there are further restaurants with night-trade. Apart from Salvador and Amanda, which is an outlier, located on the very edge of the area, none of the premises within this section of the SPA trade beyond midnight on any night of the week. A further factor we consider important is that the premises listed

© Phil Hadfield 40 above are not bunched; they are spatially dispersed. Our suggested amendments to the Seven Dials SPA boundary are illustrated in the following map. Current boundaries of the Seven Dials SPA are indicated by the blue line; the locations shaded red illustrate the two geographies we propose for consultation on extensions to the Seven Dials SPA boundaries; the area shaded green indicates the geography we recommend for consultation regarding its removal from the SPA:

Crosscutting recommendations for the four research areas

1. Enforce: enhance and sustain current Premises Licence arrangements

As part of this research, test purchases were made at late-trading supermarkets and convenience stores in the four areas to check if some premises were serving alcohol beyond the times permitted by their Premises Licence. Sales-of- Alcohol time restrictions are, of course, a long-standing mechanism to control the availability of alcohol at key hours and locations where public drunkenness (as measured by volume of alcohol consumed) is at its highest levels. National evidence and local evidence - for example, the on-street visitor drinking surveys conducted by this research team in the Seven Dials and Camden Town SPAs in 201011 – suggests that, on-average, unit consumption of alcohol amongst those ENTE visitors that remain in-situ, increases hour-by-hour up until 03.00 and beyond. It is important therefore that a general culture of compliance with permitted trading hours is achieved. The results of our test purchases – made at random times in late-trading premises – indicate currently high levels of non-compliance. The alcohol availability issue has greatest resonance for the most committed of drinkers; those ENTE patrons who seek out off-sales sources after leaving on- trade premises and alcohol-dependant street drinkers from the homeless population. Non-compliance with licensing hours by off-sales outlets provides access to additional consumption opportunities for these ‘hard- drinking’ sub-groups; fuelling public drunkenness on public transport and pedestrian journeys in the course of exits from central locations12. As a general rule, it is important to enforce existing licensing controls before imposing new ones13.

2. Finance: assess the Late-Night Levy and its suitability for Camden

The Late-Night Levy (LNL) provides a framework to derive private sector financial contributions to the costs of policing and other crime prevention interventions in the ENTE, as directed by councils and local police forces. The levy is set out in Chapter 2 of Part 2 of the Police Reform and Social Responsibility Act 2011 (the 2011 Act). In March 2016, the Home Office ‘Modern Crime Prevention Strategy’ announced plans to amend the law concerning LNLs in order to make the power “more flexible for local areas”. This followed a nationwide survey to obtain the views of Licensing Authorities on the “use and reform of the late-night levy” in 2015.

11 Hadfield, P., Noga, H., Large, J. and Jones, R. (2010) Visitor drinking, late-night refreshment and transportation in the Camden Special Policy Areas: Final Report to the London Borough of Camden. August 2010. London: www.philhadfield.co.uk. 12 Bellis, M. and Hughes K. (2011) ‘Getting drunk safely? Nightlife policy in the UK and its public health consequences’. Drug and Alcohol Review, 30: 536-45. 13 Hadfield, P. and Measham, F. (2010) Lost Orders? Alcohol and law enforcement in England and Wales: Final report to the Portman Group. London: The Portman Group. © Phil Hadfield 42

Camden Council consulted on the suitability of the LNL to the Camden context in 2015 and the introduction of the power was approved in January 2016, for implementation from April 2016. The findings of the LNL consultation were not informed by this report and the author did not have access to consultation responses. The author is of the opinion that the local consultations provide the most appropriate weighing of considerations in relation to LNL. This research was conducted wholly independently of the LNL consultation and the author does not seek to offer recommendations specific to this particular place management mechanism, based on the findings of this study alone.

3. Monitor: track the general direction of development within the ENTE

We recommend that Policy Officers at the Council, with the findings of this report and other evidence in mind, monitor the number and location of new Premises Licence applications and licence variation applications for late- night drink-led uses and for LNR, across the four areas. We would suggest that all new applications / variations for post-midnight Sales-of-Alcohol and LNR are flagged, recorded, and the resulting statistics reviewed, on a six-monthly basis. This will enable the Camden Community Safety Partnership to identify and track emergent ENTE development trends that are not always apparent when processing large numbers of applications from locations Borough-wide.

4. Think across boundaries: place management requires cross-borough collaborations

Nightlife in Central London is a cross-borough phenomenon and from the point of view of the consumer, the borough boundaries are an irrelevance. In the case of Camden this involves Islington in relation to Kings Cross, and Westminster in relation to Charlotte/Goodge Street, Tottenham Court Road, and New Oxford Street. The integrated nature of the areas in question, when viewed in terms of their attraction to ENTE visitors, involves making use of premises and services in ways that crisscross borough boundaries. As a result, any hot-spot mapping of alcohol-related incidents occurring within Camden boundaries-only will not show the full picture. There will always be elements of cross-borough spatial displacement involved in any true assessment of the ENTE and its social impacts. It is important for our clients to view these cross-border influences in terms of the limits of Camden’s jurisdiction and to consider how the Licensing Policy and general place management approach of adjoining Authorities may be impacting on Camden. These factors require an insight into how different parts of the Borough function as ‘places’, rather than as abstract spaces on a map. The observational research reported here provides some insight into these underlying qualitative factors and indicates potential parameters for cross-borough mapping and collaboration on ENTE themes; particularly, in key areas such as Kings Cross and Charlotte Street/Goodge Street.

5. Collaborate: on supportive services by extending ENTE partnership working and on new income streams for integrated place management

We are rapidly entering an era in which urban place management is delivered through a network of providers and organisational collaborations: from wholly-voluntary private sector Corporate Social Responsibility (CSR) schemes at one end of the spectrum, through to wholly public delivery at the other. The fiscal cuts for councils and their public sector partners, together with the dubious track-record of branded CSR policy transfers involving 'big business' backers, externally-imposed KPIs and weak local leadership14 would suggest that the best, most accountable and politically palatable approach in the near future will be that of novel public-private sector partnerships led by the ‘city vision’ of councils, rather than the more narrow concerns of the police or business community. There is an opportunity for Camden to provide leadership, especially on matters of public accountability and standards of evaluation, as they apply to those partnership measures and initiatives to be applied to the public streets and other shared spaces15. There are several examples of the Borough and the wider Camden Community Safety Partnership working collaboratively with private sector stakeholders, emergency health services and NGOs conducting ‘outreach’ work on alcohol and drug issues in the areas examined by our research. a) Pub Watch. The Euston Pubwatch, for example, provides a forum for the exchange of intelligence between the MPS, Camden Council and the pubs located in and around the three mainline stations in Euston/Kings Cross/St Pancras. The aim of Pubwatch is to encourage a safe and secure social drinking environment in all licensed premises and help to reduce drink-related crime. Licensees from pubs, bars, restaurants and cafes meet every couple of months to discuss common issues. These meetings are supported and attended by Licensing Officers from the Council and representatives from the MPS. Information shared will relate, for example, to football fixtures, football hooliganism, and potential overcrowding pressure from other major public events across London and the South East. Effective engagement of Pubwatch provides opportunities to cut the costs of policing and licensing enforcement / litigation by encouraging licensees to be pro- active; operating their premises so as to prevent the occurrence or recurrence of crime and disorder (for example, by closing early on police advice in the case of high-risk football fixtures).

We would recommend that the many new and recent entrants to the leisure market in the Kings Cross / Euston area, including restaurateurs, be encouraged to participate in Pubwatch, or alternatively to establish their own, differently-branded and constituted forum to agree standards of

14 Home Office / KPMG LLP (2008) Review of the Social Responsibility Standards for the Production and Sale of Alcoholic Drinks, Birmingham: KPMG LLP. Hadfield, P. and Measham, F. (2015) ‘The outsourcing of control: Alcohol law enforcement, private sector governance and the evening and night-time economy’, Urban Studies. 52(3): 517- 37. 15 Hadfield and Measham, (ibid.) © Phil Hadfield 44 operation and establish partnership working on security and safety issues. b) Business Improvement Districts (BIDs). The areas examined also contain BIDs. A BID is a defined geographical area within which local businesses have voted to invest collectively to improve their trading environment. BIDs operate usually for periods of five years, which can run successively. BIDs provide additional or improved services as identified and requested by local businesses. Services often include additional safety and cleansing and broader environmental measures. BIDs are business-led organisations, funded by members, who pay an agreed levy previously approved by ballot.

There are three BIDs currently operating in Camden that encompass some of the Borough’s main ENTE areas:

‘Camden Town Unlimited’ (CTU) draws members that include bar/pub/restaurant owners. Established in April 2006 and now towards the end of its second term, CTU has taken an active interest in ENTE issues within central areas of Camden Town; these being of key concern to many of its members. CTU part-funded projects have so far included time-limited commitments to provide street marshal patrols at night (the ‘Quiet Streets’ initiative) and improvements to the streetscape of Camden High Street (the ‘Naked High Street’ initiative). The latter initiative helped introduce wider footways, narrower carriageways, level loading bays, new tree plantings and a public art installation.

‘The Fitzrovia Partnership’. This BID includes sections of our Charlotte Street / Goodge Street patrol area. The Partnership Business Plan 2012-17 includes a commitment to: “develop an evening focus to better connect intelligence between restaurants and pubs and reduce illegal street activity and anti-social behaviour. A ‘pub watch’ scheme will be developed and an effective liaison and support maintained with the public authorities”16 .

‘In Mid-Town’ (Bloomsbury, Holborn and St Giles). A large and potentially influential BID, running since April 2005 and now in its third term. The BID has over 300 business members, ranging from large international companies who have offices in the area to small independent traders. The BID membership contains a number of ENTE businesses; however, their presence is not so apparent as in CTU and The Fitzrovia Partnership. This reflects the more mixed-economy found within In Mid-Town’s geographical boundaries.

In Mid-Town has taken an active role in safety and security management and improvements to the streetscape environment of their area. They fund two dedicated Police Officers in the area’s Special Tasking Team and a ‘street ambassador’ patrol which provides ‘soft guardianship’ in the form of a uniformed presence, advising visitors and being the ‘eyes and ears’ of the police with regard to criminal and disorderly behaviour. So far, In Mid-Town’s projects appear to have focused on supporting the day-time retail, tourist and service economy, with no publicised initiatives in support of the ENTE.

16 http://fitzroviapartnership.com/what-we-do/safety-security/ (as accessed 4 August 2015).

We recommend the Council explore opportunities to engage more fully with the business community on ENTE issues through the vehicle of BIDs. Three BIDs already exist in important ENTE locations within the Borough. The Council could play an important role in providing strategic leadership to the private sector on issues of place management. There would need to be ‘buy-in’ from the BIDs of the vision for ENTE areas devised by Camden and informed by the Council’s investment in public and stakeholder consultation, data analysis and research. We see a future where there is legislative change on BID governance, with BIDs being led by a multi- agency strategic board, with ultimate leadership direction by Borough/City Councils.

6. Evaluate: Night tube

The above measures, if sustained in combination, will undoubtedly support public safety and security on Camden’s soon-to-be-implemented all-night weekend tube services. Nonetheless, there are a number of important unknowns about how the service will impact on the social behaviour of ENTE users. It is too simplistic to assume that there will be a seamless transition to easier and more rapid dispersals late at night, immediately easing the pressure on public services17. It could be, for example, that a proportion of visitors use the new late-night tube services after 00.30 to attend late-night events in ENTE areas, having already ‘pre-loaded’ on alcohol (and drugs) in their home localities. This possibility, together with the impacts on residential noise nuisance, street cleansing services, and station security, for example, are matters of conjecture at present. Such issues were not considered in the research commissioned by TfL (which focused on economic benefits to late- trading businesses)18, in pilot trials of the service, or in detailed service planning discussions with the Boroughs (to the author’s knowledge).

We recommend that the Council’s licensing team monitor the effects of the night tube services across the Borough by collecting baseline crime figures for the areas around all central tube stations, and those stations such as Kentish Town, with proximate night-time crime hot-spots. Crime statistics collected on an on- going basis can then be used to map any changes in crime patterns: in particular, the numbers, locations and timings of incidents.

We recommend that on-going evaluation of night tube be mentioned in the wording of the 2016 Statement of Licensing Policy. It should be emphasised that the Council’s Licensing Policies were devised on the basis of the current and recent historical evidence available prior to

17 As highlighted in the following work, with respect to licensing hours:

Humphreys, D. and Eisner, M. (2010) ‘Evaluating a natural experiment in alcohol policy: the Licensing Act (2003) and the requirement for attention to implementation’. Criminology & Public Policy, 9/1: 41-67.

18 Volterra, (2014) Impact of the night tube on London’s Night-Time Economy: Report prepared by Volterra Partners for TfL and London First. London: TfL and London First.

Robust evaluation of the night tube services and their (so far unknown) social and economic effects, together with the range of other activities mentioned above, will provide an improved evidential basis for consultation on any further necessary changes to Camden’s Licensing Policies in 2020-21.

1. Introduction

Background

The purpose of this research is to provide a unique and valuable source of evidence to inform the drafting of the London Borough of Camden’s (the ‘Council’s’) Statement of Licensing Policy, which is being revised, following a period of consultation which began in July 2015. The Camden Licensing Authority has a duty to promote the four national statutory Licensing Objectives:  The prevention of crime and disorder;  Public safety;  The prevention of public nuisance;  The protection of children from harm

The Borough is required by Central Government to obtain a detailed understanding of local issues and evidence concerning these issues and objectives. The gathering of evidence ‘on-the-ground’ concerning the impacts of Licensable Activities forms an essential component of this exercise. The analysis of local evidence allows the development of licensing policies that are nuanced, targeted and justified, in the manner required by the Home Office19. Carefully-targeted and proportionate licensing initiatives also represent value- for-money: resources are expended in the most efficient and effective ways and costs are reduced in related areas, such as in enforcement, policing and litigation. In consultation with the author of this report, Camden Community Safety Partnership (CCSP) Information Unit and the Council have been looking carefully at the following evidence:  The locations of alcohol-related crime and disorder incidents, as recorded by the Metropolitan Police Service (MPS).

 The locations to which ambulances are called to respond to alcohol- related health emergencies, as recorded by the London Ambulance Service.

 The locations from which reports to the Council are most frequently made involving complaints from members of the public concerning the activities of licensed retail outlets. This data is recorded under a ‘complaints code’ indicating complaints about licensed premises and alleged unlicensed Licensable Activity.

19 Home Office (2015) Revised Guidance issued under section 182 of the Licensing Act 2003. March. London: Home Office. © Phil Hadfield 48

The CCSP applied the following methodology for analysing the MPS crime statistics20:

London Borough of Camden police data was collated over a 24-month period for Thursdays-Fridays, Fridays-Saturdays and Saturdays-Sundays, between the hours of 18.00-06.00.

Two sets of crime data were extracted and categorised from this period as follows:

1. ‘Alcohol-related’

 Any crimes between the above stated times that contained an alcohol- related ‘buzzword’ in the investigation text21.

2. ‘Night-time economy-related’  Any crimes between the above stated times that fell within the following offence categories:

- Drugs (possessions and supply) - Violent crimes classified as ABH; GBH; Assault; and Affray - but not including those with ‘domestic’ in the investigation text; - Thefts from the person; - Theft not-coded; - Robbery; - Criminal damage.

Both categories of data were mapped independently of each other to avoid the risk of mapping the same crimes twice. Both data sets revealed particularly dense hotspots of crime around the Borough’s two existing ‘Special Policy Areas’ (SPAs) as defined in the current Statement of Licensing Policy published in 2011 (‘the Policy’). These areas are referred to, following the terminology of the Policy, as the Camden Town SPA and the Seven Dials SPA. Within the boundaries of the two SPAs, the cumulative impact of alcohol-related problems had been sustained over time in the years up to 2011, despite the restriction on new licensed developments in the previous Statement of Licensing Policy. This should not be interpreted as suggesting that the SPA approach had ‘failed’; rather, it should be seen as a necessary action of containment, applied only to those geographically small areas of the Borough wherein the combined capacities and attractions of the existing licensed premises and their continued intensive patronage by visitors in the evening and

20 Camden Community Safety Partnership (CCSP) Information Unit (2015) Cumulative Impact Assessment - Camden crime data to aid licensing statement, Version 2. CCSP Information Unit: London. 21 For example: ‘alcohol’, ‘drunk’, ‘pub’, ‘nightclub’ etc. - this is a standard list used by the Partnership Information Unit for extracting alcohol-related crime and is the method generally adopted across London Boroughs to identify alcohol-related offences. © Phil Hadfield 49 night-time hours were continuing to produce negative outcomes that ran contrary to the Licensing Objectives. Indeed, the long-standing concentration of offences and premises in these locations was, at the time, strongly suggestive of the necessary continuation of the Council’s SPA policies. Moving forward to the review of the Licensing Policy in 2015-16, the Council and its partners are looking again at the recorded crime patterns occurring subsequent to implementation of the 2011 policy. When looking beyond the existing SPAs, the mapping of crime data across the Borough resulted in the identification of four particular locations that had experienced an increase in ‘alcohol-related’ and ‘night-time economy-related’ offences over the evening and night-time hours since publication of the 2011 Licensing Policy. The subsequent addition of ambulance call-out location mapping and licensed premises-related complaint mapping for the same time period served to underline the impression of four emergent hot spots for alcohol-related impacts within Camden. In the three types of data (police, ambulance and Council licensing data) that have been collated and mapped by the CCSP and the Council for a 24-month period, the four geographical areas of emerging concern regarding ‘alcohol- related’ and ‘NTE’ impacts in the evening and night-time hours (18.00 – 06.00 hours, Thursdays/Fridays/Saturdays-into Sundays) are as follows: 1. Kings Cross / St Pancras / Euston areas adjacent to the mainline / LU stations, along Euston Road as far as Euston Station, and in immediately surrounding streets to the north, south and east of Euston Road.

2. Holborn. New areas of concern were shown to extend to the north and east of the existing Seven Dials Special Policy Area (SPA), notably in the areas immediately surrounding Holborn LU station: Kingsway, High Holborn / New Oxford Street and Southampton Row, north as far as the junction with Vernon Place / Theobald’s Road.

3. Tottenham Court Road, from the junction with Oxford Street / New Oxford Street, north as far as Warren Street / Euston Road and including the distinct evening economy of the Charlotte Street/Goodge Street area of Fitzrovia to the west.

4. Kentish Town. Kentish Town Road and immediately surrounding streets above and below the LU Station, from the Fortess Road / Highgate Road junction south to the Prince of Wales Road junction.

The data and mappings were all recorded over the same 24-month period. Reference to the three sources of data - and regular updates of the mappings - has permitted a more comprehensive understanding of the location of alcohol – related impacts over a sustained period of time. This degree of insight would not have been possible were the Council to have relied upon one source of data only (for example, MPS-derived Violence-Against-the-Person (VAP) offences) and/or assessed the statistical evidence across a shorter period of time.

Using the CCSP statistical mappings as an initial reference point, this research project provides further insight into localised problems within the Camden evening and night-time economy (ENTE). Specifically, it provides intelligence, derived from close observation of the four areas over a six-month period, as to why these concentrations of alcohol-related harms are occurring in the places and times they are.

Aims and objectives

The specific aims and objectives of this research are to:

1. Examine and explain, through fresh independent data collection, the most likely causes / contributory factors behind the recent rises in alcohol-related crime and disorder and ambulance call-outs in the four locations, as recorded by the MPS and London Ambulance Service, in the evening and night-time economy hours (18.00-06.00).

2. To report on issues contributing to ‘public nuisance’, ‘public safety’ and ‘the protection of children from harm’ in these areas at night. Duties to prevent these matters are set out (alongside ‘the prevention of crime and disorder’) in the Licensing Act 2003 as the four Licensing Objectives. We take particular note of how different combinations of issues relating to these four objectives may be variously effecting the four locations.

3. To draw recommendations as to the regulatory and place management tools available to the Licensing Authority to make strategic interventions and take practical action to alleviate alcohol-related harms, as occurring in the public realm. These options include the possible establishment of new, or amended, SPAs. Our recommendations include only those measures judged to be appropriate, justified and proportionate on the basis of our findings in this study.

2. Research design and methodology

This research sets out to answer the ‘why?’ questions as to what lies behind the statistical mappings of incidents of crime and disorder, ambulance call-outs and public complaints concerning licensed premises, as discussed in Section 1, above. More broadly, the research is concerned with how Camden might best support the Licensing Objectives in the four identified areas. The research does not set out to establish a new and additional statistical database to help answer the ‘how much?’ (ie. quantification) questions of measurement. In order to achieve these aims and objectives, the following approach was adopted:  Structured observational methods were used (further details of which are outlined in Appendix Three). Visits across six months, with different seasons and weather conditions helped the research team to gain deeper understandings of how the areas ‘worked’ at night across half of the annual calendar, moving from winter to summer.  Six visits to each location were made in order to reduced the possibilities of the observations being conducted at particular times which were not generally representative of the areas in question (eg., when weather conditions were unusually bad or good).  It was also necessary to include some aspects of the ‘events calendar’ and these were subject to specific analysis. For example, the influence of Premiership football fixtures and popular music events in London and the South East on the activities of travelling fans in and around Kings Cross. The concentrated research focus across six weekend periods allowed opportunities to incorporate aspects of the events calendar and to compare these time-periods with the more general social environments that pertained.  Following interim progress meetings with council officers involving the discussion of current licensing themes in the four areas it was decided that research team would conduct a number of test purchases of alcohol at off-licensed premises. This activity allowed the research team to gain insight into compliance with late-night alcohol sales restrictions in local shops and stores and therefore the potential accessibility of alcohol for night-time street drinking in certain key locations.

We did not count and statistically analyse the ‘numbers’ of crimes and public nuisance incidents observed in the four areas. To so would have provided an additional source of numerical information to the three existing sources discussed in Section One. It would have required the addition of a survey element to the research. A survey of ENTE public behaviours was not considered appropriate to the Council’s needs due to the project’s necessarily limited timescale and budget. Survey research would have added substantially to the cost of the project. Furthermore, surveys of public behaviour (as opposed to attitudinal, interview- style surveys of public habits and preferences) in the ENTE are particularly © Phil Hadfield 52 sensitive to changing conditions on-the-ground. Visitor footfall and the number of incidents of public nuisance recorded varied substantially in relation to unique public events, seasonality and weather factors. We were unable to quantify these changes in terms of a ‘prevalence rate’, calculated according to the variable size of the street population. Nonetheless, our findings concerning the influence of the annual seasonal and events calendar on the raw numbers of incidents observed were consistent with the quantitative behavioural survey work (incident counting exercise) we conducted in 2013-14 across 10 neighbouring micro-areas of Westminster (Hadfield et al., 2015) 22 . This research further indicated that street-behaviour survey approaches lack validity unless of sufficient duration to cover changes in weather conditions and the events calendar across a period of 10-12 months. Investment by Camden in a ‘snapshot’ survey of public behaviour was not considered useful as concrete supporting evidence for the Statement of Licensing Policy.

Timescale

Fieldwork for the project began on the evening of 19 February 2015, stretching over six months to the early morning of 12 July 2015. The sample framework for the research was as follows: Six weekends, running from Thursday night to Sunday morning (18 nights in total). Full coverage of the 21.00 – 04.00 period (n=126 hours), with additional evening sample periods between 18.00 and 20.59 (n=32 hours). 158 hours in total. Each area visited six times: twice on each of the nights from Thursday evening / Friday morning, through to Saturday / Sunday morning. The Tottenham Court Road area and the Holborn area were visited on the same evenings due to their proximity. This approach enabled the research team to explore issues of interconnectivity and also that of their connectivity to the Seven Dials SPA.

Visits to the four areas were scheduled as follows:

Weekend 1: 19-21 February

Tottenham Court Road/Holborn (Thursday) 19 February Kings Cross / St Pancras (Friday) 20 February Kentish Town (Saturday) 21 February

22 Hadfield, P., Sharples, S., Bevan, T. and Measham, F. (2016) Westminster evening and night-time behaviour audit 2013-14. Final report to the West End Partnership Group and the City of Westminster. London: www.philhadfield.co.uk © Phil Hadfield 53

Weekend 2: 12-14 March

Tottenham Court Road/Holborn (Saturday) 14 March Kings Cross / St Pancras (Thursday) 12 March Kentish Town (Friday) 13 March

Weekend 3: 9-11 April

Tottenham Court Road/Holborn (Friday) 10 April Kings Cross / St Pancras (Saturday) 11 April Kentish Town (Thursday) 9 April

Weekend 4: 7-9 May

Tottenham Court Road/Holborn (Thursday) 7 May Kings Cross / St Pancras (Friday) 8 May Kentish Town (Saturday) 9 May

Weekend 5: 4-6 June

Tottenham Court Road/Holborn (Saturday) 6 June Kings Cross / St Pancras (Thursday) 4 June Kentish Town (Friday) 5 June

Weekend 6: 9-11 July

Tottenham Court Road/Holborn (Friday) 10 July Kings Cross / St Pancras (Saturday) 11 July Kentish Town (Thursday) 9 July

3. Profile of the study areas

Background information

The following paragraphs contain full audits of the licensed premises we found operating in the four study areas at the time of our research. The premises are listed spatially next to their neighbours and numbered in order to illustrate the size of the evening and night-time economy (ENTE) in each area. Both on- licensed and off-licensed premises are included. Hotels are included only if they offer licensed facilities that are advertised as available to non-residents. Cafes and takeaways that do not serve alcohol or require a Late-Night Refreshment (LNR) Licence are included only if they operate in the 20.00-22.59 period and therefore form part of an area’s night-scene. The purpose of this section of the report is to give a sense of the location, primary functions and trading hours of the licensed premises that occupy these four micro-locations within Camden. The trading hours listed are those hours of operation that the premises advertise to the public. These hours will not necessarily be the same as those listed on the Premises Licence (they may be shorter in duration). We believe the listing of advertised and actually- used hours gives more of a sense of the ‘lived experience’ of the areas than that which might be obtained by simply extracting information from the licence of each premises and extrapolating the trading hours artificially. Of course, the operators of licensed premises are free to change their hours and close when they wish within the boundaries of what their licence permits; so situations can change. Nonetheless, for the purposes of this report, a more accurate picture of each area emerges from listing the trading hours that were noted in-situ. The areas are seen as ‘natural areas’ for nightlife, with human activity and routines surrounding clusters of licensed attractions. In three of the four areas there are important interactions occurring with clusters of premises that are licensed by other Licensing Authorities, but which sit adjacent to clusters of premises licensed by Camden. In these cases, the nightlife of the locations is a cross-borough phenomenon and from the point of view of the consumer the borough boundaries are an irrelevance. For the purposes of this report it is, of course, important for our clients to understand these cross-border influences in terms of the limits of Camden’s jurisdiction, cross-borough displacement effects, and also to consider how the licensing policy approach of adjoining Authorities may be impacting on Camden. Due to the importance of these issues they are flagged at a number of points within the report. In this section, premises licensed by other boroughs are clearly indicated but are otherwise treated similarly in their depth of description. Our observations of human behaviours and the uses of the four areas at night are mostly described in Section Four (the following section of the report). For ease of reference, we also highlight observed activities here in Section Three, where these can be linked directly to the customers or staff of the premises listed. © Phil Hadfield 55

1. Kings Cross (including St Pancras / Somers Town and Euston)

King's Cross / St Pancras links six London Underground (LU) lines with two national mainline train stations and international high-speed rail. The area is an ENTE access and exit point for visitors to Bloomsbury and Camden Town, and also for nightlife in Islington and Westminster on foot and the wider Central London area by LU, bus and taxi/minicab services. There are over-ground trains serving North London on stations through to Bedford until the early hours of the morning. Euston Station is nearby and provides further local, regional and national rail connections, together with further LU, bus and taxi options. Taken together, the research area is without doubt one of the most important transport hubs in London and the UK. More specifically, it acts as the main entry and exit point for a large proportion of ENTE visitors travelling by rail from areas to the north of Central London. The area is not, however, simply a location that people ‘pass through’ on their way to other destinations. Increasingly, Kings Cross in particular, is developing a substantial ENTE of its own and one that overlaps in many ways with the very proximate nightlife of the Caledonian Road area of Islington. There are important interactions between the Islington and Camden ENTEs at this location. In the area just to the east of Kings Cross mainline station licensed premises in both boroughs are located so closely together as to make them part © Phil Hadfield 56 of one ‘natural area’ for nightlife users, such that the research team had to pay close attention to the borough boundaries in order to decipher which premises were licensed by which borough. The London Borough of Islington, in their 2013-2017 Licensing Policy, have sought for the first time to introduce a ‘Kings Cross cumulative impact area’ in order to reflect the localised recorded effects of existing and continuing licensed development in their ‘patch’ of the Kings Cross area. This approach has been adopted as a consequence of the additional pressures upon the area that have occurred subsequent to the opening of the refurbished St Pancras and Kings Cross stations in recent years. The following text is an extract from Islington’s 2013-2017 Statement of Licensing Policy: “27. King’s Cross has undergone some radical changes in recent years and this change is set to continue as the Kings Cross railway land in Camden is redeveloped. The Regent‘s Quarter has seen the refurbishment of the old Georgian and Victorian buildings and construction of new modern buildings to create mixed-use developments of residential and commercial units.

28. King’s Cross is continuing to undergo one of the largest and most complex regeneration projects in Europe. By 2020, an estimated 60 million passengers a year will pass through the King's Cross transport interchange, almost the same current passenger numbers as at Heathrow airport.

29. These changes, as well as the proposed developments in the area, have already led to an increase in the numbers of licence applications and an associated increase in representations from residents and ward councilors citing problems with cumulative impact issues such as noise disturbance, drunken fights and crime due to intoxicated persons in the area.

30. The 2012 Caledonian Community Alcohol Partnership showed that higher levels of intervention by the council and partners along with strong community support were the most effective tools in reducing the incidence of underage consumption of alcohol and reducing alcohol-related anti-social behaviour in the community.

31. The area is regularly used by football fans on their way to or from the Emirates Stadium. While it is recognised that the overwhelming majority of fans are well behaved, a small minority are associated with problems of public nuisance and crime and disorder. The Licensing Authority has received complaints concerning anti-social behaviour such as littering, noise nuisance, fighting, vandalism and obstruction of the public highway arising from football fans visiting the licensed premises in the area.

32. The evidence indicates that saturation has been reach and that any further expansion requires careful management. As with other stress areas in the Borough, the Licensing Authority believes that it is essential to manage any potential conflicts arising from an extension to the night-time economy on local residents though introducing a cumulative impact area. This approach will allow the Licensing Authority to promote and encourage new and variation applications where there is no negative cumulative impact on the licensing objectives (my emphasis).” © Phil Hadfield 57

The last sentence of Paragraph 32 has been underlined by the author of this report as it is perhaps the most interesting. The sentence reflects the legal position wherein cumulative impact areas are not ‘blanket bans’ on further licensed developments in an area. Rather they are ‘presumptions against’ any further development which would threaten pursuit of the Licensing Objectives in areas where a history of established negative consequences have been recorded. Effectively, the usefulness of a CIP to a council is that it reverses the burden of proof. In a CIP area, when a Relevant Representation is received, the onus is placed on the applicant to establish and convince the Licensing Authority that their proposals will not threaten the Licensing Objectives. This is the inverse of the usual position wherein applications must be granted unless there are Relevant Representations lodged against them by Relevant Authorities or Interested Parties. Nonetheless, it would have been particularly useful and forward-thinking for Islington to have gone further in indicated the types of licence applications which would/might continue to be encouraged and promoted within their Kings Cross CIP as part of a positive strategic ‘vision’ for the area.

Our research in and around Kings Cross

Our approach was to consider the nightlife in this area as a ‘natural cluster of licensed attractions’ following the ways in which it soon became apparent that ENTE patrons used the area; visiting and moving between licensed venues in both boroughs. Unlike the patrons whose activities we were observing however, we were keen to establish the location of the boundary lines between the two boroughs. Specifically we noted that the western flank of York Way lay within the London Borough of Camden and the eastern side of York Way and areas east containing nightlife venues, including Caledonian Road, were within Islington. From its intersection with York Way, the northern side of Pentonville Road (including the north side of King’s Cross Road) lies within the London Borough of Islington. The southern side and areas south of Pentonville Road and King’s Cross Road are within the London Borough of Camden.

Licensed premises within the London Borough of Camden

St. Pancras Station and King’s Cross Station have numerous licensed premises within their perimeters.

St Pancras International Station

St Pancras has a webpage dedicated to its ‘food and drink’ offers: http://stpancras.com/eat-and-drink

Premises noted by the research team as licensed to sell alcohol and / or late- night refreshment in St. Pancras Station are as follows (closing times listed below are those advertised and/or observed which may not match those permitted by the Premises Licence or Late-Night Refreshment Licence. Unlicensed cafes are included only if the operate beyond 20.00):

Ground floor

(1) Benugo café/restaurant (open no later than 21.00) is located on the ground floor of St. Pancras’ concourse. (2) Fortnum and Mason have a Tea Room restaurant on the ground floor concourse open until 21.00. 3) Starbucks have an outlet on the ground floor of the station near to the entrance onto Pancras Road. This premises is licensed for late-night refreshment 23.00-05.59 seven days a week. The premises operate for almost 24-hours-a-day, closing only briefly at around 04.30, before re-opening at 05.00. Starbucks is often used as an unofficial waiting room in which as many as fifty people can be found spending several hours waiting (and sometimes sleeping next to their luggage) ahead of catching early-morning rail services. As one of the latest-opening facilities in the area the premises are also attended by police officers seeking refreshment on their shifts. (4) Pret a Manger have an outlet close-by to Starbucks within St Pancras station that is open until midnight seven days a week. (5) Fine Burger is a restaurant / take away open until 02.00 on Thursdays and Fridays and until 01.00 on Saturdays on the ground floor of the station. (6) There is a Marks and Spencer mini supermarket on the ground floor of the station’s concourse that sells alcoholic drinks and is open until 23.00. Other licensed restaurants on the ground floor of St Pancras International are as follows: (7) des Vin café and wine bar (23.00 closure) (8) Yo! Sushi restaurant (closes no later than 22.00) (9) Peyton and Byrne restaurant (closes 20.00) (10) Le Pain Quotidien restaurant (closes 22.00) (11) Chop’D restaurant (no later than 22.00)

First floor

(12) Searcey’s Champagne Bar (open no later than 23.00) is located on the upper (platform level) of St. Pancras station.

(13) St. Pancras Renaissance Hotel has a publically-accessible bar within the former Railway Building. An entrance to this bar is located at the platform level of the station with a door supervisor located within the premises. Situated in the original station’s ticket hall, the ‘Booking Office Bar & Restaurant’ at St Pancras Renaissance Hotel holds a late-licence and is open until 03.00 on Thursday, Friday and Saturday nights. The premises are located close to the station’s entrance from Euston Road with tables and chairs placed on the upper concourse.

(14) The Gilbert Scott is a cocktail bar and restaurant open until 01.00, also located within the Renaissance Hotel St. Pancras, with entry and exit from Euston Road. (15) Also on the upper concourse is The Betjeman Arms, a public house open until 23.00. (16) Carluccio’s, part of the chain of Italian casual dining restaurants, is also located close to the St. Pancras’ station’s entrance onto Euston Road (open no later than 23.00). (17) Barzetti Italian Kitchen is a restaurant open until 01.00 on the upper concourse. Kings Cross Central Limited Partnership have a website devoted to the attractions of the area surrounding Kings Cross mainline station. The site has a webpage devoted to current and forthcoming food and drink offers in the area. The current offer page is headed with the following description: “ RESTAURANTS, BARS, CAFÉS King’s Cross is fast establishing itself as an exciting food destination – serving- up everything from London’s best street food to elegant fine dining. And with new eateries and bars opening all the time, there’s something to suit everyone’s taste and pocket. Here’s just a taste of what’s on offer…”23 Licensed premises within or proximate to the mainline/LU station site at Kings Cross and at Granary Square are listed as follows (with advertised closing times):

North of Kings Cross Station

(18) Caravan is a large restaurant in the Granary Building, 1 Granary Square, off Goods Way. It closes at midnight on Fridays and Saturdays (earlier through the rest of the week).

(19) Grain Store is a bistro restaurant, also on Granary Square near the Regents Canal. The location is approximately 5 minutes’ walk from Kings Cross station. Closing time is 22.30.

(20) Dishoom is a 250-seat Indian restaurant and cocktail bar on Stable Street. Advertised closing hours are midnight. The premises were especially popular

23 http://www.kingscross.co.uk/eating-and-drinking as accessed 22/09/15. © Phil Hadfield 60 during the period of our research.

(21) The Greek Larder is a restaurant on York Way. It closes at 22.30 daily (earlier on Sundays).

(22) Vinoteca King’s Cross is a restaurant and wine bar open until 23.00 daily. It is located at One Pancras Square.

(23) Grainger and Co. Seven Pancras Square. This Australian-inspired restaurant opened on 15th June 2015. It trades to 23.00 Monday-to-Saturday and to 22.00 on Sundays.

In and around Kings Cross Station

(24) GNH Bar is a Manhattan-style bar in the refurbished Great Northern Hotel. It is open to the public until 01.00 daily.

(25) Plum + Spilt Milk is a brasserie restaurant, also in the Great Northern Hotel. It closes at 23.00 daily (earlier on Sundays).

Network Rail provides a useful listing of the food and drink offers within the Kings Cross Station concourse. These include outlets with Premises Licences and/or LNR licences: http://www.networkrail.co.uk/london-kings-cross-station/shops/#ID0E2H

Mezzanine tier of the concourse

(26) Benito’s Hat is a Mexican fast food restaurant, which also sells bottles of beer. It is located on the upper level of the concourse within King’s Cross Station and closes at 23.00 (22.00 Sundays). (27) Prezzo is an Italian restaurant on the upper tier of King’s Cross Station. Customers can be found dining and drinking alcoholic beverages at tables set immediately outside the venue. The restaurant closes at 23.00. (28) Giraffe Stop is a further restaurant/bar on the upper level of the concourse within King’s Cross Station. It closes at 22.00 (19.30 Sundays). (29) The Parcel Yard is a public house located on a Mezzanine to the north of the concourse with access from the ground floor of the station’s concourse. It closes at 23.00 (22.30 Sundays).

Ground floor of the concourse

(30) Leon is a restaurant / takeaway serving hot food and drinks until 01.00 daily. (31) Upper Crust is a takeaway café serving food and hot drinks to 01.00 daily. (32) The Pasty Shop is a takeaway café serving food and hot drinks to 01.00 daily. (33) Café Nero is a takeaway / café serving food and hot drinks to midnight daily (22.00 Sundays). (34) There is a Little Waitrose mini supermarket on the ground floor of the station’s concourse that sells alcoholic drinks and is open until 23.30. (35) M&S Simply Food is a mini supermarket on the ground floor of the station’s concourse that sells alcoholic drinks and is open until midnight (Monday- Friday), 23.00 (Saturdays) and to 22.00 (Sundays).

Near-horizon licensed developments in Kings Cross:

Kings Cross Central Limited Partnership provide a link to a further webpage on ‘new food and drink openings’ in the area and a two-minute promotional You Tube video: ‘Eat, Drink, Day and Night at Kings Cross’ http://www.kingscross.co.uk/opening-soon-kings-cross (as accessed 22/09/15). Seven near-horizon licensed developments (some of substantial size) are listed to include: “D&D London - the group behind Bluebird and Le Pont de la Tour are opening a new restaurant in the historic German Gymnasium. Sitting in a prime spot between King’s Cross and St Pancras Stations, the German Gymnasium is a beautiful Grade II listed building. The ground floor will house a 150-cover brasserie and bar with outdoor terraces seating for up to 70 people. The mezzanine will house a smaller restaurant and elegant dining room overlooking the brasserie below. The restaurant is due to open late-2015. Jamie Oliver - the chef and food campaigner is coming to King’s Cross. Jamie Oliver Group will lease space in the Fish & Coal Buildings and Wharf Road arches. The western end of the Fish & Coal Building will be a pub with a roof conservatory and outdoor roof terrace overlooking Regent’s Canal. The upper floors will become the “creative centre” for the Group, with offices and test kitchens, while the lower level arches will form part of a new restaurant. Granger & Co - opening in Seven Pancras Square, Summer 2015 (now opened; see premises 23, above). The popular chef Bill Granger brings a slice of his Australian approach to the restaurant scene at King’s Cross. His infectious joy in good fresh food promises an un-missable culinary experience. Waitrose is opening an £18 million food and wine shop and cookery school at King’s Cross. The 29,000 square foot food and wine shop and 3,000 square foot cookery school will open late-2015. The store is being developed in the Grade II-listed Midland Goods Shed.

Canalside Pavilion at Granary Square. The 3-level Pavilion sits on the banks of Regent’s Canal. The outside terraces will take full advantage of the panoramic views over the canal and Granary Square with its famous fountains. Kimchee opening late-2015 at Two Pancras Square. The Holborn-based Korean restaurant is coming to Pancras Square. Korean BBQ is the staple at Kimchee, with an open-plan kitchen serving delicious meat and fish dishes.”

Elsewhere in Kings Cross

(36) Scala is a large late-licensed nightclub located on the corner of King’s Cross Bridge. It has its own website at http://scala.co.uk/, and hosts club nights, as well as operating as a venue for live music and other events. Club nights at Scala operate until 06.00, live music ‘gigs’ usually conclude at around 23.00. (37) King’s Cross Fried Chicken is a fast-food take away restaurant located on the south side of Pentonville Road, a few meters to the east of Scala. It operates until 03.00 on Fridays and Saturdays and until 01.00 on other days of the week. (38) The Big Chill House is a large bar/public house located on the southern flank of Pentonville Road to the east of Scala. The venue has a dedicated website at http://wearebigchill.com/venues/house/. The premises comprise a large open plan area for club evenings, with a dedicated dancefloor. The venue operates to 03.00 on Fridays and Saturdays, to 01.00 on to midnight for the remainder of the week. There were three door supervisors in attendance outside the premises on the nights of our visit. This reflects the fact that this is one of the busiest licensed premises in the area. (39) The Hurricane Rooms is a dedicated pool/snooker hall with its own lounge bar and low drinks prices (by Central London standards). The venue is open 24- hours a day, seven days a week, 365 days a year to members and to the public for individual bookings. The venue is located to the rear of Scala at the corner of King’s Cross Bridge and the north side of Gray’s Inn Road.

Gray’s Inn Road

A series of late-night restaurants, licensed convenience stores and late night refreshment (takeaway) premises are located on the south side of Gray’s Inn Road, running into Euston Road between St. Chad’s Street and Belgrove Street (roughly opposite King’s Cross and St. Pancras stations). Several of the convenience stores in this location are licensed to trade 24- hours-a-day. However, Camden licensing records show that there should be no off-sales of alcohol from any of the outlets after 01.00. Following discussions with our client, test purchases of alcohol were conducted in this area on our final visit in July in order to gauge levels of compliance with licensing restrictions. The premises in question run from east-to-west as follows: © Phil Hadfield 63

(40) An outlet of the Subway sandwich chain is located at 311 Gray’s Inn Road. The premises serve hot food and drinks and are open until 04.00 on Fridays and Saturdays, to midnight Monday-Thursday and to 22.00 on Sundays. (41) 06 St Chad’s Place is a Bar and Restaurant located in a former warehouse at the end of an alleyway that meets the north pavement of Gray’s Inn Road. It trades to 23.00 Monday-to-Friday and is also available for private hire for functions and events on Saturdays and Sundays. (42) Metro Express at 313 Gray’s Inn Road is a licensed convenience store with no licensing restrictions on opening times, but advertised closing times of midnight on Fridays and Saturdays, 23.30 Monday-Thursday and 22.30 Sundays. The operators, however, take a flexible approach to when they actually close. Alcohol sales are permitted on the Premises Licence to 23.00 Monday to Wednesday, to 23.30 on Thursday, to 01.00 Friday and Saturday and to 22.30 on Sundays. We queried alcohol sales and closing times at the counter on Thursday 4 June and were told the times of midnight and 01.00 respectively. On Sunday 12 July at 01.33 we purchased a can of Carlsberg lager for the price of £1.40. The shelves of alcoholic drinks were still open and illuminated at this time and there were no signs to suggest that sales had ceased. (43) Munch Time is a café / pizzeria at 315 Gray’s Inn Road. It is open to midnight seven-days-a-week. (44) King’s X Food & Wine Off Licence at 317 Gray’s Inn Road trades until 01.00 Friday and Saturday and to midnight on all other nights. Alcohol sales are permitted up to midnight each day, with the exception of Friday and Saturday when licensed hours are up to 01.00. The premises are permitted by their Premises Licence to trade up until 01.00 daily. Our experience of these premises were that they complied with these requirements, closing and locking their doors by 01.00. (45) Best Mangal Restaurant at 323 Gray’s Inn Road is open until 06.00 on Fridays and Saturdays, to 3.30 on Wednesday, Thursday and Sunday and to 02.00 on Mondays and Tuesdays. (46) Euro Tandoori Restaurant at 325 Gray’s Inn Road is open until midnight daily. (47) Eddie’s: Fish Bar and Turkish Kebabs at 327 Gray’s Inn Road is open until 01.00 daily. (48) Costcutter Express at 333 Gray’s Inn Road is a licensed convenience store with unrestricted (24/7) daily opening hours. The Premises Licence permits alcohol sales up until 01.00 daily. At 01.14 on Sunday 12 July we were able to purchase a can of Carlsberg lager for the price of £1.50. This can was served to us in a black plastic bag. There were no shutters or signs over the alcohol shelves to indicate that service had ceased. Several other customers were buying alcohol at this time; all of whom were served their purchases in black bags. Customers included a homeless man who was visibly intoxicated and animated. We had seen him previously sitting on the pavement outside Indian Lounge (343 Gray’s Inn Road) next to a plastic bag full of cans of consumed and partially-consumed lager. It appeared that he was spending the proceeds of his begging on these drinks. Costcutter attempted to lock customers out at

01.20, although two groups of people forced their way through the door when it was still ajar. The premises were successfully closed and locked by 01.27. (49) Nisa Local at 335-337 Gray’s Inn Road is a large licensed mini-market with unrestricted (24/7) daily opening hours, although advertised as open until midnight daily. The Premises Licence permits alcohol sales up until 01.00 daily. We made a test purchase attempt at 01.42 on Sunday 12 July and were refused service. The premises remained open until the termination of our observations at 04.00. (50) Casa Mamma at 339 Gray’s Inn Road is an Italian restaurant open until 23.00 daily. (51) King’s X Tandoori at 341 Gray’s Inn Road is an Indian restaurant open until midnight daily. (52) Indian Lounge at 343 Gray’s Inn Road is an Indian restaurant open until midnight daily.

Euston Road

(53) Chop Chop Noodle Bar is a Chinese food take-away located at 3 Euston Road and open until 23.30 daily. (54) La Regina is an Italian Restaurant at 9 Euston Road, open until 23.30 Sunday-Thursday and to midnight on Fridays and Saturdays. (55) McDonald’s Restaurant at 13-21 Euston Road is open until 05.00 on Thursdays, Fridays and Saturdays and until 01.00 on all other nights. The premises comprise the largest late-night refreshment premises in the area, with extensive seating across two floors. The premises employ two door supervisors in the evening and at night. (56) King’s Cross Post Office at 17-21 Euston Road mixes various functions as a post office, a convenience store and a day-time café/delicatessen. The premises are open 24-hours-a-day, with unrestricted (24/7) licensed closing hours. From 01.00 onwards, service is provided only through a hatch in the entrance door. The Premises Licence permits the sale of alcohol up until midnight daily. We made a test purchase attempt at 00.46 on Sunday 12 July and were refused service. The premises remained open until the termination of our observations at 04.00. (57) Karpo at 23 Euston Road is an Anglo-Italian Restaurant located on the southern side of the street between Belgrove Street and Argyle Street. The premises close at 22.30 daily (except 17.00 Sundays). (58) Burger King at 27-29 Euston Road has entrances on the southern side of Euston Road and the eastern side of Argyle Street. It closes at 01.00 daily. There is a seating area and two door supervisors were observed within the premises in the evening and at night. (59) McGlynn’s Public House at 1-5 Whidborne Street (off Argyle Street) is open until 23.00 daily. It is a traditional Free House pub located in a residential area approximately 100 meters to the south of Euston Road. © Phil Hadfield 65

(60) The Dolphin at 47 Tonbridge Street (junction with Bidborough Street) is located directly behind The Camden Centre, one street south of Euston Road. It is a traditional pub with two bars, one of which has a pool table. The Dolphin is popular with locals and office workers. Thai food is served at lunchtimes and in the evenings, and can also be taken away. Closing times are 23.00 throughout the week, except Sundays when the premises closes at 22.30 (although, somewhat mysteriously, the pub’s website differentiates the Friday and Saturday closing hours as simply “late”). (61) The Camden Centre is a Council-run multi-purpose civic centre venue. It has a licensed capacity for up to 1000 people. There is a main hall, a small hall and four smaller breakout spaces that can be used for different purposes. On the nights of our visits a door supervisor was present at the entrance on the south side of Euston Road. Closing times vary depending on the nature of the event and presumably the terms of individual Temporary Event Notices (TENs). (62) O’Neill’s at 73-77 Euston Road is a large premises forming part of the national chain of Irish-themed pubs. It is one of a series of similarly-styled public houses located on the south side of Euston Road which show sporting fixtures on large screens and are marketed towards travelling sports fans en route in and out of London and the South East. The premises close at 01.00 Thursdays- Saturdays and at midnight on other days. (63) Pizza Express, part of the national restaurant chain, is located on the south side of Euston Road at numbers 93-95. The premises close at midnight on Thursdays and Fridays, at 23.00 on Sundays and 23.30 on Saturdays and other nights. (64) The Euston Flyer at 83-87 Euston Road is another large ‘sports-fan friendly’ public house located on the southern side of Euston Road. It closes at midnight Fridays and Saturdays, at 23.00 Sundays and Mondays and at 23.30 on other nights. (65) Mabel’s Tavern is a public house located on the corner of Mabledon Place and Flaxman Terrace approximately 50 meters to the south of Euston Road. It is open to midnight on Fridays and Saturdays and until 23.00 on other nights. (66) The Rocket is a public house located on the northern side of Euston Road (at 120) at its corner with Chalton Street. These premises are open to 02.00 on Fridays and Saturdays and to midnight on other nights. The venue features regular live music nights and many drinkers choose to sit at the outdoor benches that surround the premises on two sides. The Rocket is one of the busiest pubs in the Euston area and was regularly observed to be full with customers beyond midnight and playing music loud enough to be heard above the ambient street sound. (67) The Euston Tap and Cider Tap at 190 Euston Road comprise two bars located within the gatehouse perimeter remains of the old Euston Station, facing each other on the east and west side of Euston Grove. The Euston Tap is open to midnight on Fridays, to 23.00 Sundays and Mondays and to 23.30 on other nights. The Cider Tap has the same operating hours with the exception of Sundays when the premises close at 22.00. Both venues feature outdoor terrace drinking areas and form part of the alfresco drinking culture one finds in and around Euston Station in the evenings and at night.

Euston Station Piazza

The Piazza is a public access terraced area, developed only in recent years. It offers outdoor seating and is located directly south of the Euston Station concourse, between the station and the bus termini just off Euston Road and Eversholt Street. The licensed premises surrounding the Piazza are as follows: (68) An All Bar One ‘city bar’ venue (part of the national chain) is located on Euston Station Piazza, The premises are open to midnight every night except Sundays (22.30 closure). (69) A Nando’s restaurant (part of the national chain) is located on the Euston Station Piazza. The premises are open until 23.00 Monday to Thursday, 23.30 on Friday and Saturdays and 22.30 Sundays. (70) Café Rouge restaurant (part of the national chain) is located on the Euston Station Piazza. The premises are open until 22.00 daily. (71) Ed’s Easy Diner is a restaurant located on the Euston Station Piazza. The premises are open until 22.00 daily. (72) The Doric Arch is a public house located at 1 Eversholt Street, Euston Square, near to the Euston station bus termini. The premises are open until 23.00 daily, except Sundays (22.30). (73) A licensed Sainsbury’s Local supermarket is located on the Euston Station concourse but facing out onto the Piazza. The premises offer midnight closing 7-days-a-week.

Euston Station Concourse

(74) Whistlestop Food and Wine on the East Concourse of the station is a licensed mini-market operating to 23.00 daily. (75) Burger King is a late-night refreshment premises serving hot food and drink to takeaway on the station concourse up until 01.00 on Fridays and Saturdays and midnight on all other days. (76) Upper Crust is a late-night refreshment café serving hot food and drink to takeaway on the station concourse up until 01.30 daily. (77) The Pasty Shop is a late-night refreshment café serving hot food and drink to takeaway on the station concourse up until 01.00 Friday and Saturday, midnight Monday-Thursday and 22.00 Sundays. (78) Delice de France is a late-night refreshment café serving hot food and drink to takeaway on the station concourse up until 01.00 daily. (79) Camden Food Co is a late-night refreshment café serving hot food and drink to takeaway on the station concourse up until midnight Monday to Friday, 23.00 Sundays and 22.30 Saturdays.

(80) Sloe Bar and café is a licensed bar venue within Euston station. The premises close at 22.00 daily, apart from 19.00 (Saturdays) and 18.00 (Sundays). Further information on Euston Station licensed premises can be found on the following web-pages (as accessed 22/09/15): http://www.networkrail.co.uk/london-euston-station/shops/ http://www.foodtravelexperts.com/uk/location-profile/1/0/4/london-euston- station/

Eversholt Street

Eversholt Street is a road that runs alongside Euston Station from Euston Road to the south to Camden High Street in the north. There is a concentration of licensed premises or late-night venues on the eastern side of Eversholt Street. These premises were more particularly located between Eversholt Street’s intersection with Phoenix Road to the north and Euston Road to the south. From north to south: (81) The Prince Arthur at 80-82 Eversholt Street is a public house / hotel which operates daily until midnight. (82) Secrets at 34-38 Eversholt Street is a Gentleman’s Club open until 06.00 seven days a week. One door supervisor works the entrance to the premises. Private Hire Vehicles were observed to park on the eastern side of Eversholt Street and also along Lancing Street, a road leading east from Eversholt Street waiting for the exit of Secrets customers. (83) GB Off Licence at 46 Eversholt Street is open daily until 23.00 (84) Euston X-Press is an off licence / convenience store at 70 Eversholt Street. The premises are licensed for the Sale of Alcohol, Monday to Thursday, 08.00 – midnight, Friday and Saturday 08.00-01.00, and on Sundays from 10.00-23.00. The licensed Opening Hours mirror those for the Sale of Alcohol. We purchased a can of K cider at 00.57 on Sunday 12 July for the price of £1.50.

(85) The Royal George at 8-14 Eversholt Street is a traditional public house. Its advertised closing hours are 23.00 daily, except on Sundays (22.30). Nonetheless, when observed at 00.15 in March customers were seen to be drinking and smoking outside the premises. Music was heard to be playing within the venue and four people were observed to be dancing in an open space to the south of the bar counter.

Somerstown

Somerstown can be roughly defined as that area north of Euston Road between Euston Station to the west and the British Library to the east. It largely comprises residential developments, particularly public housing estates such as

© Phil Hadfield 68 the Ossulton Estate (Chamberlain House and Levita House). Licensed premises in the area, due to their location away from main thoroughfares and attractions, serve the local community primarily, rather than being part of the general ENTE offer to visitors. Licensed premises within this area comprised: (86) The Romance is a Mediterranean restaurant on the western side of Chalton Street. It operates until 23.30 Monday-Friday and to 23.00 on Saturdays and Sundays. (87) The Cock Tavern is a traditional Irish Public with occasion live music. It is located on the corner of Chalton Street and Phoenix Road. Closing hours are 00.30 on Saturdays, 23.30 Monday-Friday and at 22.30 on Sundays.

Licensed Premises within the London Borough of Islington

There is a concentration of venues within the London Borough of Islington that abut the boundary with the London Borough of Camden and have the potential to affect both boroughs in terms of concentrations of alcohol-related anti-social behaviour.

York Way

(88) A McDonald’s restaurant is located on the corner of York Way and the northern side of Pentonville Road (302-304 Pentonville Road). These premises are open until 05.00 on Fridays and Saturdays, until 04.00 through the week, and until 03.00 on Sundays. When observed at 01.31 the seating areas and the toilets had been partitioned from the counter service area so that the areas that remained open had little or no available seating from then on. The restaurant employs door supervisors at night and was particularly crowded (more so than the other McDonalds on Euston Road) at this time with customers seen to be standing and consuming their purchases whilst standing in front of the service counter. Other premises on the eastern side of York Way from Pentonville Road to the intersection with Caledonian Street include: (89) Crystal Kebab (2 York Way) is a fast-food restaurant. As one of the first food outlets that people see when leaving King's Cross Station, Crystal Kebab is often busy. It's a small place with a takeaway service and a few tables. As well as kebabs they serve burgers, fried chicken etc. Opening hours are to 04.00 Friday and Saturday and to 02.00 on all other nights.

(90) Chozen Noodle at 4 York Way is a fast-food Chinese Restaurant open until 01.00 Fridays and Saturdays and to midnight on other nights (except Sundays 23.00).

(91) The Fellow is a public house / cocktail bar located on the corner of York Way and Caledonian Street (24 York Way). It operates to midnight daily (except Sundays 22.30).

Caledonian Road

There are a large number of venues concentrated towards the southern end of Caledonian Road. At the times of our observations, the street often presented as being busy with pedestrians and the venues observed to be open were full with customers. From north-to-south, these premises were: (92) Be At One – part of the London chain of cocktail bars – is located on the western side of Caledonian Road at its intersection with Balfe Street (33 Caledonian Road). The premises feature disc jockey entertainment, employ several SIA door staff and operate to 02.00 Thursday to Saturday nights, to midnight Monday-Wednesday and to 23.30 on Sundays. (93) Simmons Bar is a small public house on the eastern side of Caledonian Road. Its website at http://www.simmonsbar.co.uk/kings-cross/4579119869 states that its opening hours are 16.00 to 00.00 Sunday to Wednesday and 16.00 to 03.00 Thursday to Saturday. The website also details a drinks happy hour between 16.00 and 21.00 Monday to Friday and 2 cocktails for £10 on Saturday. The venue was found to be one of the most consistently popular premises in the area. (94) Tesco Express at 21 Caledonian Road is a mini supermarket located on the western side of Caledonia Street and Caledonian Road. This venue sells alcoholic beverages and closes at 23.00. (95) Millers at 19 Caledonian Road is a public house located on the western side of Caledonian Road at the corner of Caledonia Street. Millers is a down-to- earth and often busy pub which attracts a mixed crowd of tourists and locals. A late licence and DJ can make for a lively atmosphere on Friday and Saturday nights. There is also karaoke (currently Wednesdays and Sundays). The pub is popular with travelling football fans on their way to and from Arsenal and can get crowded when there are games showing on TV. Food is only served Mon - Fri until 17.30. The premises close at 02.00 daily except for Sundays (midnight). This venue was full with customers on most evenings of our investigation. On Saturday 16 May at around 18.00, Millers was the location of a large football-related violent crime incident when a group of Everton fans attacked Newcastle United and Hull City fans drinking at the premises ahead of catching their trains from Kings Cross Station. All three clubs were playing away-Premier League games in London at West Ham, Queen's Park Rangers and Tottenham Hotspur respectively. The Everton fans – some of whom were arrested - were also reportedly involved in unruly behaviour on Euston Road, presumably ahead of departing on Liverpool-bound rail services from Euston Station. (96) Keystone Crescent is a members’ club located at the entrance to the historic residential Keystone Crescent at the corner of the eastern side of Caledonian Road. This venue has a website at http://www.keystonecrescent.com/ that describes the venue as: “A members club for sociable people who like straightforward drinks until unsociable hours.” © Phil Hadfield 70

The site details its opening hours as 18.00 to 02.00 Wednesday and Thursday, 18.00 to 04.00 Friday and Saturday, and 20.00 to 04.00 on Sunday. Customers that had left Simmons (see 99 above) were seen gaining access to Keystone Crescent at 01.45 on Friday 13th March. A man permitting access was heard advising the customers that the venue was closing in 10 minutes.

(97) Fair Food and Wine at 22 Caledonian Road is a licensed mini-market on the eastern side of Caledonian Road. It closes at midnight daily. (98) Q’s Chicken at 12 Caledonian Road is a KFC-style fried chicken takeaway, although with a menu stretching to 26 different set meals it offers a more diverse range of food than many similar outlets. Chicken and burgers are well represented, and there are also curries, wraps, ribs and children's meals. There is seating to eat-in, as well as take away. These premises are amongst the last to be open in this area in the early hours, with closing times of 06.00 on Fridays and Saturdays and 03.00 on other nights. (99) Burrito Café at 10 Caledonian Road opened in August 2011 and sells burritos and other Mexican street food dishes such as tacos and nachos. They also do tea, coffee and soft drinks. There is a seating area with stool and tables at the back so food can be eaten-in well as taken away. These premises are open 11.30 to 00.00 Sunday to Wednesday; 11.30 to 01.00 Thursday; 11.30 to 04.00 Friday and Saturday. (100) Backpackers Bar is an Australian-styled travellers’ bar located at 6-8 Caledonian Road. It closes at midnight (23.00 Sundays). (101) Drink, Shop and Do is a multi-purpose pop-up style venue that doubles as a sweet shop, cafe and bar on the western side of Caledonian Road. It operates as a bar until 02.00 on Fridays and Saturdays, to midnight Monday to Thursday and to 20.00 on Sundays. The premises were popular on the nights of our visits and employed a door supervisor to control entry. (102) The Flying Scotsman is a public house located on 2-4 Caledonian Road on the eastern corner of Caledonian Road and the northern side of Pentonville Road. The premises have for many years featured a striptease show and the windows of the premises are unusual in being opaque. Advertised closing times are hard to find but one independent website notes a 23.00 closing time Monday-Sunday. Whilst observing these premises at 01.19 in March I observed a paramedic emerge from a vehicle emblazoned with Operation Night Safe – Islington Patrol Service talking to two people I presumed to be the Flying Scotsman’s members of staff.

Pentonville Road

(103) Costcutter 24-Hour Food and Wine is the second of two Costcutter premises in the Kings Cross area. It is a mini-market selling alcoholic beverages located on the north side of the street at 256 Pentonville Road opposite The Big Chill House (see 37 above). (104) Harris Food and Wine is a convenience store at 252 Pentonville Road, a few meters to the east of Costcutter on the north flank of the street. It is also open 24-hours-a-day. © Phil Hadfield 71

Costcutter (Pentonville Rd) and Harris Food and Wine are among the key outlets for off-sales alcohol in the Kings Cross area late at night. Many of the people who purchase alcohol from these shops arrive on foot from an easterly direction and were seen to consume the alcohol immediately on the pavements; often ahead of attending events at Scala, or crossing the road to enter The Big Chill House. There is much interaction between the customers of the two shops and customers of Big Chill House, in particular. Customers of Big Chill House often cross the road to buy alcohol and cigarettes, before, during and after their attendance at this bar venue. The shops are also the location at which minicabs stop to collect customers of the Big Chill House, despite Pentonville Road being a designated Red Route (no stopping permitted). The two convenience stores are licensed by Islington and their licensed trading hours for alcohol sales are not known. Our experience is that alcohol off-sales - given to customers in black plastic bags – proceed to 02.00 and beyond. As a result, there is some evidence of the displacement of street drinking with a convergence on Pentonville Road following the closure of off-sales premises on Gray’s Inn Road and elsewhere. For example, the homeless man mentioned in relation to premises 47 above (Costcutter Express, 333 Gray’s Inn Road), was on 12 July, seen to transfer his begging and street drinking activities to Pentonville Road at around 02.00, following the conclusion of licensed alcohol sales on Gray’s Inn Road. Due to the immediate area around the Pentonville Road convenience stores being a location for street drinking and the consumption of fast-food the pavements were found to be often dirty, slippery, littered and foul smelling in the late-night period. This western tip of Pentonville Road presents as amongst the most ‘edgy’ in Kings Cross late at night, largely as a result of the continued availability of alcohol off-sales. The Regent Quarter is a small, recently-developed, square located behind Pentonville Road with entrances off that road and Caledonian Road. There are three licensed premises within this square: (105) Camino is a tapas bar/cocktail bar that occupies the southern and eastern side of the square. Tables, chairs and benches are positioned outside this venue. The square and the interior of these premises were observed to be crowded with customers up until the bar’s closure at 01.00 Friday and Saturdays, and midnight on Thursdays. The venue closes at midnight on other nights except Sundays (23.00). This is a loud, darkened and dance-based venue during its later hours of trading. (106) Bar Pepito is a Spanish-themed bar specialising in wines and cherry. It is open to midnight daily and located directly opposite Camino within the Regent’s Quarter. (107) VOC is a cocktail and wine bar on the northern side of Regent’s Quarter. It operates to 02.00 Fridays and Saturdays and to 01.00 on all other nights. We observed that once the licensed premises within Regent’s Quarter had closed, the gates to the development were closed and locked at both ends preventing further access.

King’s Cross area – Transport

1. Trains

(a) There are three main railway termini within the area – King’s Cross, St. Pancras and Euston. These provide international, national and local / regional rail links.

King’s Cross

(b) This station serves national rail stations to the north and east as well as local region destinations in Hertfordshire and Cambridgeshire. (c) The last train to Leeds from King’s Cross leaves at 23.30 during week-nights with onward connections to Newcastle and Edinburgh; the last train leaving on Saturday night at 22.00. (d) At a South East regional level, the last train to Welwyn Garden City stopping at all local stations departs at 01.11 Monday to Saturday. The last train to Cambridge via Stevenage is at 00.31 Monday to Friday and 00.15 on Saturday night. The last train to Peterborough stopping at local stations departs at 01.35 Monday to Friday and at 00.53 on Saturday night. (e) The station closes and the concourse doors are locked shortly after the last train departs (around 02.00 hours). It re-opens at 05.00.

St. Pancras

(f) St. Pancras’s redeveloped termini serve the Eurostar services for continental destinations, as well as lines that run along the Thameslink service between Brighton in the south and Bedford in the north. (g) The last Eurostar service between St Pancras and Paris departs at 20.01 Monday to Saturday, (the last train arriving at St. Pancras at 22.39). The last train to Brussels leaves at 19.34 Monday to Friday and at 19.04 on Saturday (the last train arriving at 21.03). (h) Trains leaving St. Pancras travelling north to Bedford via Kentish Town, St Albans and Luton Airport depart at 20 minutes past the hour between 01.45 and 05.45 Monday to Friday. The last train on Saturday night departs St Pancras at 01.40. (i) St. Pancras station remains open all night; however, after 02.00 all of the cafes and restaurants are closed on the station concourse, apart from Starbucks, which remains open almost 24-hours-day.

Euston

(j) This station serves national rail stations to the north and west as well as more local destinations in North West London and Buckinghamshire. (k) The last direct train leaving from Euston Station to Manchester is at 23.00 Monday to Friday; 21.43 on Saturday night. The last direct train to Glasgow leaves at 19.30 Monday to Friday and at 18.45 on Saturday. (The ‘Caledonian Sleeper’ departs Euston for Glasgow at 21.15 and 23.50 Monday to Friday nights only). The last train leaving Euston for Birmingham is at 23.30 with connections for Manchester and Liverpool, on Monday to Friday and at 21.43 on Saturday. (l) On a South East regional level, the last train to leave Euston for Milton Keynes (via Watford Junction and local stations) is at 01.34 Monday to Friday and at 02.00 on Saturday night. (m) The station closes shortly after the last train departs (around 02.20) and re- opens at 05.00.

2. London Underground

(a) King’s Cross/St Pancras Underground Station is served by the Northern, Victoria, Piccadilly, Metropolitan, Circle and the Hammersmith and City lines. (b) The last train to leave King’s Cross/St. Pancras southbound on the Northern Line (Bank branch) is at 00.30 and 00.43 northbound. (c) The last trains to leave on the Victoria Line from King’s Cross are at 00.44 northbound and at 00.25 southbound to Brixton. (d) The last trains on the Piccadilly Line from King’s Cross are at 00.26 westbound and 00.42 eastbound. (e) The last trains on the Circle Line from King’s Cross are at 00.35 clockwise and 00.50 anti-clockwise. (f) The last trains on the Metropolitan Line from King’s Cross are at 00.22 westbound and 00.20 eastbound. (g) The last trains on the Hammersmith and City Line from King’s Cross are at 00.43 westbound and 00.33 eastbound. (h) Euston Station’s underground station is served by the Northern and Victoria lines. (i) The last train to leave Euston southbound on the Northern Line is at 00.28 and 00.45 northbound. (j) The last trains to leave on the Victoria Line from Euston are at 00.42 northbound and at 00.23 southbound to Brixton.

(k) With the introduction of ‘night tube’, Transport for London (TfL) will be operating the Jubilee, Victoria and most of the Piccadilly, Central and Northern Tube lines all night on Fridays and Saturdays. Kings Cross / St Pancras Stations and Euston Station will form part of this 24-hour weekend network. This will provide around five services-per-hour in both directions throughout the night.

3. Taxis

There is taxi rank for Black Cabs on the western side of Pancras Road, a road that divides St. Pancras International Station from King’s Cross. There is a further rank for Black Cabs serving Euston Station located underground beneath the main concourse of the building.

4. 24-Hour buses and Night Buses

King’s Cross area

(a) King’s Cross is the hub of a large public transport system with a concentration of bus-stops served by 24-hour buses and Night Buses. These buses run, on average, twice hourly between 00.30 and 05.30. (b) There are two bus stops on the northern side of Euston Road immediately outside the concourse to the railway station; these bus stops are served by the following late-night bus services: N73 – to Walthamstow (originating from Victoria) N205 – to Leyton/Draper’s Field (from Cleveland Terrace in the West End) 214 – to Finsbury Square (from Highgate) N63 – terminates King’s Cross (from Crystal Palace)

(c) A bus stand to the west of King’s Cross / St Pancras, outside the British Library on Euston Road is served by the following services:

N73 – as in (b) above N91 – to Cockfosters (from Northumberland Terrace, Trafalgar Square) N205 – as in (b) above 10 – to Wharfdale Road (from Hammersmith Bus Station) 390 – to Archway (from Palace garden Terrace, Notting Hill)

(d) On York Way there is a bus-stop on the western side of the road with the following bus services:

390 – as in (c) above N91 – as in (c) above

A bus stop on the northern flank of Euston Road outside St Pancras is also

(e) On Pancras Road’s west side there is a bus stand for the 214 service to Highgate.

(f) On the southern side of Euston Road opposite St. Pancras Station there is a bus stop that serves the following services:

N73 – to Victoria (from Walthamstow) N205 – to Cleveland Terrace (from Draper’s Field) N91 – to Trafalgar Square (from Cockfosters) 10 – To Hammersmith Bus Station (from Wharfdale Road) 390 – to Palace Gardens Terrace (from Archway)

Euston

There are bus stands located to the south of the main station concourse serving routes that travel as follows:

N5 – between Edgware and Trafalgar Square N20 – between High Barnet and Trafalgar Square N73 – between Victoria and Walthamstow N205 – between Draper’s Field and Cleveland Terrace N253 – between Aldgate and Tottenham Court Road N91 – between Cockfosters and Trafalgar Square 10 – between Wharfdale Road and Hammersmith Bus Station 390 – between Archway and Palace Gardens Terrace

Useful websites:

Kings Cross Partnership site: http://www.kingscross.co.uk/eating-and-drinking HS1 Ltd, St Pancras International site: http://stpancras.com/eat-and-drink

Network Rail Euston site: http://www.networkrail.co.uk/london-euston- station/shops/ ‘All in London’ listing for Kings Cross food and drink outlets at: http://www.allinlondon.co.uk/directory/tube-145-1103.php

Kings Cross ‘Environment’ site (community concerns website): http://kingscrossenvironment.com/about/

KXLDN (The independent guide to London Kings Cross St Pancras): http://www.kxldn.co.uk/drinking.html

2. Kentish Town

Overview

The Kentish Town Road has its own cluster of licensed premises. The licensed premises are not so great in number in comparison with the existing Camden SPAs and fewer than in our Kings Cross, Holborn and Tottenham Court Road research sites. Nonetheless, the on-licensed premises that are present are often of large physical capacity and are distinctly ‘young adult-focused’, following the model of nearby central areas of Camden Town within the current SPA. During the six-month course of our research, three new on-licensed premises opened on Kentish Town Road – Wachaca, Joe’s Kitchen and Jailbird Bar (the former two premises replacing the pre-existing Kentish Canteen) and one further venue was extensively re-furbished (The Bull and Gate pub) indicating that the area’s ENTE may be undergoing further rapid development.

Conflicts of amenity between the ENTE and local residents are likely to be chronic in this area; more so than in any of our other four sites (with the exception of the Charlotte Street/Goodge Street area of our Tottenham Court Road site). This is due to the extent of residential presence in upper floor flats on Kentish Town Road itself and also in the many wholly residential streets to the east and west of the Kentish Town Road, along its entire length. The area is © Phil Hadfield 77 predominately residential in nature; the Kentish Town Road being an anomaly in having a strip of commercial premises.

Anglers Lane is a small interconnecting road and pedestrian cut-through which links Prince of Wales Road and Kentish Town Road. It contains potentially noise-sensitive low-rise period terraced housing with traditional bay windows and single glazing on Alma Street, Raglan Street and Willes Road. Anglers Lane was used frequently by ENTE patrons carrying drinks (sometimes open drinking vessels) but we found no evidence of street drinkers congregating here, or on the surrounding residential streets. Kelly Street has similar architecture and is also directly accessible from the western flank of Kentish Town Road.

The ENTE appeared to have particular attraction value for local residents on Thursday nights (when several venues ran special promotions such as ‘comedy nights’ and live music events). Weekend evening use of venues in the area was more prominently as ‘pre-drinking destinations’ ahead of later transfers on-foot, tube, or bus, into the Camden SPA. Little evidence was found to suggest that the area has a significant attraction value for ENTE patrons from other areas of London (most visitors arrive and leave on foot); the exception being for attendance at prominent live music events at the area’s largest licensed venue: The Forum. Large events at The Forum brought many more people into the area. The large majority of event attendees proceeded to walk south when leaving The Forum and many then attended the late-night refreshment premises on Kentish Town Road. A high proportion walked south along the whole length of Kentish Town Road to enter the Camden Town SPA in pursuit of further entertainment.

Our inspection of licensed premises and late-night commercial venues was undertaken along the full length of Kentish Town Road (part of the A400), being a road that runs from the junction with Fortress Road / Highgate Road to the north of the Kentish Town LU Station, across the Grand Union Canal, to the centre of Camden Town in the south. The road runs through the centre of Kentish Town, with its concentration of relevant premises. We were concerned to understand the interconnections between this area and the Camden Town SPA to the south; however, most premises and most impacts of Licensable Activity were recorded north of the junction with Prince of Wales Road. From north-to-south, the licensed premises directly in and around Kentish Town Road are listed here as follows: 1. The Forum is a large concert venue at 9-17 Highgate Road, located on the southern side of Highgate Road beyond where Kentish Town Road intersects with Fortress Road and Highgate Road. The venue has its own dedicated website at http://theforumlondon.com/. There were no events taking place at the venue on the evenings of our site visit in February and March, although we did witness music events of different kinds in April and May. A ‘boy band’ popular with young female teenagers appeared on the day we attended in April and this attracted large crowds of young persons around the stage door entrance to the side of the premises following the end of the band’s performance. In May a heavily populated dance music event running to 02.00 corresponded with the evening of our visit. We noted that The Forum had a large roped-off and supervised smoking area for patrons to the side of the building on Greenwood Place. Closing times at The Forum vary according to the nature of the event,

© Phil Hadfield 78 with the latest advertised trading being between 02.00 and 06.00 for some DJ/dance music events. 2. The Bull and Gate is a public house / gastro pub and cocktail bar and the closest licensed premises to the south of The Forum at 389 Kentish Town Road. The premises were closed for renovation when first viewed in February- March, but had reopened by April and were busy with customers when viewed from May onwards. Advertised operating hours are to 23.00 Monday- Wednesday, to midnight Thursday-Saturday and to 22.30 on Sundays. 3. Kentish Delight at 381 Kentish Town Road is a fast food Kebab takeaway restaurant that trades to 03.00 daily. The premises were noted to be the first stop for many customers leaving The Forum, with queues for food orders forming onto the street around the time of dispersal from events. 4. Ladies and Gentlemen is a subterranean cocktail bar housed in former public conveniences at the apex of the Highgate Road and Fortress Road junction at the top of Kentish Town Road (2 Highgate Road). These premises operate 17.00 to 00.00 Tuesday to Saturday. A door supervisor was observed at the entrance to the premises on street level on each occasion of our visits. 5. Delicious is a small Italian restaurant on the eastern side of Kentish Town Road (number 320) north of Leighton Road. It is open until 22.30 Monday to Friday and until 23.30 on Saturday (closed Sundays). 6. Joe’s Southern Kitchen and Bar at 300 Kentish Town Road opened on 6 April 2015 (a premises previously operated on this site as the Kentish Canteen). The new premises have an American Diner theme and operate to midnight daily. 7. Jailbird is a basement bar premises located beneath Joe’s and operated by the same management team. The premises have their own separate entrance at street level and are available to non-diners. Jailbird operates to midnight daily. 8. Knowhere Special is a small cocktail bar located beneath a bakery/restaurant on the east side of Kentish Town Road at number 296. The premises trade to midnight from Tuesday through to Saturday. 9. Assembly House is a large capacity public house located on the eastern side of Kentish Town Road at the corner with Leighton Road. These premises are open until midnight on Friday and Saturday, closing at 23.00 apart from on Sundays (22.30). The venue’s website describes the pub as follows: “Located just to the right of the station and a minute’s walk from the Forum, we are the ideal pub for after work dinner & drinks and pre-Forum gig meet ups. Plus catch all your favourite live sporting events on our 2 big screens! If you’re looking for a Friday Night DJ, Sunday Night Quiz, somewhere to watch the football on the weekend or just catching up with friends, we’re the pub for you.” Kentish Town London Underground station is served by the Northern Line and is located on the eastern side of Kentish Town Road. It is positioned approximately 50 meters to the south of The Assembly Rooms. 10. Wahaca, the Mexican restaurant chain. During the period of our study these premises were developed in a building adjoining and directly above Kentish Town LU Station that was formerly used for clothing and textile production. The premises were open at the time of our July research only. The advertised

© Phil Hadfield 79 trading hours of these premises are up until 23.00 daily, apart from Sundays when the premises close at 22.30. 11. Gulshaan Indian restaurant is located at number 343 on the western side of Kentish Town Road. These premises are open to 23.30 daily. 12. Sam’s Chicken at 337 Kentish Town Road is a fast-food take-away restaurant on the western side of the street. It trades to 02.00 on Fridays and Saturdays and to 01.00 on all other nights. This premises was also very popular with event attendees from The Forum. 13. Everbest at 335 Kentish Town Road on the western side of the street is a large convenience store. The premises are licensed to sell alcoholic beverages until 23.00 six-days-a-week and to 22.30 on Sundays. There are no restrictions on the opening hours of the premises. At 23.56 on Thursday 9 July we made an attempted test purchase of a can of lager. This was refused. We also noted that signs had been attached to the shelves of alcohol to inform customers that sales of drink had ceased. 14. Sainsbury’s Local is located at 323-329 Kentish Town Road on the west side of the street. It is a supermarket selling alcoholic beverages up until the time the store closes at 23.00 daily. 15. Tolli is an Italian café/restaurant on the western side of the street at 327 Kentish Town Road. The premises hosts events such as comedy nights. A saxophonist was observed playing live music in the venue on 13 March 2015. The venue closes at 18.00 Monday-Wednesday and at 20.00 Thursdays and Fridays. It is closed on Saturday and Sunday evenings. 16. Pane Vino is a Sardinian restaurant on the western side of the street at 323 Kentish Town Road. It operates to 23.00 Mondays-Saturdays. 17. The Oxford is a large open-plan public house located at number 256 on the eastern side of Kentish Town Road at the corner of Islip Street. Tables and benches were placed outside the premises on the evenings of our visits. We found the premises to be amongst the most popular in Kentish Town, usually trading with all seating occupied and many customers standing. Trading hours are: Sunday 12:00 - 22:30, Monday 12:00 - 23:00, Tuesday - Wednesday 12:00 - 23:30 and Thursday - Saturday 12:00 - 0:00.

18. A McDonald’s restaurant is positioned at the corner of the western side of Kentish Town Road and Holmes Road at number 295. These premises are open until 01.00 daily and due to their consistently later trading hours often presented as the hub of activity on Kentish Town Road in the evening and at night. 19. O’Reilly’s at 289-291 on the western side of Kentish Town Road at the corner of Holmes Road is a public house. The ground floor windows of these premises were boarded on the dates on our visits as the premises were undergoing renovation to re-open later in 2015 as an alehouse operated by the Camden Town Brewery Co. 20. E. Mono is a kebab fast-food restaurant, also with in-door seating area. Located on the western side of the street at 287 Kentish Town Road, the premises are open from 11.00 until 23.30 daily.

21. The Bengal Lancer is an Indian restaurant on the western side of Kentish Town Road at number 253. These premises are open until midnight every day. 22. Chicken Cottage at number 211A is a fast-food take-away restaurant on the eastern side of Kentish Town Road, south of the intersection with Anglers Lane. These premises close at midnight daily. 23. Rio’s is a naturist health spa located on the western side of Kentish Town Road at numbers 239-241. It is open 20-hours-a-day, until 07.00 each day, except Sundays when it opens for 11 hours, up until 22.00. 24. Hoot N Annie’s is a bar located on the eastern side of the street at 180 Kentish Town Road at the corner with Patshull Road. These premises are permanently closed with residential flats being built on the first floor. It is believed that the owner is seeking new tenants to operate licensed premises on the ground floor. 25. Te Amo Grill and Meza Bar is a Lebanese take-away restaurant with a seating area to the rear on the eastern side of 194 Kentish Town Road. The premises advertise as being open until 23.00 seven-days-a-week. However, a man serving at the counter of these premises verified that the venue was open until 03.00 on Saturday 14th March. The council do not have records to show an authorised Temporary Event Notice (TEN) for this night and the premises had its licence suspended in May 2015. 26. Best Kentish Kebab is a takeaway fast-food premises at 128 Kentish Town Road. It is ideally located for late-night trading, being just a few metres to the north of The Abbey Tavern (see 27, below) and directly behind a Night Bus stop. The premises were popular on all the nights we visited the area and trade up to 01.00 each night except Fridays and Saturdays (when they close at 03.00).

27. The Abbey Tavern at 124 Kentish Town Road is a large capacity public house located on the eastern side of the street at the corner with Bartholomew Road. The premises are open until 01.00 on Fridays and Saturdays with midnight closure on all other nights, including Sundays. The Abbey Tavern consistently presented as the busiest (regular trading) night-time licensed venue on Kentish Town Road on Thursdays, as well as at the weekend. The premises have a heated and covered beer garden and roof terrace. DJ-nights and live bands are a feature. The premises attract a young adult music-loving crowd similar to many venues within the Camden Town SPA. Over the Easter Bank Holiday weekend the premises traded until 03.00 from Thursday through to Saturday. We presumed this was on the basis of authorised TENs, however, we are informed that council records do not record TENs for these dates. Our observations on Friday 5 June at 23.50 noted customers of the Abbey stood on street, drinks-in-hand, who were jostling and pushing each other vigorously into the road and in front of fast-moving traffic. This occasioned the intervention of a passing police patrol who stopped their car to tell the young men to calm down. The behaviour continued for a little while soon after the police left the scene and was not restrained by the door supervisor who stood at the entrance to the premises. Kelly Street is a residential street located opposite The Abbey Tavern and Best Kentish Kebab and accessible directly from the western flank of Kentish Town

Road. Like Alma Street, Raglan Street and Willes Road just to the south, the street contains potentially noise-sensitive low-rise period terraced housing with traditional bay windows and single glazing. We found no evidence of street drinkers congregating on the street.

28. Pit Stop is a small Pan-Asian restaurant on the western side of Kentish Town Road at number 157, opposite The Abbey Tavern. These premises are open until 22.30 on Friday and Saturday and until 22.00 Monday – Thursday.

29. Chicken & Pizza Zone is a fast-food restaurant on the western side of Kentish Town Road at number 171, north of its intersection with Kelly Road. The premises trade to 02.30 on Fridays and Saturdays and to midnight on all other nights. 30. Nando’s, part of the national chain of restaurants, is located on the western side of Kentish Town Road at numbers 227-229. These premises close at 23.00 each day. Nandos is located immediately at the junction where Kentish Town Road meets Anglers Lane. 31. Lidl, part of the national supermarket chain, is located on the western side of Kentish Town Road, just north of the junction with Prince of Wales Road at numbers 217-223. These premises close at 23.00 daily.

Prince of Wales Road

To the south of Kentish Town Road one finds the junction with Prince of Wales Road to the west of the street. There are two licensed premises on Prince of Wales Road which are visible from Kentish Town Road and which form part of the natural cluster of premises in this location. 31. The Grafton Arms at 20 Prince of Wales Road is a traditionally-styled public house. It operates Monday-Thursday to 23.00, Friday – Saturday to midnight and on Sundays to 22.30.

32. Drinkers’ Paradise at 129 Castlehaven Road (at the junction with Prince of Wales Road) is an independently owned off-licence shop. Operating times are to 23.00 Monday-Saturday and to 22.30 on Sundays.

33. Buywise at 167-169 Kentish Town Road is a convenience store open seven-days-a-week on the western side of the street, south of its junction with Prince of Wales Road. The premises are licensed to sell alcoholic beverages up until 23.00 six-days-a-week and to 22.30 on Sundays. There are no restrictions on the opening hours of the premises. At 00.05 on Friday 10 July we attempted to make a test purchase of alcohol, which was refused. The premises had metal shutters drawn down over their alcohol shelves. At the same time we attended the shop, one of a group of young adult white males wearing sportswear who were outside the shop, entered and attempted to purchase alcohol. He was also refused. This prompted him to remonstrate with staff, asking: “what’s going on?” and informing them that: “I know the manager”. He then left the shop rapidly © Phil Hadfield 82 and also visibly angry.

34. Payless Food and Wine at 125 Kentish Town Road is a convenience store. The premises are licensed for the Sale of Alcohol, Monday to Saturday, 08.00- 23.00 and on Sundays from 10.00 – 22.30. Licensed Opening Hours are the same. The advertised closing times are to midnight Monday to Friday, to 23.00 on Saturdays and to 16.00 on Sundays; although, confusingly, a sign above the door states: “Open 24 hours”. We entered the premises at 00.23 on Friday 10 July and found the alcohol shelves to be covered by metal shutters. However, we also saw a customer of the premises standing in the shop and talking to staff whilst swigging from a bottle of beer. It was not possible to conclude if the alcohol had been purchased from the premises, or at what time, as we did not witness the relevant transaction.

35. N.K. Foods at 87 Kentish Town Road is a licensed convenience store. Its licensed opening hours are up to midnight daily, with Sale of Alcohol licensed up to 22.30 daily. Advertised closing times are to midnight daily.

36. Quinn’s is a long-standing public house owned by an Irish family located at the southern point of the Kentish Town area. It is located at 65 Kentish Town Road at the junction with Hawley Road. These premises are open until 02.00 Thursday through to Saturday and until midnight for the remainder of the week.

Our observations of premises in the Kentish Town area stopped at Camden Gardens and the junction of Kentish Town Road and Camden Street (the continuation of the A400).

Our patrol did, however, continue south along Kentish Town Road as far as Hawley Crescent in order to observe the movement of pedestrians into and out of the central areas of Camden Town and the Camden Town SPA.

Kentish Town – Transport

1. Trains

(a) Kentish Town West rail station is located on the northern side of Prince of Wales Road.

(b) The station is served by the London Overground service with last trains eastbound towards Stratford at 23.43 Monday to Friday and at 23.36 on Saturday. The last westbound train towards Richmond is at 23.37; the last westbound service on Saturday is at 00.07 and travels towards Willesden Junction.

(d) This station is on the Thameslink line and has a service that travels north to © Phil Hadfield 83

Bedford at hourly intervals through the night from 01.49 to 05.35. The train to Brighton in the south also travels at hourly intervals between 02.50 and 05.20.

2. London Underground

(a) Kentish Town Underground station is on the Northern Line (High Barnet branch). The last train northbound leaves at 00.53 and at 00.21 southbound.

(b) Upon introduction of the ‘night tube’ services, Transport for London (TfL) will be operating the Jubilee, Victoria and most of the Piccadilly, Central and Northern Tube lines all night on Fridays and Saturdays. Kentish Town will form part of this 24-hour weekend network on the Northern Line. This will provide around five services-per-hour in both directions throughout the night.

3. 24-Hour Buses and Night Buses

(a) A bus-stop is located immediately outside Kentish Town Station for night- bus and 24-hour services travelling south along Kentish Town Road. The services are as follows:

134 – To Tottenham Court Road (originating from North Finchley) 214 – To Moorgate (originating from Highgate Village) C2 – To Victoria (originating from Parliament Hill Fields) N20 – To Trafalgar Square (originating from High Barnet).

(b) There is a further bus stop to the south, outside The Abbey Public House on the eastern side of Kentish Town Road. This stop serves the same bus routes as listed in 3 (a) above.

(c) There is a bus stop serving bus routes travelling north on the western side of Kentish Town Road (north of the junction with Crown Place). The services are:

134 – To North Finchley (originating from Tottenham Court Road) 214 – To Highgate Village (originating from Moorgate) C2 – To Parliament Hill Fields (originating from Victoria) N20 – To High Barnet (originating from Trafalgar Square).

(d) Approximately 100 meters north of Kentish Town Station, Kentish Town Road divides into Highgate Road with directions north towards Gospel Oak and Highgate and Fortress Road which leads towards Tufnell Park and Archway. There is a bus-stop to the west of The Forum on Highgate Road served by routes 214 and C2 (see 3 (c) above), and a further bus-stop on the west side of Fortress Road, north of the junction with Kentish Town Road, served by routes 134 and N20 (see also 3 (c) above).

(e) There is a bus-stop on the western side of Kentish Town Road outside Buywise to the south of the junction with Prince of Wales Road which is served by the same routes as 3 (c) above.

Useful websites:

The Kentishtowner: an independent guide to local cultural attractions, including reviews of licensed premises: http://www.kentishtowner.co.uk/

View London: a London-wide listings website with section dedicated to Kentish Town bars: http://www.viewlondon.co.uk/pubsandbars/kentish-town-bars- recommended-london-300.html

3. Tottenham Court Road / Charlotte Street / Goodge Street

Overview

Tottenham Court Road forms part of the A400, a major arterial route for vehicular traffic and the main route between Camden Town and that part of the West End of London that lies in the south-western corner of the Borough of Camden and in Westminster. In terms of the ENTE therefore, the area is an important entry and exit point between north and south for the ENTE of the Seven Dials SPA and the City of Westminster’s ‘West End Stress Area’ SPA in Soho and Covent Garden. This movement of ENTE patrons occurs most visibly

© Phil Hadfield 85 in the case of exit journeys on foot and via the Night Bus and 24-Hour Bus services, at times when most other users of the area have departed. Some of the routes link the return journeys of visitors to Westminster with those of Camden visitors leaving busy exit points for the ENTE at Tottenham Court Road, Warren Street and Camden Town.

A major CrossRail 1 station is being built just to the south west of Tottenham Court Road, within Westminster, on Oxford Street’s junction with Dean Street. This facility will integrate with the newly improved Tottenham Court Road LU station. It is projected by TfL that this will significantly increase visitor footfall to the West End and it seems certain to provide further development opportunities for existing and pipeline licensed businesses in this south-west corner of Camden.

In anticipation of Crossrail, a major redevelopment of the area has been approved that will support the burgeoning retail and leisure facilities on Tottenham Court Road by making the street more pedestrian-friendly and reducing localised air pollution. The scheme will limit two-way traffic on Tottenham Court Road to buses and cycles between the hours of 08.00 - 19.00 Monday-to-Saturday, apart from necessary access. Displaced traffic will use Gower Street, which runs parallel and just to the east, which will revert to two- way use.

Tottenham Court Road has a number of licensed premises along its length, however, it forms a natural area with Goodge Street and Charlotte Street which lie a few meters to the west and it is here that one finds the highest concentration of licensed premises (and also residential presence). A distinctive feature of the Goodge Street/Charlotte Street hub is that it consists mostly of restaurants and other food-led businesses. Another striking feature is the number of outdoor tables and chairs; this being a popular spot for alfresco drinks and dinner to an extent which is unusual for London and the UK. Thirdly, the area is distinctive in having an economy that is more active in the evening and at night than in the late-night period. The Fitzrovia Partnership Business Improvement District are seeking to “position” the Charlotte Street area as “The West End’s Food and Drink Quarter”. Part of this approach is to: “provide incentives to ensure the local working community choose to eat in the area rather than venture to neighbouring districts. This will be achieved through better communication of the overall offer to the working community, the Partnership’s loyalty scheme and general business-to-business activity” (see http://fitzroviapartnership.com/what- we-do/positioning-charlotte-street/). As part of this place marketing, the BID now organise an annual ‘feast@fitzrovia’ festival which showcases the range of cuisine served by local restaurants. In 2015, this event took place between 29 June and 5 July. Our investigations of the area involved a patrol stretching from the junction of Tottenham Court Road with Oxford Street / New Oxford Street, up as far as Euston Road and the Warren Street LU station. Our observations also took us along Goodge Street and Charlotte Street to examine the ENTE around the junction and length of these two streets, together with Percy Street, Rathbone Place, Rathbone Street. Hanway Street (south flank within Westminster), Hanway Place, Great Russell Street, Bayley Street, Tottenham Street, Grafton Way and Warren Street. These streets all contain licensed premises which are © Phil Hadfield 86 included in our audit to the extent that they are visible from, or within 60 metres of, Tottenham Court Road.

Tottenham Court Road premises

The following licensed premises were observed when walking south-to-north from the southern foot of Tottenham Court Road at its intersection with Oxford Street / New Oxford Street to its junction with Euston Road. We counted 30 ENTE premises on this strip. With the exception of the Charlotte Street / Goodge Street hub (which is discussed separately below), premises are more dispersed spatially than in the other areas we visited and could not be described as forming a ‘cluster’: 1. Burger King at 1a / 1b is the main hub of late-night activity on Tottenham Court Road, located as it is on the natural pedestrian route between the entertainment attractions of the West End and the northbound Night Bus stops a little further up Tottenham Court Road on the western side of the street. The premises operate across ground and basement floors up until 03.00 Thursday to Saturday and until 02.00 on all other nights, making the premises a dependable destination for late-night refreshment on every night of the week. The venue employs a SIA-registered door supervisor from 23.00 onwards every night. 2. The Dominion Theatre at 268-269 Tottenham Court Road on the eastern side of the street has a licensed bar. Evening performances begin at 19.30 hours daily and the premises were never observed to be open in the late-night period, beyond 23.00. 3. Café Rouge at 264 Tottenham Court Road on the eastern flank of the street forms part of a national chain of French-themed restaurants. The premises close at 23.00 daily, apart from Sundays (22.30). 4. Garfunkel’s at 267 Tottenham Court Road on the eastern flank of the street forms part of a national chain of American diner-themed restaurants. The premises close at 23.30 every night. 5. VQ is a popular licensed 24-hour café / restaurant. These premises are on the northern side of Great Russell Street (number 111A), a street that leads east from Tottenham Court Road. The venue is approximately 50 meters from the junction. 6. Grosvenor Casino St. Giles is located on the eastern side of Tottenham Court Road, north of its junction with Great Russell Street (number 262). This venue is open 24-hours and contains a cocktail and champagne bar open to the public until 06.00. 7. Hakkasan at 8 Hanway Place is a Michelin-starred Chinese restaurant. The premises contain ‘Ling Ling’, a lounge bar with extended hours. The bar serves Asian-inspired cocktails and features entertainment from a disc jockey. The premises are guarded at night by a door supervisor and operate a smart casual ‘dress code’. Hakkasan Hanway Place has recently launched 'Dim Sum Sundays': a weekly lunch event hosted by resident lounge DJs, available every Sunday from 12:00 until 17:45. Advertised operating hours for the premises are © Phil Hadfield 87 up until 00.30, Monday-to-Wednesday, to 01.30 Thursday-to-Saturday and to 00.15 on Sundays. There is no service of substantial table meals (bar snacks only) on any night beyond 00.15. 8. The St. Giles Hotel on the junction of Tottenham Court Road and Bedford Avenue is a large hotel premises. It features two restaurants open to the public until 22.30 and a public bar open until 02.00 on Fridays and Saturdays and to 01.00 on other nights. 9. Sainsburys Local at 15-17 Tottenham Court Road is a large store located towards the south of the street on its western flank. It trades to midnight Monday-Saturday and to 18.00 on Sundays. It is licensed for the Sale of Alcohol up until 23.00 daily, with licensed Opening Hours of midnight daily. 10. The Jack Horner is a public house located on the eastern side of Tottenham Court Road at 234-6, close to the junction with Bedford Square. It has alfresco drinking from tables outside and operates until midnight Thursday-Saturday, to 22.30 Sundays and to 23.00 for the remainder of the week.

11. Gail’s Kitchen is a large restaurant located at 11-13 Bayley Street, just east of the Jack Horner pub. It trades to 22.00 Monday-Saturday and to 15.00 on Sundays.

12. Big Fernand French Burger Workshop at 19 Percy Street is a fast-food restaurant with eat-in, or takeaway options. The premises are licensed to sell alcohol and wine and beer options are listed on their menu. Big Fernand operate to 21.30, Mondays and Tuesdays and to 22.00 Wednesday-to- Saturday. The premises are closed on Sundays. 13. The Rising Sun is a public house located on the western side of Tottenham Court Road at number 46, just north of the junction with Windmill Street. The windows are adorned with flags and signs promoting forthcoming televised sporting events. The premises operate until midnight Thursday-Saturday, to 22.30 Sundays and to 23.00 for the remainder of the week. 14. Crystal Casino (or Leisure Casino Centre) is a casino arcade located on the western side of Tottenham Court Road at number 69, a few meters south of Goodge Street LU Station. It offers a wide range of games including fruit machines, pool tables and arcade games. Closing hours are 23.00 daily. 15. KFC, part of the national chain of fast-food restaurants, is located at 71 Tottenham Court Road on the western side of the street. The premises trade to midnight daily. 16. The Court at 108a Tottenham Court Road is a public house on the western side of the street at the corner of Maple Street. The premises operate until 01.00 Thursday-Saturday and to 00.00 on Sundays and for the remainder of the week. 17. TCR is a Lounge Bar with outdoor seating at 183 Tottenham Court Road on the eastern side of the street, just above Goodge Street station. The bar features live sports on large screens and disc jockey entrainment in the evening. Alcohol sales are licensed to 00.30 Thursday-Saturday and to midnight Sunday-Wednesday. Closing hours permitted on the Premises Licence are up to 00.30 Sunday-Wednesday and to 01.30 Thursday-Saturday. A TEN © Phil Hadfield 88 application for Saturday 14 February 2015 saw the bar operate on ‘Valentines Night’ until 04.00. Advertised opening hours are to 01.00 Thursday-Saturday and to midnight on all other nights. 18. Gigs Fish and Chips at 12 Tottenham Street, a few meters west of Tottenham Court Road, is a licensed restaurant and takeaway that is advertised from billboards on Tottenham Court Road. The premises operate until 23.00 daily (closed Sundays) and are something of a Fitzrovia institution having been established in 1958. 19. Subway, part of the fast food take-away sandwich franchise, is located north of Maple Street on the western side of Tottenham Court Road at number 109. Its opening hours are between 07.00 and 05.00 every day except Sundays when it closes at 23.00. The premises hold a LNR licence to serve hot food/drink from 23.00 onwards, as follows: Sunday-to-Thursday midnight and Friday-to-Saturday 02:30. Beyond these times, the premises should only serve cold drinks and unheated food. We did not conduct test purchases to check compliance. 20. Spearmint Rhino is a ‘Gentlemen’s Club’ located on the eastern side of Tottenham Court Road at number 161, north of its junction with University Street. These premises are open until 04.00 Tuesday to Saturday, 02.00 on Sunday and 03.00 Monday. Two door supervisors were seen at the entrance to these premises at all times. The premises operate an arrangement with a minicab firm, which collects patrons from cars parked directly outside the premises. Private Hire Vehicles were also repeatedly seen parked on the opposite side of Tottenham Court Road to the venue late at night on all occasions of our visits. These vehicles had drivers stood on the street by shop windows who approached members of the public who were walking along the street and engaged them in conversation, presumably to tout their services. The main focus of the drivers, however, was on the exit of customers from Spearmint Rhino.

21. Lal Qila at 117 Tottenham Court Road on the western side of the street is an Indian Restaurant. It trades up to midnight seven-days-a-week. 22. EZ Mart is a 24-hour convenience store located on the southern side of Grafton Way (number 35), a street leading west from the northern section of Tottenham Court Road. It is approximately 50 meters from the junction with Tottenham Court Road. The premises are licensed for the Sale of Alcohol from Monday-to-Saturday 08.00 until midnight and on Sundays from 10.00 until 22.30. There are no restrictions on opening hours.

We found the premises to be open at 01.52 on 7 June with grille shutters preventing access to the shelves of alcoholic products. Despite this, we were able to purchase a can of Carlsberg at this time, which the assistant produced from behind the counter. The price was £2.40.

23. Ask Italian Restaurant is located at 48 Grafton Way. A small outlet of this national chain, the premises operate to 23.00 daily and to 22.00 on Sundays. 24. The Northumberland Arms at 119 is a public house, also located on the southern side of Grafton Way at the corner of Tottenham Court Road. It operates to 01.00 seven-days-a-week.

25. Tesco Express at 124-125 Tottenham Court Road on the western side of the street is a licensed convenience store. It is licensed to remain open 24/7, but sales of alcohol are restricted to 23.00, Monday-to-Saturday and to 22.30 on Sundays.

26. Sainsburys Local at 145 Tottenham Court Road is located towards the north of the street on its eastern flank. It trades to midnight Monday-Saturday and to 18.00 on Sundays. It is licensed for the Sale of Alcohol, Monday-to-Saturday up until 23.00 and to 22.30 on Sundays. The premises are licensed to open 24/7 should the operator’s wish. 27. The Radisson Blu Edwardian Grafton Hotel is located on the western side of Tottenham Court Road at number 130, between Grafton Way and Warren Street. This hotel has a clap-board on the pavement outside its entrance promoting its public bar named ‘Aston Restaurant and Bar’. A clap-board was used to highlight a drinks promotion at this bar: “Cocktail Hour between 5pm and 8pm every single day” with Mojitos, Elderflower Bellini’s and Bloody Marys at £5 each. These prices are notably low by Central London standards. Closing times for the public bar are 23.00, Monday-to-Saturday and 22.30 on Sundays. 28. A McDonald’s restaurant is located at the corner of Warren Street and the western side of Tottenham Court Road at number 134. These premises are open between 05.00 and 00.45 Sundays to Thursdays and 05.00 and 02.45 on Fridays and Saturdays. 29. Prince of Wales Feathers is a public house at 8 Warren Street, a few meters west of Tottenham Court Road and the Warren Street LU Station. It trades to 23.30 Thursdays and Fridays, to 22.30 Sundays and to 23.00 on other nights of the week. 30. Steak and Lobster at 5-6 Warren Street is a restaurant and cocktail bar, operated by the Radisson Blu Edwardian Grafton Hotel. It operates up until 22.00 daily.

Charlotte Street / Goodge Street premises

There is a distinctive cluster of licensed premises (mostly restaurants) to the west of Tottenham Court Road, centered around the Charlotte Street Conservation Area. In particular, premises are concentrated on Goodge Street that travels east-to-west and Charlotte Street that bisects it from north-to-south. A good proportion of these premises are licensed by the City of Westminster as premises cluster at the cusp of the Camden-Westminster boundary. Westminster’s ‘West End Stress Area’ (WESA) cumulative impact zone boundary stretches as far north as the southern section of Rathbone Place, a street immediately south of Charlotte Street. Restrictions on new premises’ openings and licence variations in this nearby section of Westminster may have encouraged the displacement of investment into Charlotte Street’s nightlife hub: that is, into streets within Westminster and Camden that lie outside of the SPAs of both Licensing Authorities.

The local food and drink scene in these streets is, in fact, even busier than the following listings suggest as there are many other cafes which do not serve © Phil Hadfield 90 alcohol but which operate into the evening period, together with outdoor seating (a particular feature of this area). As noted above, our listings only cover those premises that operate beyond 20.00.

Further notable features of this micro-area are that the Thursday and Friday night opening times are often later than those of Saturdays; most of the premises are food-led; and that only three premises operate beyond 01.30 (two are licensed by Westminster, one by Camden) and these lie on the outskirts of the cluster. Most premises in the cluster operate no later than 23.30. These factors reflect the localised importance of the après-work drinking and dining function. Our research suggests that this particular ENTE cluster is focused more upon dining and drinks throughout the week and on Thursday and Friday evenings; it being less so a Saturday night leisure destination.

The area has a notable residential presence. Colville Place, for example, is a small historic traffic-free alleyway of residential terraced housing that links Charlotte Street and Whitfield Street. Our patrol area sat in close proximity to many other streets in Fitzrovia that contain buildings recently redeveloped as luxury flats and apartments. These new residential developments are continuing at a rapid pace.

Following the approach adopted in relation to cross-borough factors at Kings Cross, the entire list of licensed premises in the cluster is presented. Premises licensed by Westminster are clearly indicated:

Goodge Street

Premises located on that part of Goodge Street between the crossroads with Cleveland Street (that runs north from Goodge Street), and Newman Street (that runs south) and the junction with Charlotte Street approximately 100 meters to the east are as follows (note that on this part of Goodge Street premises on the north of the street are within the London Borough of Camden and those on the south are in the City of Westminster):

(a) Camden (north pavement)

1. Barrica is a Spanish Tapas Bar at 62 Goodge Street. The premises trade to 23.30 each night, with the exception of Sundays when they are closed. The premises offer pavement seating.

2. The One Tun is a public house with a small seating area on the pavement outside the venue at 58-60 Goodge Street. The premises trade to 23.30 each day with the exception of a 22.00 closing time on Sundays. The One Tun presented on a number of occasions as the busiest licensed premises to be found in the Charlotte-Goodge Street cluster.

3. Benito’s Hat, part of the Mexican fast-food restaurant chain, is located at 56 Goodge Street. The opening hours run to 23.00 Thursday to Saturday, to 21.00 on Sundays and to 22.00 Monday to Wednesday. © Phil Hadfield 91

4. The Salt Yard Charcuterie Bar and Restaurant is located at 54 Goodge Street. The premises trade to 23.00 with the exception of Sundays, when the premises close at 22.00. Like most of its immediate neighbours, the premises offers alfresco dining on pavement-located seating to the front.

5. Wrapchic at 48 Goodge Street is styled as the ‘Indian Burrito Company’ and serves burritos and wrapped sandwiches to take-away. The premises operate to 21.00 hours on Thursdays and Fridays, but close at 17.00 for the remaining days of the week.

6. ICCO (Italian Coffee Company) at 46 Goodge Street is a large and vibrant open-plan pizzeria located on the corner of the northern side of Goodge Street and Charlotte Street. The premises features outdoor chairs and tables at pavement level. Closing times are midnight on Fridays and Saturdays and 23.00 throughout the rest of the week.

(b) City of Westminster (south pavement)

The section of Goodge Street that lies on the southern side, between Newman Street and Charlotte Street, contains venues located within the City of Westminster. These premises are from west-to-east, as follows:

7. The Newman Street Tavern is a public house on the corner of Newman Street and Goodge Street (postal address 48 Newman Street). Operating hours are to 23.00, with the exception of Sundays when the premises close at 16.30. The venue offers outdoor seating on both streets to each side.

8. The London Cocktail Club at 61 Goodge Street is a subterranean venue marketed as “a serious drinkers’ party bar”. It operates to midnight Friday and Saturday and to 23.30 Monday to Thursday (closed Sundays).

9. Nando’s, part of the national chain of restaurants, is located at 57-59 Goodge Street. The premises close at 23.30 on Fridays and 22.30 on other nights of the week, except Sundays when the terminal hour is 22.00.

10. Fraq’s Lobster Shack at 55 Goodge Street is an American-inspired licensed seafood restaurant with food to eat-in or takeaway. The premises operate to 23.00 throughout the week.

11. Salento Green Life at 51 Goodge Street is an Italian restaurant / wine bar. The premises operates to 23.30 each night of the week and offer outdoor chairs and tables to the frontage of the premises.

12. The Draft House at 43 Goodge Street is a small public house located on the corner of the southern side of Goodge Street and the western side of Charlotte Street. It operates to 23.00 daily with the exception of Sundays when it is closed.

The section of Goodge Street between Charlotte Street to the west and Tottenham Court Road to the east is entirely within the London Borough of © Phil Hadfield 92

Camden; those premises on the north side of this part of the road are as follows:

13. Kua ‘Aina at 40 Goodge Street is a Hawaiian-inspired burger and grilled food restaurant. The premises operate up until 23.00 daily.

14. Trattoria Mondello at 36 Goodge Street is a traditional licensed Italian restaurant. The premises trades to 23.00 daily and features outdoor seating and tables to the front under a canopy.

15. The Reverend. J. W. Simpson at 32-34 Goodge Street is a basement bar. The premises have their own website at http://www.revjwsimpson.com/ that contains a cocktail menu. An application to vary the Premises Licence to sell alcohol later and to close later has recently been made by 32A Limited, operators of the bar. The current opening hours are: Monday to Thursday from 10.00 to 23.30, Friday and Saturday from 10.00-midnight, and Sundays from 10.00-23.00. The new opening hours applied for are: Monday to Wednesday from 10.00 until 00.30, and on Thursday, Friday and Saturday to open from 10.00-01.00 the following morning. Sunday hours would remain unchanged. These hours would introduce the first drink-led late-night operation within Camden to this particular cluster of premises.

16. The Fitzrovia at 18 Goodge Street is a public house located at the corner of the north side of Goodge Street and the western side of Whitfield Street. The premises trade to 23.00, with the exception of 22.30 closing on Sundays. The pub is something of a local landmark, being associated with the historic patronage of several famous names in the arts.

17. Tesco Metro supermarket at 10-16 Goodge Street is located on the north side of the street at its corner with the east side of Whitfield Street. These are the only off-sales premises in the Goodge Street/Charlotte Street cluster. Although licensed to trade 24/7, the premises are open Monday-to-Friday until midnight, until 23.00 on Saturdays and to 18.00 on Sundays. The premises are licensed for the Sale of Alcohol to 23.00 Monday-to-Saturday and to 22.30 on Sundays.

The licensed premises on the southern side of Goodge Street between Charlotte Street to the west and Tottenham Court Road to the east are as follows:

18. Yoi Sho at 33 Goodge Street is a Japanese restaurant on the southern flank of the street. Operating hours are to 22.30 daily, with the exception of Saturdays and Sundays when the premises close at 22.00.

19. Sanxia Renjia at 29 Goodge Street is a Chinese restaurant with private Karaoke rooms. The premises operate to 23.30 Thursday to Saturday, to 23.00 Monday to Wednesday and to 22.30 on Sundays.

20. Spaghetti House at 15 Goodge Street is an Italian restaurant on the southern side of the street at the corner with the eastern side of Whitfield Street. The premises trade to 23.00 daily with the exception of Sundays when the premises close at 22.00.

21. Subway, part of the fast-food sandwich franchise, is located at 13 Goodge Street on the southern side of Goodge Street close to the junction with Tottenham Court Road. The premises trade to 23.00 Monday to Friday, to 22.00 on Saturdays and to 21.00 on Sundays. The Monday-Friday hours fall just outside of the requirement to obtain a Late-Night Refreshment licence to serve hot food and drink.

22. Crazy Bear is a restaurant and cocktail bar located on the eastern side of Whitfield Street at numbers 26-28 (a street that runs south from Goodge Street) and is within the London Borough of Camden. These premises are distinctive, being illumined by rows of fairy lights that run along the façade of the building to the canopy that lies above the entrance door. The premises are a few meters south of Goodge Street and clearly visible from that location. The opening hours of the cocktail bar are 17.00 – Midnight Monday; Midday – Midnight on Tuesday; and from Wednesday – Saturday Midday – 01.00.

The premises feature disc jockey-led events and music seeping from the premises could be heard above the ambient noise levels of the street outside. The premises have a website at http://www.crazybeargroup.co.uk/fitzrovia/. These premises, along with Reverend. J. W. Simpson, The London Cocktail Club, and Bourne and Hollingsworth Bar, approximate more than other venues in the Charlotte Street / Goodge Street cluster to a West End late-night bar model.

Charlotte Street – eastern side

Charlotte Street runs from Rathbone Place to the south to Howland Street to the north and is crossed by Goodge Street. The majority of later hours venues are concentrated in the southern part of Charlotte Street, between Rathbone Place and Goodge Street. This part of the street is divided between the west side that lies within the City of Westminster and the eastern side that is within the London Borough of Camden. The premises on the eastern side of the road, listed from the south-to-north (being within Camden), are as follows:

23. Josephine’s Filipino Restaurant at 4 Charlotte Street operates until 23.00 daily, part from Sundays when the venue closes at 22.30.

24. Brasserie Blanc at 8 Charlotte Street is a French restaurant with external seating. It operates until 23.00 throughout the week, closing earlier, at 21.30, on Sundays. The venue’s website mentions how the premises attracts the “après work cocktail crowd” http://brasserieblanc.com/location/charlotte-street/.

25. The Palms of Goa at 12 Charlotte Street is a restaurant specialising in southern Indian cuisine. Like its neighbours, the venue has outdoor seating overlooking Charlotte Street. The premises close at 23.00 daily (22.30 Sundays).

26. Bi Bim Bap at 10 Charlotte Street is a modern Korean restaurant open until 23.00 Monday to Saturday. The premises are closed on Sundays.

27. Siam Central at 14 Charlotte Street is a Thai restaurant on the eastern side of the street at its junction with the southern side of Windmill Street. The premises operate to 23.00 Monday to Friday and to 22.30 on Saturdays and Sundays. The restaurant offers outdoor pavement seating.

28. The Fitzroy Tavern at 16A Charlotte Street is on the corner of the north side of Windmill Street and the east side of Charlotte Street. Large crowds of customers were observed outside these premises on Thursday and Friday evenings conducting conversations whilst holding beverages and smoking cigarettes. The pub, which is operated by the Samuel Smith’s Brewery, is extremely popular and this may be due, in part, to its relatively cheap draft beer prices. The premises are also somewhat iconic, having been frequented historically by famous London residents such as Dylan Thomas and George Orwell. The premises close at 23.00, apart from Sundays (22.30).

29. Barnyard at 18 Charlotte Street is a modern country farmhouse-themed restaurant and bar. The premises feature outdoor tables and chairs. Closing times are 23.00, apart from 22.30 Monday to Wednesday and 21.00 on Sundays.

30. Elena’s L’Etoile is a traditional French restaurant at 30 Charlotte Street. It closes at 23.00 (last food and drink orders 22.30) daily. The premises have external seating for alfresco dining.

31. Dim T is an Asian Dim Sum restaurant at 32 Charlotte Street. It closes at 23.30 (last orders 23.00) Tuesday to Saturday and at 23.00 (last orders 22.30) on Sundays and Mondays.

32. Pied a Terre at 34 Charlotte Street is a Michelin-starred modern restaurant. It operates up to 23.00 daily, except Sundays when the premises are closed.

33. Thai Metro at 38 Charlotte Street is a Thai restaurant on the eastern side of the road and on the corner of Colville Place. This venue has an external seating area. The premises close at 22.00 each day.

34. Andreas is a Greek and Mediterranean restaurant at 40 Charlotte Street, close to the junction with Goodge Street. The premises offer outdoor tables and seating. Closing times are 23.30 daily.

Charlotte Street – western side

The venues on the western side of Charlotte Street between Rathbone Place and Goodge Street are within the City of Westminster. From south-to-north, the premises are as follows:

35. Cote, part of the nationwide French Bistro chain, is located at the southern end of Charlotte Street (number 5). The premises feature outdoor seating and tables. Closing time is 23.00 throughout the whole week.

36. Pizza Express, part of the national chain of pizzerias, is located at 7-9 Charlotte Street. The premises feature outdoor seating and tables. Closing time © Phil Hadfield 95 is 23.00 throughout the whole week.

37. The Charlotte Street Hotel at 15-17 Charlotte Street is a large venue, which contains the ‘Oscar Bar and Restaurant’ a facility popular with non-residents and with a separate public bookings system. Oscars is located on the Ground Floor and is immediately accessible from the street. It features extensive tables and chairs to the frontage of the building, which were full occupied at almost all the times of our visits, up until the premises’ closing time. The hotel and bar/restaurant is operated by Firmdale Hotels, a company that owns several boutique hotels in Central London. The premises are perhaps the most prominent within this localised cluster. Closing hours for Oscar are 23.00 Monday-to-Saturday and 22.30 Sundays.

38. Wahaca at 19-23 Charlotte Street is a Mexican restaurant and forms part of a local chain of similar outlets. The premises feature outdoor seating and tables. Closing time is 23.00, apart from Sundays when the premises close at 22.00. The premises feature a first-floor cocktail bar, spatially divided and separately branded as ‘Mezcaleria’. The bar also has DJ-entertainment and later advertised operating hours of: 23.30 Monday-to-Wednesday and 00.30 Thursday-to-Saturday.

39. Vagabond at 25 Charlotte Street is a wine bar and off-sales wine retailer. It trades until midnight on Fridays and Saturdays, to 23.00 Mondays to Thursdays, and to 20.00 on Sundays.

40. Roka at 32 Charlotte Street is a large up-market Japanese restaurant on the western side of Charlotte Street at its junction with Rathbone Street. The premises close at 23.30 daily, except Sundays when the closing time is 22.30.

41. Shochu Lounge, 32 Charlotte Street, operates as a cocktail bar that is run alongside Roka above. The premises are accessed via a separate door at street level that leads to a set of steps to the basement premises located directly below the Roka restaurant. Shochu Lounge trades until midnight every night except Sundays when its closing time is 22.30.

42. Zizzi, part of the Italian restaurant chain, is located at 33 Charlotte Street. The premises feature extensive outdoor seating and tables. Closing time is 23.00, apart from Sundays when the premises close at 22.30.

43. Herman Ze German at 43 Charlotte Street is a fast-food restaurant selling varieties of Wurst. There is additional seating in the basement and outdoor seating and tables to the frontage of the premises. Closing times are midnight on Fridays and Saturdays, 23.30 Mondays to Thursdays, and 22.30 on Sundays.

Yog, part of a chain of similar outlets specialising in frozen yoghurt, is located at 45 Charlotte Street. Although not conducting licensable activities, the premises are notable for trading until 23.00 daily, apart from Sundays (22.00 closing).

Charlotte Street – north of Goodge Street

North of Goodge Street, premises on both the western and eastern sides of Charlotte Street are within the London Borough of Camden. There are fewer licensed premises on this stretch of Charlotte Street, but the following were noted:

44. Pescatori at 57 Charlotte Street is an Italian seafood restaurant on the western side of the street. It operates up to 22.30 Monday to Friday, to 23.00 on Saturdays and is closed on Sundays.

45. Navarro’s at 67 Charlotte Street is a Spanish restaurant, also on the western side of the street. It operates up to 22.30 Monday to Saturday and is closed on Sundays.

46. Gaucho at 60A Charlotte Street is an Argentinian restaurant located on the western side of the street on the junction with Tottenham Street. The premises close at 23.00 every day of the week.

Further to the north of Charlotte Street there are three other premises: Bobo Social (a burger restaurant/cocktail bar); Tsunami, a Japanese restaurant; and Italia Uno, an Italian restaurant. None trade later than 23.30 on any night and all are located to the west of the street. As these three premises are geographically somewhat removed from the cluster they have not been included in our audit of premises.

Venues on streets around Charlotte Street

47. Drakes Tabanco at 3 Windmill Street is a Spanish restaurant. It is located on a street that leads east from the mid-section of Charlotte Street and is within the London Borough of Camden. The closing time of these premises is 23.00 daily, apart from Sundays, when the premises are closed.

48. The Bourne and Hollingsworth Bar is located at 28 Rathbone Place at the junction with Percy Street. The venue is a Prohibition-era themed basement bar open until 01.30 Wednesday to Saturday, to midnight Mondays and Tuesdays and closed on Sundays. This venue is within the City of Westminster. The premises presented as one of the more noisy businesses in the area, with noise escape from its entrance doors and customers drinking outside at pavement level; these activities were overseen by the venue’s door supervisor.

49. Elysee at 13 Percy Street is a Greek restaurant, bar and music and dancing venue with a roof garden. Unusually, the premises’ ‘cocktail bar’ and ‘main restaurant’ trade until 03.30 from Monday-Saturday (closed on Sundays). This nightly late-night trading is emphasized on the venue’s website where activities are described as: “continuing into the early hours every night, making this a popular late-night haunt in Central London” http://www.elyseerestaurant.com/restaurant.php (as accessed 22/09/15 2015). The premises are within Camden. © Phil Hadfield 97

50. Jerusalem Bar and Kitchen at 33-34 Rathbone Place is a drinking, dining and dancing venue located a few metres south of the junction with Percy Street and within Westminster. It operates to 02.00 on Fridays and Saturdays, to 01.00 on Thursdays, to midnight on Wednesdays and to 23.00 on Mondays and Tuesdays. It is closed on Sundays. These premises were popular on the evenings of our visits and presented as busy, with lively crowds around the entrance and waiting minicabs in the 00.30 – 01.30 period at weekends.

Rathbone Street is a crescent that runs parallel and to the west of Charlotte Street. The premises on this street, all of which lie within the City of Westminster, are naturally part of the Charlotte Street / Goodge Street cluster due to their direct proximity. They are listed from south-to-north, as follows:

51. The Marquis of Granby at 2 Rathbone Street is a traditional London pub. It operates to midnight Friday and Saturday, to 23.00 Monday to Thursday, and to 22.30 on Sundays. The premises feature outdoor tables and seating to the frontage.

52. Koba at 11 Rathbone Street is a small Korean restaurant. It trades up to 23.00 daily.

53. The Newman Arms at 23 Rathbone Street is a traditional public house. It operates Monday-to-Saturday from midday to 23.00 and is closed on Sundays.

54. The Duke of York at 47 Rathbone Street is a public house located on the northern end of the street at the junction with Charlotte Place. The premises close at 23.00 each night except Sundays when they are closed. On the nights of our visits this pub was regularly busy, with many customers stood outside, drinks in hand. Rathbone Street has only slow, one-way, vehicular traffic and so lends itself to alfresco socializing.

55. Fino is a Basque-themed tapas bar / restaurant with an entrance on the northern side of Rathbone Street (postal address 33 Charlotte Street). It is the neighbouring premises to Roka (see 39 above) on Charlotte Street. The venue closes at 23.00 daily, except Sundays when it is closed.

Charlotte Place is a narrow-sided pedestrianised alleyway that leads north of Rathbone Street and contains:

56. Da Paolo In Parma at 3 Charlotte Place is a traditional Italian restaurant. The premises operate to 23.00 every day.

57. El Burrito is a small Mexican restaurant / bar. The premises operate up to 22.00 Monday to Friday and are closed on Saturdays and Sundays.

Tottenham Court Road Area – Transport

1. London Underground

There are three London Underground stations along Tottenham Court Road. These are Tottenham Court Road station with an entrance on Oxford Street close to the junction with Tottenham Court Road and New Oxford Street; Goodge Street station located approximately 400 meters from the southern end of Tottenham Court Road; and Warren Street station at the northern end of Tottenham Court Road.

(a) Tottenham Court Road LU Station is served by the Northern Line and the Central Line. Central Line trains were not stopping during our research period due to the continuing redevelopment of the station. The last Northern Line train northbound is at 00.41 and the last train southbound is at 00.31.

(b) Goodge Street Station is served by the Northern Line. The last Northern Line train northbound is at 00.42 and the last train southbound is at 00.30.

(c) Warren Street Station is served by both the Northern and Victoria lines. The last Northern Line train northbound is at 00.43 and the last train southbound is at 00.29. The last Victoria Line train northbound is at 00.41 and the last train southbound is at 00.28.

(d) Following introduction of the ‘night tube’ services, Transport for London (TfL) will be operating the Jubilee, Victoria and most of the Piccadilly, Central and Northern Tube lines all night on Fridays and Saturdays. Tottenham Court Road, Goodge Street and Warren Street will form part of this 24-hour weekend service. This will provide around five services-per-hour in all directions throughout the night.

2. 24-Hour and Night Buses

Tottenham Court Road caters for traffic that travels in a northerly direction only (as noted above, this is soon to change). There are two north-bound bus stops on the western side of Tottenham Court Road towards its southern end that become busy with people into the early hours of morning. There are further stops along the western flank at Percy Street, Goodge Street Station and Warren Street Station. The 24-Hour and Night Bus routes that stop at these bus stops are as follows:

10 – To Kings Cross (originating from Hammersmith) 14 – To Warren Street (originating from Putney Heath). 24 – To Hampstead Heath (originating from Pimlico). 134 – To North Finchley (starting from Tottenham Court Road). N5 – To Edgware (originating from Trafalgar Square) N20 – To High Barnet (originating from Trafalgar Square) N29 – To Enfield (originating from Trafalgar Square) N73 – To Walthamstow (originating from Victoria) N253 – To Aldgate via Camden and Finsbury Park (originating from Trafalgar Square) N279 – To Waltham Cross (originating from Trafalgar Square). © Phil Hadfield 99

4. Holborn

Overview

The area we patrolled stretched from Tottenham Court Road LU station, east along New Oxford Street and High Holborn to Holborn LU station on Kingsway and then further east along High Holborn, as far as Chancery Lane LU station at the intersection with Gray’s Inn Road. Locations up to 150 metres south and north from Holborn LU station on Kingsway and on Southampton Row were also included; these being as far as the junctions with Remnant Street / Great Queen Street and Bloomsbury Way / Theobalds Road respectively. The triangular block formed by Sicilian Avenue / Bloomsbury Way / Southampton Row was included as this contained a number of licensed premises.

The methodology for this location was slightly different to that of the other areas, as we included sections of the existing Seven Dials SPA in New Oxford Street and High Holborn to the west of the junction with Kingsway/Southampton Row. In addition, takeaway restaurant operations trading in the 20.00 – 23.00 period are also included. The reasoning behind these adaptions was to understand how all current ENTE activity interacts with, what appears from the police statistics, to be an upturn in recorded crime just to the east of the SPA boundaries. It was important to consider the ways in which ENTE visitors use and flow through the area as a whole, rather than concentrating too narrowly on what is geographically a very small emergent area of concern.

High Holborn

Beginning at the junction of High Holborn with New Oxford Street and running from west-to-east, the premises observed were: 1. The Hoxton Holborn Hotel. This ‘boutique’ Hotel opened in September 2014 and features a large ground floor restaurant and bar area operated as ‘Hubbard and Bell’. It is located on the south side of High Holborn at numbers 199-206 close to the junction with New Oxford Street. In 2015, the premises were in- vogue as a destination for dinner and drinks. The closing hours of 02.00 (midnight Sundays) are amongst the latest in this location. The premises are mostly occupied by non-residents; with the entrance guarded by two door supervisors from 20.00 onwards. The hotel, due to its prime location and on- trend design, has established itself as a popular option for leisure visitors to London who appreciate the vibrant atmosphere on the ground floor. There are 174 bedrooms. The premises have less appeal for business travellers, who were generally absent in the observations; this was matched by the feedback on ‘Trip Advisor’ reviews. 2. The Holborn Grind is an espresso bar and cocktail bar operated by the Hoxton Holborn Hotel just to the side of the main building at the corner of Newton Street. These premises have a separate entrance to the hotel at 199 High Holborn. Closing times are midnight Friday and Saturday, 23.30 Monday- Thursday and 19.00 on Sundays. 3. The Chicken Cottage is a fried chicken takeaway restaurant. It is located on the north side of High Holborn (number 130) opposite the entrance to Newton Street to the south. Trading hours are to 04.00 on Friday and Saturdays, to 02.00 Monday to Thursday and to midnight on Sundays. 4. The Princess Louise at 208 High Holborn is a traditional public house located on the southern side of the street to the east of the junction with Newton Street. The premises trade to 23.00 daily, apart from Sundays when they close at 18.45. 5. A large Sainsbury’s supermarket at 129-133 Kingsway is positioned on the south side of High Holborn at the busy junction with Kingsway on the opposite (western) side of the road to the tube station. The premises sell alcoholic beverages. Closing hours are 23.00 daily, apart from Sundays when the premises close at 18.00. The Holborn LU Station is located opposite Sainsbury’s on the eastern side of Kingsway at the corner of High Holborn (east). Moving along High Holborn to the east of the junction with Kingsway / Southampton Row one finds: 6. Hiba Lebanese and Palestinian Restaurant and Takeaway is located at 113 High Holborn. The premises do not serve alcohol, but do serve hot food and drink to take-away. There is outdoor seating on the street and this accommodates the smoking of shisha. Hiba advertises itself as open up to midnight seven-days-a-week. Our experience, however, was that the premises remained open and well-attended much later than this. The premises were still trading when our observations ceased at 04.00. There is no Premises Licence attached to the premises. © Phil Hadfield 101

7. A McDonald’s Restaurant is located on the north side of the street at 112 High Holborn between Southampton Row to the west and Procter Street to the east. These premises open 24-hours-a-day, seven-days-a-week and trade across ground, basement and first floors. 8. Londis is a licensed mini-market at 6-8 Eagle House, Proctor Street; this being a street that leads north from High Holborn. The premises are located only a few metres from High Holborn on the eastern side of Proctor Street adjacent to a Night Bus stop. The premises trade 24/7 and are licensed to sell alcohol up until 23.00. The premises draw down a grill over the alcohol shelves, some of which are located behind the counter. At 00.41 on 7 June we conducted a test purchase and were supplied with a can of Carlsberg from behind the counter at a price of £2.40. 9. Pret a Manger operates a cafe on the southern side of the street at 240-1 High Holborn opposite the entrance to Procter Street. These premises close at 23.00 Wednesday-Saturday, at 22.00 Mondays and Tuesdays and at 21.00 on Sundays. The hours allow the premises to operate without the need for a Late- Night Refreshment Licence. 10. The Holborn Dining Room is located within the Rosewood Hotel. It occupies a large ornate building on the south side of the street at 252 High Holborn, between the junction with Procter Street and Red Lion Street. The restaurant is advertised to the public and operates to 23.30 daily (22.30 on Sundays). 11. The Old Red Lion at 72 High Holborn is a traditional public house on the northern side of the street at the corner with Red Lion Street. The premises operate to midnight daily, except on Sundays when the venue is closed. 12. Kimchee – which opened in 2011 and is now part of an expanding chain - is a Korean restaurant on the north side of the street at 71 High Holborn, to the east of the junction with Red Lion Street. Final service at this restaurant is at 22.30 daily (22.00 Sundays). The premises feature a cocktail bar, advertised as a separately-branded entity to the restaurant, although housed within the same space and operating alongside the restaurant to the same trading hours. 13. A Sainsbury’s Local mini supermarket is located at Mid City Place, a few meters to the east of Kimchee at 71 High Holborn. These premises sell alcoholic beverages and close at 23.00 daily (16.00 Sundays). 14. Penderel’s Oak at 283-288 High Holborn is a large public house run by J.D. Wetherspoon’s Plc. It is located to the south side of the street opposite the Sainsbury’s Local (see 12 above). These premises close at 01.00 on Fridays and Saturdays, at midnight on Thursdays and at 23.30 for the remainder of the week, including Sundays. 15. Davy’s of Holborn is a wine bar and grill on the north side of the street at 57 High Holborn to the east of Hand Court. These premises are open until 23.00, apart from Thursday and Friday when the venue closes at 00.00. 16. The Cittie of Yorke at 22 High Holborn is a historic large capacity public house on the north side of the street next to the entrance of a passageway that leads to Gray’s Inn Square. These premises are open until 23.00 daily, but are closed on Sundays.

New Oxford Street / Bloomsbury Way

There is a further concentration of premises along New Oxford Street and Theobald’s Road. The premises are mostly located between Oxford Street and the junction of New Oxford Street and High Holborn as follows: 17. All Bar One, part of a national chain of ‘city bars’, is located on the northern side of the street at 108 New Oxford Street close to the junction with Tottenham Court Road. The closing times of the premises are: 01.00 Friday and Saturday, midnight on Thursdays, 23.00 Monday-Wednesday and 22.30 on Sundays. 18. Kimchee-To-Go, part of the Korean restaurant chain, is located at 106 New Oxford Street to the north side of the street. The premises trade to 21.00 daily, providing food and drink to eat-in or takeaway. 19. A Morrison’s supermarket can be found on the south side of the road, at 63- 69 New Oxford Street, between the junctions with Earnshaw Street and Dyott Street. The premises trade to 23.00 daily. 20. Subway, part of the take-away sandwich chain of franchise restaurants, is also on the south side of the street at 71-5 New Oxford Street. The premises trade to 04.00 Fridays and Saturdays, to 23.00 on Thursdays, 21.00 Monday to Wednesday, and to 17.00 on Sundays. We attended these premises at 02.05 on 11 July and witnessed that they were serving heated food and hot drinks. On this basis we assume that the premises holds a LNR licence. 21. British Luxury Club (BLC) is a ‘James Bond-style bar and club’ according to social media outlets. The somewhat secretive London nightclub brand have re- located from their former premises on Bond Street to 55-59 New Oxford Street on the southern side of the street at the corner with Dyott Street. The venue does not have a website, but has both a Facebook page and a Twitter account which both list its opening hours as up to 07.00 Tuesday to Saturday. There are no posts for 2015, however on the occasions of our visits, the premises began operating from around 22.00, closing at around 03.30. Alcohol service hours on the Premises Licence run until 06.00, making this venue a potential draw for after-hours clientele moving from other premises in the early hours of the morning. Having had experience of the brand in its former guise it was apparent to us that BLC may have lost the celebrity and high net worth clientele it once attracted when operating in Mayfair. 22. The Crown public house is located on the southern side of the street at 51 New Oxford Street, opposite Steadham Place. The premises, which are operated by the Samuel Smith’s Brewery, trade to 23.00 daily (22.30 Sundays). There are two licensed convenience stores and one on-trade premises at the very north of Shaftesbury Avenue close to where this street has its junction with New Oxford Street and directly accessible and visible to passers-by on New Oxford Street. 23. A.P. Food Express at 228 Shaftesbury Avenue is a convenience store that is licensed to open 24/7. Alcohol sales are permitted to 23.00, Sunday-to- Thursday and to midnight on Fridays and Saturdays. We observed the interior of these premises at 01.16 on 7 June and 01.20 and 01.50 on 11 July and noted that grille shutters had been pulled down to cover the shelves containing alcohol. Nonetheless, a group of young men were seen to leave the shop at © Phil Hadfield 103

01.16 on 7 June with a bottle of vodka in a blue plastic bag. This alcohol was consumed directly by the group who swigged from the bottle. They were present for the following 15 minutes, standing around the terrace in the triangular block formed by the junctions of Shaftesbury Avenue, Bloomsbury Street and New Oxford Street. This fully-paved public space lies directly opposite A. P. Food Express and Rozelle Treats (see below). 24. Rozelle Treats (formerly ‘News N’ Treats’) at 234 Shaftesbury Avenue is a convenience store. On our visits it had a notice advising of a current Premises Licence application displayed in the window. We noted at 01.21 on 7 June that the premises had a large display of alcohol on offer (around one third of total shelf space) and that this appeared to be for sale, not being covered by shutters or placed behind the counter. We returned at 01.25 on 11 July and found the display of alcohol to be the same. There were no shutters or signs to indicate sales had ceased and the shelves were illuminated. We conducted a test purchase of a bottle of beer at this time but were refused. Nonetheless, another customer entered and ordered a bottle of vodka. The sales assistant checked behind his desk and confirmed a price of £20. He was unwilling to make the sale, however, whilst we were present. We then left the shop and the other customer remained inside. We proceeded to watch the shop entrance from a distance. There was no activity for several minutes. We then saw the other customer briefly look out from the shop door. Having seen us, he rapidly re- entered the shop. We then left the scene, continuing our patrol along High Holborn. We returned at 01.45 to find Rozelle Treats closed and locked with the metal window shutters drawn down over its windows. A. P. Food Express remained open. A check with the client’s licensing manager in early-May and again in late-July confirmed that the Premises Licence for Rozelle Treats had lapsed in January 2015 and had not been so far been renewed, so the premises should not have been serving alcohol.

We made particular note of the paved terrace area, mentioned above in relation to A.P. Food Express, which inhabits the triangular block formed by the junctions of Shaftesbury Avenue, Bloomsbury Street and New Oxford Street. This public space contains a rear entrance to The Crown (Premises 22 above) and these premises inhabit a small roped-off area of the terrace as an outdoor seating area up until 23.30. Beyond this time, all occupancy by The Crown is removed. The terrace contains a raised seating area, and this was regularly found to be covered with litter and street drinking detritus, despite a sign warning that police have the right to confiscate alcohol in this area and impose a fine for public drinking of up to £500. On 11 July, for example, we noted a group of seven young Spanish tourists who were sat talking and drinking from cans of beer and lager whilst perched upon the raised terrace. Their drinks were being taken from a blue plastic bag, which we recognised as of the type used to serve alcohol in A.P. Food Express. 25. The London Cocktail Club at 224 Shaftesbury Avenue (part of the London- based chain that is also at Goodge Street) is open Monday-Thursday up to 23.30, to midnight Fridays and Saturdays and on Sundays is open for private bookings only. The premises, as the name suggests, specialise in cocktails. The premises operate drinks promotions such as 2-for-1 cocktails. Social media feeds suggest the premises are often used for their happy hour promotions ahead of customers moving on to other venues.

26. The Bloomsbury Tavern at 108 New Oxford Street is a public house operated by brewers Shepherd Neame. It is located on the southern side of the road, at the corner with Shaftesbury Avenue. The premises trade up to 23.00 daily (22.30 Sundays). 27. The Old Crown is a public house on the southern side of the street at 33 New Oxford Street at the corner of Museum Street. The premises have a large seating area to the rear, on the paved area at the apex of the corner with Shaftesbury Avenue. There is a late-licence which permits the premises to operate to 03.00 Thursday-Saturday and to midnight on other days of the week. The pub’s website mentions DJ entertainment at weekends. 28. Giotto at 52-54 New Oxford Street is an Italian Restaurant on the northern side of the street. It trades to 23.00 daily. 29. Savoir Faire at 42 New Oxford Street, on the corner with Little Russell Street, is a French Restaurant on the northern side of the street. It trades to 23.00 daily. 30. Prezzo at 34 New Oxford Street is part of the national chain of Italian restaurants. It is located on the northern side of the street. Trading hours are up to 23.00, apart from Sundays when the premises close at 22.30. 31. The Holborn Whippet is a public house at the northern end of Sicilian Avenue, as it emerges onto Bloomsbury Way. The premises trade to 23.30 daily (22.30 Sundays). 32. Salvador and Amanda is styled as a Spanish Restaurant and Cocktail Bar. It is a large premises located on the northern side of Bloomsbury Way on the edge of Bloomsbury Square (1-6 Vernon Place). The premises are open until 01.00 on Mondays, 02.00 on Tuesdays, Wednesdays and Thursdays, and to 03.00 on Fridays and Saturdays. The premises are closed on Sundays. The venue regularly features live music and DJ-led entertainment. Loud music was heard to emit from these premises at levels well above the ambient street level on 00.35 on Saturday 11th April 2015. The premises have large glass doors with no acoustic lobby. These doors were often left open during the evening trading times allowing unnecessary noise escape.

Kingsway

There is a concentration of licensed premises just to the south of Holborn LU Station on Kingsway as follows:

33. Burger King, at 117 Kingsway is a small restaurant of the franchise on the western side of the street. It trades to 01.00 Monday – Thursday and on Sundays, and to 02.00 on Fridays and Saturdays.

34. Pita Pit at 115 Kingsway is a Mediterranean fast-food takeway restaurant on the western side of the street. Operating hours are to 23.00 Friday and Saturday, to 21.00 Monday – Thursday and to 18.00 on Sundays. The hours

© Phil Hadfield 105 allow the premises to operate without the need for a Late-Night Refreshment Licence. 35. Café Don Quixote is a small Mediterranean-styled restaurant on the western side of the street at 101 Kingsway. The premises trade between 23.00 and 05.00 daily on the basis of a LNR licence only, with no alcohol sales permitted. 36. Parkers Wine Bar and Restaurant at 109 Kingsway is located on the northern side of Parker Street, being a street that travels west from the western flank of Kingsway. The premises close at 23.00 daily. 37. Secrets at 51 Parker Street (just off Kingsway’s western flank) is a Gentlemen’s Club that features nude table dancers and stage shows. The premises operate until 03.00 daily (closed on Sundays). On the nights of our inspections of the area, up to six men could be observed at the junction of Parker Street and Kingsway who were approaching passers-by – including male members of the research team - in order to tout for customers to enter this venue. 38. All Bar One, part of the national chain of similar premises, is located on the eastern side of Kingsway (number 58) at the corner of Remnant Street. Closing hours are midnight Friday and Saturday, 23.00 Monday-to-Thursday and 22.30 on Sundays. 39. The Shakespeare’s Head is a large public house on the eastern side of the street at Africa House, 64-68 Kingsway, opposite the junction with Parker Street. These premises are operated by the national pub chain J. D. Wetherspoon Plc; operating hours are to 01.00 Friday and Saturday and to midnight on all other days, including Sundays. The premises are located very close to a Night Bus stop. This was seen to create something of a bottleneck on the pavement, wherein customers who were stood outside the pub mingled in close proximity to persons waiting at the bus stop.

Holborn area – Transport

1. London Underground

(a) The main transport hub for the area is Holborn LU Station, located on the eastern side of Kingsway at the corner of High Holborn. The station is served by the Central Line and by the Piccadilly Line. The last train eastbound on the Central Line is at 00.33 and the last train westbound is at 00.30. The last train eastbound on the Piccadilly line is at 00.38 and at 00.28 westbound.

(b) With the introduction of ‘night tube’ services, Transport for London (TfL) will begin operating the Jubilee, Victoria and most of the Piccadilly, Central and Northern Tube lines all night on Fridays and Saturdays. Holborn will form part of this 24-hour weekend service. This will provide around five services-per-hour in both directions throughout the night.

2. Night Buses and 24-Hour Buses

(a) The Night Buses and 24-hour bus services in this area run, generally, twice an hour between 00.30 and 06.30.

(b) There are two bus stands on the north side of New Oxford Street close to the junction with Tottenham Court Road. The bus stop nearest to Tottenham Court Road is served by the following routes:

N19 – To Finsbury Park (originating from Clapham Junction) N35 - Terminates at this bus stop (originating from Clapham Junction) N38 – To Walthamstow (originating from Victoria) N41 – To Tottenham Hale (originating from Trafalgar Square)

The bus stop furthest from Tottenham Court Road is served by the following services:

188 – To Russell Square (originating from Greenwich) 243 – To Wood Green (originating from Waterloo) N1 – Terminates at this bus stop (originating from Woolwich) N68 – Terminates at this bus stop (originating from Coulsdon) N91 – To Cockfosters (originating from Trafalgar Square) N171 – To Hither Green (originating from this bus stop)

N1, N19, N35, N38, N41, N68, and N171 – see Paragraph 2 (b) above.

Also, by:

25 – To Ilford (originating from Oxford Street) 242 – To Homerton (originating from Oxford Street) N8 – To Hainault (originating from Oxford Street) N55 – To Chingford (originating from Oxford Street) N207 – To Uxbridge (originating from Oxford Street).

(d) There is a bus stop on the southern side of Bloomsbury Way at the junction with Sicilian Avenue served by routes N19, N35, N38, N41 and N55 that travel in an opposite (westerly) direction to the routes mentioned in 2(b) and 2(c) above.

(e) A bus stop on the southern side of New Oxford Street at its eastern end is served by: 25, N8, N207, travelling in the opposite direction to 2(c) above.

(f) There are two bus stops on the western side of Kingsway located outside Burger King. The northernmost of the two stands is served by routes: N1, N68 and N171, as in 2(b), above; the bus-stand to the south is served by the 188 and N91, as in 2(b), above.

(g) A further bus stop is located on the eastern side of Kingsway outside the Shakespeare’s Head pub. This is served by routes: 188, 243, N1, N68, N91, and N171, as in 2(b), above. © Phil Hadfield 107

5. Kilburn High Road (rapid appraisal pilot)

Rapid appraisal: Friday 20 - Saturday 21 February 2015

Area profile:

Kilburn High Road (the A5) and its surroundings are an area highlighted in the MPS statistics for ‘alcohol-related’ and ‘night-time economy-related’ offences at a level slightly lower than that recorded for the four study areas.

As part of the piloting of our study, premises densities were examined and the area visited on the night of Saturday 21 February 2015. A foot patrol audit of licensed premises was recorded along the section of Kilburn High Road from the over-ground rail station north, as far as Kilburn LU Station.

The London Borough of Camden abuts the London Borough of Brent in that the eastern side of Kilburn High Road is within Camden’s boundary and the western side is within Brent. The combined number of premises across both borough boundaries was thirteen. Our audit found that ten of the thirteen licensed premises were located on the western flank of the High Road, within the London Borough of Brent. Only three premises were licensed by Camden.

Licensed premises observed on both sides of the High Road were as follows:

Licensed premises within the London Borough of Camden

The following premises were observed along Kilburn High Road between Kilburn High Road Station to the south and Kilburn Underground station to the north. 1. The Cooper’s Arms at 164-166 Kilburn High Road is a public house on the eastern side of the street, located approximately 100 meters north of Quex Road. The premises trade to 23.00 daily, apart from Sundays, which have a 22.30 closure time. 2. The Black Lion is a large capacity public house, restaurant and hotel on the eastern side of the street. It is located at 274 Kilburn High Road between the intersections with Grangeway to the south and Palmerston Road to the north. The premises trade to 23.00 daily, apart from Sundays, which have a 22.30 closure time. 3. Brondes Age is a bar/restaurant located on the eastern side of the street at 328 Kilburn High Road, close to the railway bridge that leads to Brondesbury Railway Station. Customers were observed drinking alcoholic beverages at tables and benches placed under a canopy outside the frontage of the venue; an area guarded by a door supervisor. The venue targets the night-trade and its website details events and drinks promotions at http://www.brondesage.com/. © Phil Hadfield 108

Closing times for the venue are 02.00 Fridays and Saturdays, 01.00 Monday to Thursday and 00.30 on Sundays.

Licensed premises within the London Borough of Brent

The majority of licensed premises on Kilburn High Road are concentrated on the western flank, within the London Borough of Brent. These premises were observed from south-to-north as follows:

4. Favorite Chicken and Ribs at 74 Kilburn High Road is a fast-food take-away restaurant on the western side of the street, south of Brondesbury Villas. The premises operate to 04.00 Fridays and Saturdays and to 00.30 on all other nights. 5. The Betsie Smith is large capacity public house at 77 Kilburn High Road, south of Brondesbury Villas. The premises operate to 23.00 Sundays to Wednesdays, to 02.00 on Thursdays, 03.00 on Fridays and 04.00 on Saturdays. 6. A McDonald’s restaurant is positioned at 127-129 Kilburn High Road at the corner of Victoria Road. It is open between 05.00 and 02.00 daily. 7. The Earl Derby at 155 Kilburn High Road is a public house located on the western side of the street between Priory Park Road and The Terrace. The premises operate to 23.00 Mondays to Thursdays, to midnight on Fridays and Saturdays and to 22.30 on Sundays. 8. Woody Grill at 211-213 Kilburn High Road is a self-service, buffet-style restaurant located on the western side of the street north of the intersection with Willesden Lane. It is open between 11.00 and 05.00 daily. 9. Sam’s Chicken is a fast-food take away restaurant on the western side of the street at 245 Kilburn High Road, to the south of its intersection with Buckley Road. The premises operate to 01.00 Sundays to Thursdays and to 02.00 on Fridays and Saturdays. 10. Charcoal Grill Restaurant is a Middle-Eastern style fast-food restaurant at 249 Kilburn High Road, south of the intersection with Buckley Road. It operates up to 05.00 daily. 11. The Good Ship at number 289 is a live music venue on the western side of Kilburn High Road, close to Drake’s Courtyard. The premises operate until 02.00 Sunday to Thursday and until 04.00 Friday and Saturday. 12. Woody Grill 2 at 321-3 Kilburn High Road is a sister premises to that listed in Paragraph 8 above. It lies to the south of the intersection with Dyne Road. The premises are open between 11.00 and 05.00 daily. 13. The North London Tavern at 375 Kilburn High Road is a large capacity public house located on the corner with Cavendish Road. The premises operate to midnight Mondays to Thursdays, to 02.00 on Fridays and to 01.00 on Saturdays and Sundays.

Transport

Kilburn Underground Station is located on the western side of Kilburn High Road to the south of the intersection with Christchurch Avenue. The station is served by the Jubilee Line, with the last trains leaving the station are at 00.32 southbound and 00.49 northbound.

Following the introduction of ‘night tube’ services, Transport for London (TfL) will begin operating the Jubilee, Victoria and most of the Piccadilly, Central and Northern Tube lines all night on Fridays and Saturdays. Kilburn will form part of this 24-hour weekend service. This will provide around five services-per-hour in both directions throughout the night.

Conclusions

Kilburn Ward was not considered a suitable candidate for intensive investigation as part of this project due to the comparatively limited amount of Licensable Activity identified (most of which is licensed by Brent). Nonetheless, Kilburn was identified in MPS statistics as an alcohol-related crime hot spot. Kilburn is therefore an area to watch closely over the next few years in terms of new licensed development applications and also compliance issues. If social harms are increasing in relation to the concentration of licensed premises, measures to address these will require consideration alongside the licensing policy and compliance approach of the Licensing Authority in Brent.

Most premises, across both borough boundaries, are food-led; although a high proportion of the premises licensed by Brent on Kilburn High Road have early morning closing hours.

4. Observational study findings

In Section Three above, observations of people’s behaviour were noted only where the customers or staff of identified licensed premises were involved in activities relating directly to their attendance at those premises (drinking on pavements outside specific pubs or off-licences, for example). In this section, we report on how public spaces are used and specifically the behaviours of people present within the four areas at night when occupying the public realm of streets and pavements, transport termini, public squares and highways etc. It should be noted that visitor footfall and the number of incidents of public nuisance recorded varied substantially in relation to unique public events, seasonality and weather factors. We did not have the resources to quantify these changes to strictly scientific standards, thereby obtaining a ‘prevalence rate’ as calculated according to the variable size of the street population. Nonetheless, our findings concerning the influence of the annual seasonal and events calendar on the raw numbers of incidents observed are consistent with the quantitative behavioural survey work (counting exercise) we conducted in 2013-14 across 10 neighbouring micro-areas of Westminster24. As described in Section Two, the origins of this current research lie in the mapping of MPS-recorded crime and disorder and ambulance call-out statistics for four areas of the London Borough of Camden, where there appeared to be emergent problems of alcohol-related crime, disorder and emergency health service demand at night over a 24-month period. This Section of our report looks in detail at the public usage of these four areas, when set alongside descriptions of the licensing landscape, the built environment, utilities and services, and pipeline developments in each area. Readers are referred to the 24-month agency data mapping analyses conducted by the Camden Community Safety Partnership Information Unit as an important source of cross-reference to this chapter.

As illustrated in this Section especially, several of the clusters of ENTE activity we studied sat adjacent to areas of other boroughs; principally Islington in the case of Kings Cross, and Westminster in the case of Charlotte/Goodge Street, Tottenham Court Road, and New Oxford Street. This highlights that any hot-spot mapping of alcohol-related incidents occurring within Camden boundaries-only will not show the full picture. The integrated cross-borough nature of the areas in question and their attraction to ENTE visitors involves making use of premises and services in ways that crisscross borough boundaries. As a result, there will always be elements of cross-borough spatial interaction / displacement involved in any true assessment of ENTE externalities.

The observational research reported here provides unique insight into these underlying qualitative factors and indicates useful potential parameters for cross-borough mapping and collaboration on ENTE

24 Hadfield, et al., (2016, ibid.) © Phil Hadfield 111 themes, particularly in key areas such as Kings Cross and Charlotte Street/Goodge Street.

A photographic appendix, containing images captured in the course of our observational fieldwork, can be found in the Supplementary Materials to this report.

1. Kings Cross (including St Pancras / Somers Town and Euston)

Dates visited and overnight weather conditions:

Kings Cross / St Pancras (Friday) 20 February (3-4 degrees C light rain) Kings Cross / St Pancras (Thursday) 12 March (4-5 degrees C dry) Kings Cross / St Pancras (Saturday) 11 April (7-8 degrees C dry)

Kings Cross / St Pancras (Friday) 8 May (10-11 degrees C, periodic heavy showers)

Kings Cross / St Pancras (Thursday) 4 June (15-16 degrees C, dry)

Kings Cross / St Pancras (Saturday) 11 July (17-18 degrees C, dry)

Key features of the social environment

Premiership Football matches at Arsenal’s Emirates Stadium (directly accessible via the Arsenal tube station on the Piccadilly Line) and music concerts at Wembley SSE Arena (via Wembley Park tube station on the Metropolitan Line to Euston Square or Kings Cross / St Pancras and Wembley Central Station to Euston Station via direct over-ground rail services). More locally, events at the Scala live music / nightclub venue on Pentonville Road can attract over 1000 (mostly additional) people to the area and often run up to 06.00 in the morning. There are five backpacker hostels in close proximity to Kings Cross Station, including two on Caledonian Road. This means that the area attracts and retains a high number of young international visitors. These travellers are very apparent in the area late at night and many attend the late-night refreshment premises and the convenience stores, particularly those on Pentonville Road, where they purchase alcohol. In general, these visitors are often looking for activity and excitement, although many do not attend the on-licensed premises, which appear to be mostly populated by UK nationals. These young travellers from around the world are often new to London and the UK. A high proportion come from European and South Asian countries in which unsupervised alfresco drinking in public squares is the norm. At the same time, they may not be ‘street wise’ to the extent that they are not necessarily attuned to localized risk on the streets late at night. The area is also an important first-stop location for UK business travellers and also leisure bookings at weekends, including group bookings such as hen and stag parties. These visitors - attracted by convenient access to the national mainline services from the three stations - are prominently catered for by the budget hotel chains, such as Premier Lodge, Travelodge, Ibis, and Comfort Inn. There are also a cluster of independent budget hotels in the streets opposite Kings Cross / St Pancras comprising Argyll Square, Belgrove Street, Crestfield Street and Argyll Street. At night, weekend visitors are often heading for the West End, although Thursday nights see more retention of business travellers who can be seen, often in large male-only groups, attending restaurants on Gray’s Inn Road and Euston Road and the pubs on Euston Road and Caledonian Road, in particular. The area contains a number of hostels for the homeless and homelessness services. This may be one reason why instances of begging and rough sleeping seem especially prominent in the area, particularly around Kings Cross Station. Although the homeless were a constant presence, there were only a few occasions on which homeless people could be seen drinking alcohol. Street prostitution and the activity of pimps have a long history in Kings Cross. This was not apparent on our winter visits, even in the later hours. From May onwards however, this was apparent and members of the research team were solicited twice in May and once in June in the Pentonville Road / Caledonian Road area. On the first occasion, it was apparent that the activity was being orchestrated by a male who was present on the street and to which the woman returned to on a number of occasions having made her approaches. The area is an especially sensitive location for the policing of travelling football fans and their drinking in and around the transport hubs and in local pubs. It is the key entry and exit point via the East Coast and West Coast Mainlines for travelling fans from locations north of London. A number of pubs in © Phil Hadfield 113 the area, particularly on Euston Road and Caledonian Road, provide large- projection screenings of live sporting events and tailor their offer to the sports fan market. Whilst this is a perfectly acceptable case of supply meeting demand in predominately well-managed premises, there can, of course, be an unruly element to the spectator population. As detailed in Section 3, a large incident of hooligan violence and disorder occurred at 18.00 at a pub on Caledonian Road (licensed by Islington) during the months of our research. It was notable that music fans could also swamp the area for short periods of time. In July the musician Ed Sheeran held a three-night residency at the Wembley SSE Arena, Thursday 9 - Saturday 11 July. This event brought 80,000 (mostly additional) people per night into the capital, which had a clearly apparent effect on the occupancy levels of tube services, as well as mainline services at Euston and Kings Cross and road traffic congestion. Gig-goers were seen to re-enter Central London from 23.30 onwards via mainline services into Euston, via the Metropolitan Line (Eastbound) and the bus network. Kings Cross Station was swamped with fans between 00.30 and 01.45 on 12 July, with the largest single departure being on the train to Peterborough at 00.09. Mainline rail services at all three stations in the area are used extensively by ENTE patrons on their journeys into and out of Camden. At present (pre- night tube), a number of local and regional mainline services provide additional options for late-night travel homeward after the closure of the tube services that would otherwise be available. Rail services are also, of course, much more rapid than the Night Bus options; albeit serving a much more restricted set of destinations. For example, at Euston Station we noted the popularity of services such as: the 23.57 and 02.00 all-stations to Watford Junction and the 00.15 and the 00.35 all-stations to Northampton. At St Pancras ENTE customers use the 00.54 to Three Bridges (the only southbound option in the area at this time), and the 01.14 and 01.40 services to Bedford. Kings Cross has popular services such as the 00.53 and 01.35 to Peterborough, the 00.56 to Letchworth and the 01.11 to Welwyn Garden City. There is not simply an outflow of ENTE customers using the mainline rail services after midnight. We also noted large numbers of people entering Euston, for example, en-route to a late-night out, on services such as the 00.15 (station of origin Birmingham) and the 00.34 (origin Wolverhampton). The 02.00 Watford Junction (outbound) service is the last activity at Euston overnight and the station closes soon after, re-opening at 05.00, Kings Cross is locked at around 01.45, reopening at 05.00. St Pancras concourse remains open throughout the night.

Profile of licensed premises

12 are premises licensed by Islington. Islington’s late-night premises are more spatially concentrated, all being in or around Caledonian Road. Islington’s late- night premises comprise: six bars/pubs, four café/restaurants and two off-sales shops. Islington therefore have a higher concentration of on-trade bars within a smaller geographical area (all adjoining one street); Camden’s late-night premises are more mixed in function and more geographically spread. Islington also appear to permit comparatively later off-sales of alcohol (in Camden areas, off-sales conclude by 01.00 in all local outlets). Camden, however, has the largest capacity on-trade premises in the area; these being Scala, The Big Chill House and The Camden Centre. All three premises appear well-managed (based on external features such as queue supervision, dispersal management, and noise breakout), although they deal with large numbers of customers so some environmental impacts are inevitable. In the case of Scala and The Camden Centre (as with The Forum in Kentish Town) these impacts may differ markedly depending upon the type of event that is hosted.

New public spaces and unsupervised alfresco drinking

There are three recently-developed public squares with street furniture seating in the area at Euston Station Piazza, Kings Cross Station Piazza and the Battle Bridge Place Piazza (located between Kings Cross and St Pancras). Similarly to the re-development of Leicester Square in recent years these public facilities encourage unsupervised outdoor drinking. High levels of evening and night-time occupation of the Kings Cross and Euston piazzas was notable from April onwards; June and July saw day-time temperatures of over 20 degrees, falling to no less that 15 degrees C overnight. During these warmer months the new public spaces at the stations retained people as meeting places and areas for socialising; often accompanied by outdoor drinking to late-hours and further encouraged by easy direct access to off-sales alcohol. Our field notes record routine activities such as, groups of middle-aged men drinking from tins of larger and singing at the tops of their voices, young women being physically sick and in tears (Saturday 11 April 23.40, Euston Station Piazza). Litter is picked regularly on the piazzas during the day-time, but not at night, when waste bins become overflowing. The noise footprint of licensed premises also increased in the warmer months from persons occupying terraces, beer gardens, pavement seating and vertical drinking / smoking outside licensed premises. This effect was notable in Kings Cross / Euston and across all our study areas.

Supervision of the streets by licensed venues

The most prominent instances of private sector policing of the late-night scene occurred in relation to Scala, the large live music venue / nightclub located at

© Phil Hadfield 115 the junction of Pentonville Road and Kings Cross Bridge. Scala employ Sabre Security (see ‘Sabresecurity.co.uk’) to provide SIA-registered door supervisors. Those security staff working external to the premises operate in teams of four- five depending on the size and type of event that is hosted; some events are most popular in the late-night 01.00 – 04.00 period. The venue contains and monitors its queues behind high-sided temporary barriers stretching along Kings Cross Bridge. Sabre organise the queues within this boundary and on occasions also provide a static guarding function at the junction with Gray’s Inn Road where they can monitor who approaches the queue at its far end. Large events, advertised as running from 22.00 to 06.00, at Scala during our research period included a reggae night (February), a soca night, with emergency services uniform fancy dress (May) and a ‘bashment’ indoor carnival summer rave (July). Sabre door supervisors were present on all occasions wearing blue high visibility jackets and guarding and patrolling the entrance to the premises. A cab supervisor was also present in order to facilitate fares between waiting private hire vehicles (supplied by A.C.S Minicabs) and Scala customers. Most event attendees arrived and departed on foot, however.

Islington Nightsafe scheme

It became apparent from noting interpersonal interactions on the street that Scala’s security worked closely with the ‘Islington Nightsafe’ team who were on occasions seen to patrol Calendonian Road and Pentonville Road in a logo- emblazoned silver ‘people-carrier’ type van. The ‘Nightsafe’ team are a partnership initiative, introduced in December 2014 and funded by the Islington Late-Night Levy (which is an additional charge placed on licensed premises selling alcohol between the hours of midnight and 06.00 in Islington). The Nightsafe team comprises four patrol officers accredited by the MPS who operate from a dedicated control vehicle. The Nightsafe patrol operates every Thursday, Friday, Saturday and Sunday from midnight until 06.00. According to the scheme’s website:

“The primary function of the patrol service will be to support the council, police and licenced trade to minimise crime, disorder, nuisance and anti-social behaviour associated with late-night drinking and to help create a safer night time environment. The patrol team is available to provide an early intervention type response to prevent escalation to more serious alcohol-related crime and disorder which, if unchecked, could result in a police and/or ambulance response…to provide an accessible point of contact for the public and provide assistance to people who are vulnerable as a result of excessive alcohol consumption. At least one member of the team will be trained in first aid to ‘First Person on the Scene’ (intermediate award) standard…

The Patrol will provide a borough-wide service and the locations of work will be determined by:

1. Calls for assistance from licence holders, Islington Council’s CCTV operators, ASB Controllers, and other staff working at night, or the © Phil Hadfield 116

Police. 2. Intelligence-led tasking to patrol specific hotpot areas and activities.

The Patrol will attend pre-deployment briefings with the police before the start of each shift.” For further details see: http://www.islington.gov.uk/services/policing- safety/how/Pages/Night-Safe-Patrol-Service.aspx (accessed 20 August 2015). Our experience of observing the Nightsafe team at work was that they were regular visitors to Caledonian Road and Pentonville Road. They generally kept themselves within the Islington boundary, apart from occasions in which they worked alongside the Scala security team. On one occasion in April we saw Nightsafe officers attending to visitors who were slumped, apparently incapacitated through drink, on the pavement of Caledonian Road.

Other notable venues in the area:

The Big Chill House

The Big Chill House (Premises 37 in Section Three) on the southern flank of Pentonville Road (Camden section) is notable for being the second-largest capacity, regularly trading, on-licensed premises in the area. The venue operates to 03.00 on Fridays and Saturdays; also making it also one of the latest opening, with customer departures from the area lasting until around 03.50 on occasions. There were three door supervisors in attendance outside the premises on the nights of our visit. This reflects the fact that this is one of the busiest licensed premises in the area. As noted in Section Three, there is considerable movement of customers to-and-fro from The Big Chill House to the northern flank of Pentonville Road, where there are two convenience stores licensed by Islington. Mini-cabs often collect customers of The Big Chill House outside these stores. We noted how the constant presence of three door supervisors stood around the entrance to this venue added to the active surveillance of this area; an area where the negative effects of street drinking, in particular, are particularly apparent in the late-night post 01.00 period.

McDonald’s Restaurants on York Way and Euston Road

There is a further McDonald’s restaurant on York Way at the junction with Pentonville Road (302-304 Pentonville Road). These premises are licensed by Islington and are open until 05.00 on Fridays and Saturdays, until 04.00 through the week, and until 03.00 on Sundays. In the York Way premises, the first floor (main) seating areas and the toilets are partitioned from the counter service area after 01.00 so that the areas that remain open to the public have little or no available seating from then on. The York Way restaurant employs two door supervisors at night and was consistently more crowded than the McDonalds on Euston Road on the nights of our visits. At York Way, customers could be seen in large numbers standing and consuming their purchases in front, or just to the side of, the service counter. Euston Road, by contrast, continues to offer sofa seating and tables on the ground floor throughout its late-night operations. It was notable that many of the customers of Euston Road had luggage and appeared to be travellers awaiting early-morning rail services. By contrast, the vast majority of York Way customers were ENTE patrons who visited the premises after leaving on-trade premises and ahead of seeking public transport on their homeward journeys. This suggests that, even in the winter months, revelers seeking fast-food will proceed immediately to the outlet that is most proximate to the on- licensed premises they have attended, rather than seeking additional standards of comfort in premises that are also nearby.

Starbucks on St Pancras Station concourse

Starbucks have a coffee shop on the ground floor of the station near to the exit onto Pancras Road. This premises is licensed for late-night refreshment 23.00- 05.59 seven days a week. The premises operate for almost 24-hours-a-day, closing only briefly at around 04.30, before re-opening at 05.00. Starbucks is often used as an unofficial waiting room in which as many as fifty people can be found spending several hours waiting (and sometimes sleeping next to their luggage) ahead of catching early-morning rail services. As one of the latest- opening facilities in the area the premises are also attended by police officers seeking refreshment on their shifts. It was notable that ENTE users on their way home tended not to use these facilities. The research team used these premises for their late-night refreshment breaks and very few instances of drunken behaviour were observed amongst other customers.

The Camden Centre

This venue is located directly opposite Kings Cross Station on the south flank of Euston Road, next to the old council offices. The Centre was active at night, with its entrance onto Euston Road illuminated and guarded by a door supervisor on several occasions. The venue is available for private hire and has a large function room with a stage and a capacity of up to 1,000 people. The potential impact of late-night functions at the Centre was underlined for us on Saturday 11-Sunday 12 July by a large ‘Urban Music’ event organised by Pulse 88 FM Radio (see: http://www.pulseradio.co.uk/), a ‘R’N’B and Hip Hop © Phil Hadfield 118 station. This event increased the usual footfall of people along the south pavement of Euston Road / Gray’s Inn Road and on Bidborough Street. There appeared to be a strong crossover audience for the ‘Bashment carnival / summer rave’ event at Scala on the same night. Groups of people leaving the Camden Centre at around 01.00 were seen to walk along the road to join the queue for Scala on Kings Cross Bridge (which still comprised around 200 persons at this time). There were also a number of alcohol purchases by event attendees from the convenience stores on Gray’s Inn Road at around this time.

Licensing records indicate there should be no off-sales in Camden premises around Kings Cross / St Pancras and Euston Stations beyond 01.00. We made test purchases in convenience stores on Gray’s Inn Road in July and recorded two instances of failure to comply with these restrictions (see Section 3). Regardless of the potential opportunities for ‘stockpiling’ alcohol, it is likely that having a cut-off point for alcohol sales contributes to safer late-night scenes. This was further indicated by our observation that, after 01.00, some negative impacts and hardened drinkers were seen to transfer from Gray’s Inn Road / Euston Road to Pentonville Road, where alcohol could still be purchased at two off-sales premises licensed by Islington. Violent incidents in public spaces in Central London at night remain, thankfully, rare and therefore not always apparent to street-level observational research. Instances of low-level disorder, anti-social behaviour / pro-social behaviour, discreet noise events and public safety issues, by contrast, form the

© Phil Hadfield 119 staple of such endeavours. Two instances of physical violence were noted in this patrol area, one being of a serious nature and potentially life-threatening: The first instance of violent behaviour witnessed in this patrol area during the course of the research was of a serious and dramatic nature. The incident occurred at 00.30 on Sunday 12 April on Euston Road on the pavement directly in front of the Euston Fire Station. Two middle-aged men, one in a wheelchair, were engaged in a street fight in which fists were thrown and glass bottles of alcoholic drink the men were carrying were smashed and there was an attempt to use the bottles as weapons. The able-bodied man pulled the wheelchair user out of his chair and into the line of fast-moving traffic. The two men, both of whom were bleeding from cuts to the head, proceeded to brawl in the road with the wheelchair also in the road. This resulted in heavy breaking by cars and almost resulted in vehicle collisions on several occasions. The activity could have easily resulted in fatality or serious injury. The position of the incident was fortuitous, as eight members of fire crew wearing high visibility clothing intervened, entering the road to pull the two men apart and drag them back onto the pavement. The men continued to swear and struggle with the fire officers before the able-bodied man broke fee and ran across the road in front of passing vehicles and disappeared down Upper Woburn Place. There was no police or ambulance attendance at the scene. The second incident of physical violence occurred outside The Dolphin public house on Tonbridge Street (Premises 58 in Section 3) at 23.30 on Saturday 11 July. It involved a fist-fight between six heavily-built men in their late-20s to early-30s who were customers of the pub. The activity, which included shouting, cursing and threats, continued for 8-10 minutes, but did not prompt the intervention of pub staff. It appeared that the publican may have asked the group to take their differences ‘outside’. There were many witnesses to the incident, this being the same evening as the ‘Pulse 88 FM’ event at The Camden Centre, which swelled the population of the normally quiet Bidborough Street (event attendees were not involved in the incident). The incident ran its natural course without the participants receiving severe injuries. There was no police or ambulance attendance at the scene.

Minor instances of disorder, drunken antics, inebriation / physical incapacity through drink, shouting, and lurching/staggering gait were apparent on all our visits to the area. It was apparent that some after-work drinking occasions involved heavy consumption. We witnessed ‘the stragglers’ on frequent occasions; people still in their work clothes, appearing tired, vulnerable and sometimes isolated as they slowly made their way along Euston Road to the later-night rail services. Not all of these persons would have attended on-trade premises in the immediate area. A notable issue for ENTE patrons who are drunk and tired - or equally, those who are exuberant, disinhibited and oblivious to normal precautions - is road traffic safety. This is generally prominent on the local environmental agenda due to the very high levels of vehicular traffic on Euston Road, which at night flows at greatest speed and volume into Pentonville Road and Kings Cross Road. At the same time, one finds narrow and crowded pavements and many persons making journeys by bicycle, who often move quietly at speed and are poorly-illuminated.

The Red Route status of Pentonville Road does not deter minicab picks-ups from creating dangerous road traffic situations. It was routine to witness minicabs waiting to collect customers of the Big Chill House and Scala venues in front of the late-night convenience stores on the northern flank of this road. This practice prompted customers of the venues, who were often in-drink, to negotiate fast-moving traffic on Pentonville Road so as to cross at the most direct point, in front of the venue entrances. At the time of writing, the area’s roads have not been selected for inclusion in Transport for London’s 20 miles-per-hour speed limit pilot; a measure being introduced in a number of other areas (the nearest being more southerly sections of Kings Cross Road). There is continued concern, as reported in print, broadcast and social media, regarding the number of cycling deaths and injuries on London’s roads, together also with poor air quality; these concerns being particularly apparent on and around the busiest routes and junctions, including Euston Road and the Kings Cross Gyratory. The ENTE is not typically highlighted in these conversations; however, in this location the connections are very apparent. One finds large numbers of fast-moving vehicles in areas where drunken revellers are crossing roads. During the course of our research near misses were witnessed on several occasions, some ENTE patrons being seemingly oblivious to the dangers in crossing the roads in front of and between fast-moving traffic. A further environmental feature of the area linked to vehicular traffic is the high ambient noise levels. Residents and hotel guests are subject to unusually high levels of background noise from traffic throughout the night. Yet, it was apparent to us that the permanent residential presence was proportionately smaller than that to be found in our other patrol areas in the Borough. This means that instances of Public Nuisance and noise disturbance are likely to affect comparatively fewer people; this may be counterweighed to some extent by the large numbers of short-duration hotel and hostel guests that stay nightly in the area and the number of day-time businesses that may have to deal with the aftermath of occasional overnight street fouling and property damage.

Cross-borough boundary effects

There is some displacement of crime, disorder, public nuisance and public safety issues into Camden from the Caledonian Road area of Islington, where the shifts towards more upmarket ENTE development are occurring more slowly. Furthermore, it is possible that Islington’s high profile Nightsafe initiative may help push the negative externalities of the Caledonian Road ENTE towards Camden. What can be said categorically is that when licensed premises on Caledonian Road close there is a natural pattern of pedestrian movement towards Kings Cross Station and Euston Road in search of transport. Following introduction of night tube services, the impacts of these pedestrian flows are likely to extend more often to later hours of the night.

25 Home Office and Office of the Deputy Prime Minister (2004) Safer places: the planning system and crime prevention, London: ODPM. © Phil Hadfield 122

2. Kentish Town

Dates visited and overnight weather conditions:

Kentish Town (Saturday) 21 February (3-4 degrees C, intermittent rain showers)

Kentish Town (Friday) 13 March (3-4 degrees C, dry)

Kentish Town (Thursday) 9 April (10-11 degrees C, dry)

Kentish Town (Saturday) 9 May (12-14 degrees C, light rain)

Kentish Town (Friday) 5 June (14-16 degrees C, dry)

Kentish Town (Thursday) 9 July (18-19 degrees, dry: general tube strike)

Key features of the social environment

"The restaurant scene in NW5 is about to explode and we want to be a part of it.”

Operations Manager, Joe’s Southern Kitchen and Bar, Kentish Town Road26

Kentish Town contains a growing concentration of licensed premises based around food offers and also a music and sports-centred pub and bar scene. During the six-month course of our research, three new on-licensed premises opened on Kentish Town Road – Wachaca, Joe’s Kitchen and Jailbird Bar (the former two premises replacing the pre-existing Kentish Canteen) and one further venue was extensively re-furbished (The Bull and Gate pub). These investments indicate that the area’s ENTE may be undergoing further, quite rapid, development.

Several of the licensed premises on Kentish Town Road are of large physical capacity and are young adult and music-focused, attracting a similar clientele to many of the venues within the Camden Town SPA. A number of venues, such as The Assembly House, The Grafton Arms and The Bull and Gate, appear to encourage the business of local residents who arrive on foot from nearby

26 Quoted in ‘Hot Dinners’ catering trade website, 12 March 2015: http://www.hot- dinners.com/Gastroblog/Latest-news/joe-s-southern-kitchen-bar-to-open-in-kentish-town-with- jailbird-basement-bar (as accessed 22 July 2015). © Phil Hadfield 123 streets. Saturday nights are not always the busiest nights of the week in the area. Thursday nights, in particular, appear popular with a local audience who attend events such as comedy nights and live music nights at the various public houses, most prominently The Oxford and The Abbey Tavern. The ENTE serves this local population, particularly on weeknights and in the evening period, thereby adding to the array of local shops and services which afford the area an ‘urban village’ feel. Although the ENTE has tangible local amenity benefits, the high density of residential properties along the strip of Kentish Town Road and directly to either side of this thoroughfare make the area especially sensitive to public nuisance impacts.

In comparison with our other study areas, we found less evidence of an ‘after-work’ drinking and dining culture on Kentish Town Road. This is most likely to be a simple case of the area being more peripheral and not sitting amongst large centres of employment in the same way as the other three locations. Seven premises were seen to be operating until 02.00 or later in our patrol area on Friday and Saturday nights (with reduced numbers on other nights of the week). All of these late-night premises are licensed by Camden (one pub, four takeaway restaurants, one health spa, and one live music venue). There are two convenience stores with unrestricted closing times, although these premises, and all other shops in the area, are licensed to sell alcohol no later than 23.00. During the period of our observations it came to our attention – through either direct observation, or desk-based research - that pubs and bars in the area traded on occasions (for example, over Bank Holiday periods) until 03.00 hours. The Abbey Tavern (see below), for example, traded up until 03.00 for three consecutive nights, Thursday-Saturday over the Easter Bank Holiday. Checks with the client’s Licensing Team create doubt as to whether Temporary Events Notices (TENs) permitting late-night trading were obtained in all the instances of occasional later trading we noted at premises in the area.

Notable licensed premises in the area

The Forum

The area contains The Forum, a renowned live music venue, which attracts large crowds to Kentish Town at night on an ad-hoc basis relating to its events calendar. The Forum is by far the largest capacity on-trade premises in the area; these premises appear well-managed (based on external features such as queue supervision, dispersal management, and noise breakout), although they deal with large numbers of customers, so some environmental impacts are inevitable. Large events at The Forum occasionally brought many more people into the area, with associated noise and congestion. The majority of event attendees proceeded to walk south when leaving The Forum and many then attended the late-night refreshment premises on Kentish Town Road. A high proportion © Phil Hadfield 124 walked south along the whole length of Kentish Town Road to enter the Camden Town SPA in pursuit of further entertainment.

These impacts differ markedly depending upon the popularity and type of event that is hosted. Some crowds attending music events may be themselves vulnerable to predation due to their early-teenage status and not of an age to be served alcohol; this was prominent in April, when the appearance of the boy- band ‘In Hindsight’ attracted large crowds of youngsters. The young adult ‘clubbers’ who were seen to attend some of the other events at the premises presented quite different security and safety management challenges. On 9 May, for example, the event was a dance music night by ‘DJ Odin’ operating until 02.30. On this occasion, The Forum used four SIA door supervisors provided by ‘Showtec Security’. Greenwood Place, a street just to the north flank of the venue, was used for the ‘customer smoking area’. This area was roped-off, guarded by Showtec staff and populated by about 200 persons when viewed at 23.35 on 10 May. Greenwood Place is also the location of the venue’s Stage Door. For this reason, the area had presented a different security challenge a month earlier when hundreds of teenage girls had gathered in this side street after the end of the show in order to meet members of In Hindsight.

The Forum is operated on an irregular basis in accordance with its events listing. This distorts the picture. Most events close by around 23.30; a few extend to 03.00 and one event (’25 years of Fabio and Grooverider’) on Friday 8 May extended to 06.00. It is reasonable to expect faster dispersal of the later-night events following the introduction of the 24-hour tube services. However, this assumption is based upon the continuation of current licensing arrangements at surrounding premises. The impacts of night tube require careful monitoring here and indeed across the Borough.

The Abbey Tavern

Late-night takeaways (several independents)

McDonalds

A McDonald’s restaurant is positioned at the corner of the western side of Kentish Town Road and Holmes Road at number 295. These premises are open until 01.00 daily and due to their consistently later trading hours often presented as the hub of activity on Kentish Town Road in the evening and at night. Despite it late-night hub status it was not apparent that the premises employed door supervisors. Security duties, when required, appeared to be performed by the Manager.

Particular environmental features of the area:

Street drinking and alcohol off-sales

There is a small public square with bench seating located at the junction with Leighton Road, just north of the Kentish Town LU station and directly opposite The Assembly House pub. This is the only public space that might potentially accommodate static street drinking by individuals and groups in our patrol area and no evidence of this was found. Street drinking at this location may be discouraged due to its visibility; the square being directly overlooked by the Assembly House to the north, the LU entrance to the south and also by passing vehicular traffic. We also noted prominent warning signs in the square to deter street drinking. These notices, attached to the framework of the palisade shelter at this location, inform the public that the area is part of a “controlled drinking zone” (PSPO) supported by fines from the police. In general, Kentish Town Road presents as a thoroughfare rather than a gathering point. Persons, including customers of the licensed premises on Prince of Wales Road, were seen moving south-to-north and north-to-south between Prince of Wales Road and Kentish Town Road via Anglers Lane. This route is used as a pedestrian shortcut between the two streets, entering or leaving Kentish Town Road near to Nandos (227-229 Kentish Town Road). On occasions, we saw pedestrians carrying bags containing off-sales alcohol on Anglers Lane, sometimes swigging directly from bottles and cans. These were the street drinking behaviours of persons on the move; those destined for private parties, homes and on-licensed premises. We found no evidence of street drinkers congregating in the residential streets adjacent to Anglers Lane, such as Alma Street, Raglan Street and Willes Road, or on Anglers Lane itself.

We found large unruly gangs of youths to be a sporadic presence in and around the takeaway premises on Kentish Town Road, some of whom had also been drinking. McDonalds was a particular draw for these groups as it offers a more sizable indoor social space than the independent takeaways that typically offer little or no accommodation for seated customers. In one instance at 23.37 on Saturday 21 February we witnessed a group smashing one of the large glass windows to the frontage of McDonalds. This prompted the manager of the premises to lock the front doors, with a number of visibly alarmed customers still inside. The police were called and arrived in two vehicles within three-four minutes. Officers then proceeded to chase members of the group down the street; many of the youths melted away into alleyways. We did not witness any arrests or stop-and-search incidents, but later observed police officers searching gardens by torchlight in neighbouring streets, presumably searching for discarded weapons or drugs. Minor instances of disorder, drunken antics, inebriation / physical incapacity through drink, shouting, and lurching/staggering gait were apparent on all our visits to the area. Kentish Town Road has high levels of vehicular traffic and is subject to congestion due to large lorries parking to make deliveries of stock to supermarkets. As in Kings Cross, road traffic safety was notably placed at risk in some instances of pedestrian drunkenness. One incident in June, as described in Section 3, involved customers of the Abbey Tavern jostling each other off the pavement and onto the busy road. This prompted reprimand from two police officers who were, fatefully, driving past at the time.

Police activity

Residential amenity

The area has a big residential population with a wide-range of housing types, including large social housing schemes, a large private rental market (particularly flats) and streets adjacent to Kentish Town Road containing high- value owner-occupied period terraced properties. As noted, Anglers Lane is a small interconnecting road and pedestrian cut-through which links Prince of Wales Road and Kentish Town Road. It contains potentially noise-sensitive low- rise period terraced housing with traditional bay windows and single glazing on Alma Street, Raglan Street and Willes Road. Kelly Street has similar architecture and is also directly accessible from the western flank of Kentish Town Road. Although we often saw Anglers Lane used by individuals and groups carrying drinks - sometimes open drinking vessels - we found no evidence of street drinkers congregating here, or on the surrounding residential streets.

Kentish Town is particularly well connected to public transport late at night. Recent licensed premises openings and re-developments suggest that Kentish Town Road may be emerging as a new ENTE destination within North London for drinking, as well as for dining. It was notable on Thursday 9 July, the day of the first general tube strike in 2015, that there were many more people present on Kentish Town Road than previously found around the hours of 22.30 to midnight. This was particularly the case at the bus stop to the north of our area on Kentish Town Road, just below The Forum. The Forum was closed on this occasion. The additional people appeared to be persons who had attended licensed premises in the area who were making their way home to locations to the north of Kentish Town; persons who might, under normal conditions, have used the tube. Despite its notable licensed premises’ openings and re-developments, the area retains a somewhat edgy, down-at-heel feeling. This is accentuated by the number of day-time businesses that draw metal shutters in the evening; thereby presenting a blank face to the street. Apart from outside two of the larger public houses (The Oxford and the Assembly House), which occupy corner plots and can therefore offer bench-seating, there are no active frontages at licensed premises in the area. Unfortunately, the dimensions of the street and available pavement space preclude many opportunities to increase the proportion of active frontages.

Summary

The ENTE appeared to have particular attraction value for local residents on Thursday nights (when several venues ran special promotions such as ‘comedy nights’ and live music events). Weekend evening use of venues in the area was © Phil Hadfield 128 more prominently as ‘pre-drinking destinations’ ahead of later transfers on-foot, tube, or bus, into the Camden SPA. The clearest evidence to suggest that Kentish Town has a significant attraction value for ENTE patrons from other areas of London is the ‘swamping’ of the area that occurs when large numbers of people disperse from live music / club night events at the area’s largest licensed venue, The Forum. These scenes arise on a sporadic basis relating to The Forum’s events’ calendar. There is evidence, however, that Kentish Town is developing its drinking and dining offer and may, in the near future, begin to experience a greater influx of people from outside of the immediate area on a more routine basis. Kentish Town certainly has extensive public transport provision at night to facilitate any such expansion.

There is certainly some displacement of public nuisance into Kentish Town from the Camden Town SPA. The area suffers from the displacement effects of noise / nuisance, street fouling and street drinking detritus associated with the Camden Town SPA, as pedestrians walk up and down Kentish Town Road to access and exit the SPA. The most prominent issue is people who have been drinking loosing their inhibitions and being thoughtlessly noisy as they make their way home through residential streets. In comparison with our other sites, it is more a case of local people from within the Kentish Town community annoying their neighbours, rather than influxes of transient visitors. The most likely exception to this would be in the case of popular late-night events at The Forum. Also, as a result of recent venue openings and re- developments, we may be on the cusp of Kentish Town achieving enhanced status as a North London ENTE destination.

3. Tottenham Court Road / Charlotte Street / Goodge Street

Dates visited and overnight weather conditions:

Tottenham Court Road/Holborn (Thursday) 19 February (3-4 degrees C, dry)

Tottenham Court Road/Holborn (Saturday) 14 March (3-4 degrees C, dry)

Tottenham Court Road/Holborn (Friday) 10 April (10-11 degrees C, dry)

Tottenham Court Road/Holborn (Thursday) 7 May (12-14 degrees C, light rain)

Tottenham Court Road/Holborn (Saturday) 6 June (16-18 degrees C, dry)

Tottenham Court Road/Holborn (Friday) 10 July (18-19 degrees C, dry)

Key features of the social environment

1. Tottenham Court Road

Seven premises were seen to be operating until 02.00 or later in our patrol area on Friday and Saturday nights (with reduced numbers on all other nights). These comprise: three LNR premises, one café/restaurant with table service, one casino bar, one hotel bar and one Gentleman’s Club. A further four premises close as late as 01.00-01.30 on Fridays and Saturdays; these comprise one pub, one bar, and one lounge bar attached to a restaurant. There are no premises licensed to serve off-sales alcohol beyond midnight (although the research team obtained a failed test purchase at one of the two stores that remain open at night).

Notable licensed premises in the area

Spearmint Rhino

In February, a group of seven young men wearing dinner jackets were seen to leave the Spearmint Rhino Gentleman’s Club to the north of our patrol area and start to run southbound along the eastern pavement, shouting excitedly. This incident, which occurred at 03.36 on 20 February, was the most apparent evidence of individual licensed premises having an impact on the area.

Other notable issues

Where street drinking was observed in the area this was mostly the case of individuals and groups drinking from bottles and cans as they walked southbound in the pre-midnight period. Saturday 6 June was the evening of a football Champions League match between Barcelona and Juventus at Berlin’s Olympic Stadium. This game was shown on large screens at several pubs and bars in our Tottenham Court Road/Charlotte-Goodge Street patrol area. This sporting event had the notable effect of significantly increasing the numbers of persons attending these premises in comparison with our other visits. The evening in question was also warm and dry. This combination of factors gave rise to an increased amount of noise nuisance in the two areas, particularly after completion of the game and at premises’ closing times. We did not, however, witness any more serious incidents of crime and disorder associated with the additional activity from sports fans. During the period of our observations we became aware of the re-emergence of mobile hot-dog vendors on the streets late at night. These vendors had been largely absent from the West End for a number of years following earlier enforcement activity. Hot dog vendors were apparent only in our Tottenham Court Road and Holborn patrol areas. In all instances, these street traders chose to stand near to Night Bus stops; these being the locations containing the largest congregations of static persons on the streetscape. In the case of Tottenham Court Road, a vendor was noted consistently from midnight onwards, on the western pavement, adjacent to the junction with Hanway Street, which

2. Charlotte Street / Goodge Street

57 licensed premises were recorded on or directly around the Charlotte Street / Goodge Street cluster. 34 of these premises are licensed by Camden and 23 are licensed by the City of Westminster. The Camden premises comprise: five bars/pubs, 23 restaurants, four restaurants with bars, one off-sales shop and one late-night refreshment takeaway. The Westminster premises comprise: seven bars/pubs, ten restaurants, six restaurants with bars and no off-sales shops or late-night refreshment takeaways. Across the cluster, therefore, dining is the primary function in 43 out of the total of 57 licensed premises. Only four on-trade premises are entirely drink-led. There does, however, appear to be a shift towards restaurants developing separately-branded and spatially-distinct cocktail bars within their premises. Only one store in the area supplies alcohol off-sales and these sales conclude no later than 23.00. The local food and drink scene in these streets is, in fact, even busier than our listings suggest as there are many other cafes which do not serve alcohol but which operate into the evening period, together with outdoor seating (a particular feature of this area). As noted above, our listings only cover those premises that operate beyond 20.00. Three premises in the area operate beyond 01.30 (two are licensed by Westminster, one by Camden) and these lie on the outskirts of the cluster. Most premises in the cluster operate no later than 23.30. At the time of writing, Camden are considering an application for an extension of hours from midnight to 01.00 for one of the four drink-led bars in the area. All other premises close by 00.30 at the latest; most close by 23.30. There are fewer variations in advertised closing hours across the week in comparison with our other three areas. This reflects the focus on customers who attend after-work, Monday-Friday. The cluster is unusual in having so many premises with active frontages, primarily achieved through seated outdoor drinking and dining. The relatively slow movement of road traffic on the two main streets compliments this use, thereby assisting the creation of a vibrant but relaxed atmosphere. The après-work socialising aspect, combined with the extensive use of outdoor tables and chairs, is comparable to the social scene found in and around Marylebone High Street, an area of the City of Westminster which lies approximately 1-mile to the north west.

There are no notable larger-capacity licensed premises within the cluster, such as live music venues or nightclubs. Nonetheless, the combined capacity of the 57 licensed premises is undoubtedly considerable. It is understandable that local residents may express concern about the scale and speed of investment by licensed businesses (it appeared that many of the premises were recently developed or re-vamped) into this small geographical location. On the basis of our observations, it appeared that premises within the cluster were generally well-managed (based on external features such as door supervision and noise breakout). We did not observe incidents of violence, street crime, or serious disorder in the area. The noise impacts we recorded related to alfresco dining and drinking to the frontage of various licensed premises and to the departure of customers from the pubs and bars at closing time. The former issue was more apparent from April onwards than in the earlier, colder months of our study. The latter issue may be considered in the context of what is typical for Central London. In general terms, premises in this cluster close earlier than their counterparts in Seven Dials. They also close earlier than what we found to be the norm in our other study areas. We found little evidence of street drinking and associated detritus in the vicinity of this cluster. This is likely due to the high levels of natural surveillance afforded by the active frontages and residential flats and also the general absence of immediately accessible off-sales alcohol and fast-food.

Cross-borough boundary effects

The premises in this area cluster at the cusp of the Camden-Westminster boundary. Premises across both boroughs form a 'natural area' of attraction for ENTE visitors. The City of Westminster’s West End Stress Area (WESA) cumulative impact zone stretches as far north as the southern section of Rathbone Place, a street immediately south of Charlotte Street. Restrictions on new premises’ openings and licence variations in this nearby section of Westminster may have encouraged the displacement of investment into Charlotte Street’s nightlife hub: that is, into streets within Westminster and Camden that lie outside of the SPAs of both Licensing Authorities.

4. Holborn

Dates visited and overnight weather conditions:

Tottenham Court Road/Holborn (Thursday) 19 February (3-4 degrees C, dry)

Tottenham Court Road/Holborn (Saturday) 14 March (3-4 degrees C, dry)

Tottenham Court Road/Holborn (Friday) 10 April (10-11 degrees C, dry)

Tottenham Court Road/Holborn (Thursday) 7 May (12-14 degrees C, light rain)

Tottenham Court Road/Holborn (Saturday) 6 June (16-18 degrees C, dry)

Tottenham Court Road/Holborn (Friday) 10 July (18-19 degrees C, dry)

Key features of the social environment

Later trading hours for licensed premises are more prominent in this location than in our other patrol areas (with the exception of Tottenham Court Road). This reflects the area’s more central location and observably larger ENTE visitor footfalls. In comparison with the other areas, we also found more direct displacement of visitor activity from an existing Camden SPA: the Seven Dials SPA (and also, in the case of New Oxford Street, from Westminster’s ‘WESA’ cumulative impact zone). New Oxford Street and Kingsway are key exit points by Night Bus for visitors to the West End. They are also proximate to LU stations that are major exit points for theatregoers and after-work ENTE patrons, up to 00.30. With the introduction of ‘night tube’, these stations will share many of the exits of late-night economy users.

High Holborn

The section of this street that lies west of Kingsway is within the current boundaries of Camden’s Seven Dials SPA.

A number of cafes and casual-dining restaurants have opened in the vicinity of Holborn LU station, particularly along High Holborn, in recent years. This

© Phil Hadfield 134 expansion has emerged mostly to serve local office workers in the day-time and after-work evening period. On High Holborn it has not translated, thus far, into a late-night pub/bar/club scene. There are two bars / pubs operating to 01.00 or later on High Holborn and two LNR takeaways operating through the early morning hours. There is no off-sales alcohol provision after 23.00; although we recorded a test purchase failure after midnight at one of the three nearby outlets.

The most prominent premises operating in the late-night on High Holborn at the time of writing was the bar and restaurant at the ‘Hoxton Holborn Hotel’. These facilities were in-vogue and attracting large numbers of non- residents.

New Oxford Street / Bloomsbury Way

These two streets lie within the existing Seven Dials SPA, with the exception of the northern flank of New Oxford Street, west of the junction with Bloomsbury Way. There are two bus stands on this northern flank of New Oxford Street close to the junction with Tottenham Court Road. Both bus stands attract large crowds of people late into the night; the crowds primarily consist of young adults who have attending licensed entertainment and LNR venues in the West End (both Camden and Westminster). There is a propensity for people to run, often whilst shouting and screaming, from west-to-east along New Oxford Street, as they attempt to arrive at the bus stops in time to catch soon-departing Night Buses. When observing these bus stops we consistently encountered large amounts of littering, comprising of fast-food packaging and street drinking detritus. We consider the probable most likely sources of the fast food refuse were the Burger King outlet at 1A Tottenham Court Road, the McDonalds at 8-9 Oxford Street and the Subway at 71-75 New Oxford Street. Also observed on New Oxford Street near to the bus stops, from around midnight onwards, was a man running a mobile hot dog stand, hoping to attract customers from those attending the bus stops. This immediate location, although just outside the Seven Dials SPA boundary, was found to contain the most consistently intense late-night usage by ENTE patrons of all areas researched within this study. There are four on-licensed premises operating to 01.00 or later on New Oxford Street / Bloomsbury Way, together with one LNR takeaway operating to 04.00 hours. The two convenience stores with off-sales in the area trade late at night, although they are not licensed for the Sale of Alcohol beyond 23.00. Our observations suggest non-compliance with these time restrictions arising in respect of both of these premises. Furthermore, there appears to be a link between alcohol sales from these outlets and street drinking. Street drinking involving groups that were static and groups and individuals on the move, was noted at frequent intervals.

A key location for street drinking is the terraced area occupying the triangular block formed by the junctions of Shaftesbury Avenue, Bloomsbury Street and New Oxford Street. This fully-paved public space © Phil Hadfield 135 lies directly opposite the two licensed convenience stores (A. P. Food Express and Rozelle Treats). We found the area to be heavily littered with street drinking detritus on each occasion we visited. Groups of persons were seen street drinking whilst seated in this location on several occasions from May onwards.

The most prominent on-licensed premises in the post-midnight period is the British Luxury Club (BLC) at 55-59 New Oxford Street on the southern side of the street, at the corner with Dyott Street. Alcohol service hours on the Premises Licence run until 06.00, making this venue a potential draw for after- hours clientele moving from other premises in the early hours of the morning (in 2014 the premises were marketing themselves as an after-hours club, operating Tuesday-Saturday, 03.30-07.00). Our experience was that the premises began operating from around 22.00, closing at around 03.30-04.00. The premises were especially popular with young adult clubbers, a large proportion of whom appeared to be from South East Asian communities. Queues formed outside the premises on Dyott Street and were a constant presence throughout our observation periods. Dyott Street was also used as the premises’ outdoor smoking area. These activities were heavily policed by a team of door supervisors and our impression was that the venue was selective as to who was permitted entry, based upon the gender-mix of groups (all male groups denied entry) and levels of prior intoxication.

Kingsway / Southampton Row / High Holborn (east)

The western flank of Kingsway / Southampton Row lies within the Seven Dials SPA, between the junctions with Kemble Street to the south and Bloomsbury Place to the north. There are two pubs / clubs operating to 01.00 or later in the immediate vicinity of Kingsway / Southampton Row, two LNR cafes/takeaways and one unlicensed (no-alcohol) café/restaurant operating into the early morning hours. We found no off-sales alcohol outlets within this micro-location of our patrol area (apart from Sainsbury’s on the junction with High Holborn (west), which closes no later than 23.00).

A key feature of the night-time scene in Kingsway, on both sides of the street, is the proximity of the Seven Dials SPA. Kingsway, much like Tottenham Court Road, is an important exit point for visitors leaving the West End by Night Bus. Late at night, the pedestrian flow on streets such as High Holborn (west), Parker Street and Great Queen Street is notably west-to-east, as the customers of licensed premises located within the Seven Dials SPA walk towards the bus stops on the eastern and western flanks of Kingsway, located just south of the Holborn LU Station.

Notable licensed premises

The Shakespeare’s Head

Eastern pavement of Kingsway

It is of note that several important ENTE facilities in this location are to be found outside of the Seven Dials SPA, on the eastern flank of Kingsway and on High Holborn (east), which stretches from the junction with Kingsway/Southampton Row. In these locations, one finds a bus stop providing four Night Bus services, The Shakespeare’s Head which trades to 01.00 on Fridays and Saturdays, Holborn LU station, a McDonalds restaurant which operates 24/7 and Hiba, an unlicensed Lebanese restaurant/takeaway with outdoor shisha smoking, that operates into the early hours. The presence of a mobile hot dog vendor, who positioned himself from midnight onwards next to the Night Bus stop on the eastern flank of Kingsway, served to underline the importance of this location as a major exit point for ENTE visitors. Hot dog vendors choose their locations with care and on the nights of our research only four locations were chosen: these being, the Night Bus stops on Tottenham Court Road (south, western pavement), New Oxford Street (west, northern pavement), Kingsway (north, eastern pavement) and in Kings Cross on Pentonville Road (west, south pavement, between Scala and The Big Chill House).

5. Place management recommendations for each area

The four areas of Camden considered by this study have quite distinct profiles in terms of their appeal for ENTE patrons and their general mix of uses and functions in spatial planning terms.

These different profiles map onto licensing and the statutory Licensing Objectives in various and inconsistent ways. We believe that the central licensing, planning and place management issues for each of the areas in question are as follows:

Kings Cross (including St Pancras / Somers Town and Euston)

Key Statutory Licensing Objectives for the area:

Crime and Disorder Public Safety

Some practical measures that could be taken include:

offers.  Encourage the extension of hours for retail uses to promote day-time levels of diversity and mixed-use vibrancy into the evening and beyond.  Monitor the number of new on-licence applications / licence variation applications for late-night drink-led uses in order to track any gradual shifts away from the current high proportion of food-led offers.  Work with private sector partners to extend further into the night services such as litter picking / collection and uniformed guardianship of the public spaces around the three Mainline Rail Stations. Ideally, this would extend as far as the 01.00-04.00 period.  PCSO / Police enforcement of the Borough-wide Public Spaces Protection Order (PSPO) in response to anti-social behaviour associated with drinking, especially in the piazza areas around the three stations, and along Gray’s Inn Road and Euston Road.  Conduct regular intelligence-led licensing compliance operations in off- sales premises on Gray’s Inn Road and Euston Road.  Produce ‘Action Plans’ for non-compliant premises, pending the option to Review specific Premises Licences.  Work with services for the homeless to discourage static street drinking and begging in the area.  Consider the installation of pavement barriers along Pentonville Road, at Kings Cross Bridge and on York Way to improve public safety for ENTE patrons and road users.  Increase partnership working with the London Borough of Islington regarding all of the above and most specifically: licensing compliance, crime and disorder and public nuisance on Caledonian Road and the north pavement of Pentonville Road.  In partnership with Islington, create cross-borough hot-spot mappings to provide broader insight into crime patterns at night and issues of cross- borough displacement requiring immediate, mid-term and long-term strategic responses.

Gray’s Inn Road / Euston Road (Off-sales and Late Night Refreshment)

consumed large amounts of alcohol. 3.) Access to off-sales alcohol after and before attending on-trade premises increases overall levels of consumption amongst some visitors, leading to more problems in and around on-trade premises and on pathways, public transport and local and outlying residential communities late at night27.

This report does not recommend the application of a SPA to any part of Kings Cross/St Pancras/Euston at this time.

27 Hadfield, P. (2004) ‘The Prevention of Public Disorder’ in P. Kolvin (ed.), Licensed Premises: Law and Practice. 1st edition. Haywards Heath: Tottel.

Kentish Town

Key Statutory Licensing Objective for the area: Public Nuisance

Kentish Town contains a growing concentration of licensed premises based around food offers and also a music and sports-centred pub and bar scene. Several of the licensed premises on Kentish Town Road are of large physical capacity and are young adult and music-focused, attracting a similar clientele to many of the venues within the Camden Town SPA.

Licensed premises in Kentish Town close relatively early compared with premises in the current Camden SPAs. When one walks south from Kentish Town into the Camden Town SPA from 01.00 onwards, the difference in activity levels and observable negative impacts of licensed premises is quite dramatic.

Kentish Town is an ‘urban village’ within North London, with a high proportion of residential properties and with commercial high street-style amenities found predominately on the single strip of Kentish Town Road. Different communities, including residential communities, have different views and different tolerance levels with regard to alcohol-related anti-social behaviour at night. However, any general shifts towards later hours for licensed premises and increased numbers of such premises in what is a long-standing, generally quiet neighbourhood, may be of understandable concern to local residents if the attraction value of the area’s ENTE grows.

In terms of active place management we would recommend the following actions be considered:

 Careful scrutiny by the Environmental Health Team (and the MPS) of Temporary Event Notice (TENs) applications by on-trade premises, particularly regular and repeated TENs applications.

 In respect of off-sales. Currently, no premises are permitted to sell alcohol beyond 23.00. Where intelligence suggests there is non- compliance, premises may be subject to regular monitoring to ensure that they are not conducting after-hours sales.

 One of the core local issues is people drinking from open bottles and cans whilst walking the streets. Camden is unusual in having a Public Spaces Protection Order (PSPO) designation extending to cover the whole of the Borough. The PSPO affords Police Officers and PCSOs the power to confiscate alcoholic drinks from persons on the street in the case of anti-social and disorderly behaviour. We would recommend increased application of PSPO powers in the case of street drinking behaviours on Kentish Town Road, Anglers Lane and Prince of Wales Road, as a measure to protect residential and more general quality-of-life amenities in Kentish Town.

 Kentish Town would benefit from the development of a food or non- alcoholic beverage-based café culture with active frontages, where possible. Such uses might be encouraged in circumstances and at hours that do not impact negatively on residential amenities. Charlotte Street, Great Titchfield Street and Marylebone High Street might be cited as examples of areas where something akin to this situation already pertains in an ‘urban village’ setting.

This report does not recommend a SPA designation to any area of Kentish Town at this time.

We would advise that the number of licensed premises - taking into account the whole strip of Kentish Town Road, from a patrol area starting from Hawley Crescent through to the Forum on Highgate Road - is most likely insufficient to present a robust evidential basis for such a designation.

In the case of localised impacts from within Kentish Town, we did not find evidence to suggest that problems were arising as a result of the number or densities of licensed premises. In accordance with the Statutory Guidance to the Licensing Act 2003 (as amended), these are the only relevant criteria for the demarcation of a SPA.

Licensing records indicate there should be no off-sales on Kentish Town Road beyond 23.00. Regardless of the potential opportunities for ‘stockpiling’ alcohol, it is important to maintain these hours in contributing to the management of Public Nuisance, given the highly residential nature of the area.

Tottenham Court Road / Charlotte Street / Goodge Street

Key Statutory Licensing Objectives for the area:

Public Nuisance Crime and Disorder

a) Tottenham Court Road

Our patrol area encompassed Tottenham Court Road in its entire length, together with adjoining streets to the west and east where licensed premises were either visible and/or within 60m distance from Tottenham Court Road. 30 licensed premises were recorded on or directly-around Tottenham Court Road. These premises were mixed in nature and functions, and due to the length of this major thoroughfare, spatially dispersed.

There was no discernable cluster of ENTE premises on Tottenham Court Road, based on (then-)current development patterns. The number and location of premises located in and around the street itself do not create the conditions wherein these premises, in and of themselves, generate negative cumulative impacts within the surrounding public realm. For this reason we do not commend Tottenham Court Road as a suitable candidate for SPA designation.

It should be noted that this is not to say:

1. That the area does not suffer the effects of the cumulative impact of licensable activities. We found evidence to suggest that it does. However, the impacts are displacement effects from other areas to the south. These occur on Tottenham Court Road as a result of it being a key ‘pathway’ for ENTE patrons dispersing from areas right across the West End late at night.

2. That licensed premises operating on Tottenham Court Road do not sometimes impact negatively on the licensing objectives, as a result of their management styles and the behaviour of their customers. We noted such instances. These were, however, premises-specific effects, not cumulative impacts arising as a result of the premises forming part of a cluster of similar premises.

We do believe that, to help improve community safety at night, some other actions should be considered: Public Square: Improved lighting. The area contains a public square with bench seating just to the north of Tottenham Street. This space is directly visible and accessible from Tottenham Court Road. We noted that the square was poorly illuminated at night and was occupied by homeless street drinkers and on some occasions by other static persons who exuded a somewhat menacing presence. Much brighter illumination of the area at night, so that activities therein come ‘under-the-spotlight’, would, we believe, be a simple but highly effective target-hardening measure that would also help reduce the fear of crime. Night Bus stops: Improved lighting and CCTV. Given the very high levels of customer usage at night and their status as key congregation points we would also recommend improved lighting and the installation of CCTV at Tottenham Court Road’s Night Bus Stops.

b) Charlotte Street / Goodge Street

We recorded 57 licensed premises on Charlotte Street / Goodge Street and a small number of adjoining streets. It was clear therefore, that this area of Fitzrovia, just to the west of Tottenham Court Road, contained a high density of licensed premises, even by Central London standards. This is a location in which the ‘urban village’ effect crosses jurisdictional boundaries (34 of the premises noted were licensed by Camden, with the remaining 23 licensed by the City of Westminster). The cluster was observed to have a particular character. Unlike many - indeed most - clusters of licensed premises in London, the central function of the majority of premises was found to be seated dining with table service. A large number of premises also featured open-air dining on tables and chairs to the frontage of the premises; often accompanied by canopies and heaters to encourage year-round use. These operational features afforded the area a more continental ambience, whilst also adding significantly to natural surveillance of the streetscape. In addition to being food-led, the large majority of licensed premises in the area close before midnight. We saw no evidence of off-sales-supplied street drinking in these streets (the only off-sales store in the area closes by midnight). For this combination of reasons, we do not see the area as a candidate for SPA designation at this time. We would add a note of caution, however, given the combined capacity of the 57 licensed premises now trading within this confined geography. It is important to consider how negative cumulative impacts could arise in the circumstances of the operators of licensed premises making commercial decisions to trade to later hours and adopt a more drink-led business format. There are some signs of a trend towards the restaurants developing cocktail bars with DJ-entertainment that are spatially divided from the dining area and separately branded. Further trends in this direction may become apparent in the case of licence variation applications. We recommend that licensing officers within Camden track and monitor such applications with care, © Phil Hadfield 145 whilst also seeking to consider the comments of local people in particular detail. Due to the size of the existing licensed estate it is especially important that the right balance be struck between potentially competing interests in this location. It will only be through maintaining such balance that the unique attractions of the area will be sustained. The sharing of jurisdiction with Westminster concerning the regulation of premises in this cluster undoubtedly means that Camden lacks the tools to shape the area as a whole in the ways it might wish to. It is unclear if Westminster have identified Charlotte Street / Goodge Street as an emergent ENTE cluster. The cluster lies just to the north of Westminster’s WESA CIZ, the boundary of which cuts across the mid-section of Rathbone Place. One might speculate as to whether some of the development of the cluster has occurred as a result of the displacement of entrepreneurial energy and investment from the WESA and possibly other CIZs, including Camden’s own Seven Dials.

We would recommend establishing dialogue with licensing officers at Westminster concerning issues arising within the Charlotte Street / Goodge Street cluster. This dialogue would concern the cluster’s future governance, including monitoring the direction of further development and close evaluation of data measures relating to the Licensing Objectives.

Holborn

Key Statutory Licensing Objectives for the area:

Crime and Disorder Public Nuisance

This patrol area contains three distinct sections:

1. High Holborn: That section of this street to the west of Kingsway that comprises part of the Seven Dials SPA.

New Oxford Street and Kingsway are key exit points by Night Bus for visitors to the West End. They are also proximate to Tottenham Court Road and Holborn LU stations respectively; both major exit points for theatregoers and after-work ENTE patrons, up until 00.30. Following the introduction of ‘night tube’ services, the LU stations will share a proportion of the exits of late-night economy visitors, the staff of licensed premises and other night workers.

Licensing Policy and place management recommendations in respect of areas 2 and 3:

New Oxford Street

a) We recommend that the northern flank of that section of New Oxford Street that lies to the west of the junction with Bloomsbury Way be brought within the boundaries of the Seven Dials SPA. The justification for this suggestion is that many of the cumulative impacts of Licensable Activities that may be attributed to the cluster of premises in Seven Dials are experienced at this location; indeed, more so than on the south flank of the street which already lies within the SPA.

A further advantage would be the increased ability to control the development of this section of the street by licensed businesses. We would stress that this location, due to the positioning of the Night Bus stops and various surrounding licensed premises, was found to have the most intensive late-night usage recorded across the four patrol areas as a whole. b) Unsupervised street drinking was found to take place on the terraced area occupying the triangular block formed by the junctions of Shaftesbury Avenue, Bloomsbury Street and New Oxford Street. This public space lies directly opposite two licensed convenience stores. We found the area to be heavily littered with street drinking detritus and often occupied by groups of persons stood or seated whilst drinking in this location. These activities occur despite a warning sign indicating that police have the power to confiscate alcohol from persons drinking in this area and to impose an associated fine of up to £500. The presence of the sign informs the public that this space falls within the remit of Camden’s Public Spaces Protection Order (PSPO).

We recommend:

PCSO / Police enforcement of the PSPO in response to anti-social behaviour associated with drinking at this location. Even in the absence of anti-social behaviour, large drinking gatherings in this space should be discouraged by regular police warnings, disruption and dispersal of participants. Intelligence-led licensing compliance operations in nearby off-sales premises. ‘Action Plans’ for non-compliant premises, pending the option to Review specific Premises Licences. c) Levels of illumination on New Oxford Street are notably lower than that found on other roads in Central London that have higher levels of vehicular traffic. © Phil Hadfield 148

New Oxford Street, by comparison, has routinely higher levels of pedestrian usage at night than many of these comparable thoroughfares. Pedestrians entering New Oxford Street encounter a comparatively gloomy environment. Low lighting adds to the feeling of the area being more neglected, unsupervised and potentially dangerous than its nearby surroundings28. This atmosphere is compounded by the presence of overflowing litter bins, broken glass, and urine staining around the Night Bus stops late at night. Much brighter illumination of the area at night, so that activities therein come ‘under-the-spotlight’, would, we believe, be a simple but effective target- hardening measure that would also help reduce the fear of crime.

Kingsway / High Holborn (east)

Several important ENTE facilities in this location are to be found just outside the SPA, on the eastern flank of Kingsway and on High Holborn (east). One finds a bus stop providing four Night Bus services, a large capacity Wetherspoon’s pub, which trades to 01.00 on Fridays and Saturdays and is located directly behind the Night Bus stops, Holborn LU station (soon to provide 24-hour services at weekends), a McDonalds restaurant which operates 24/7, and a Lebanese café/restaurant which trades until the early hours of the morning. As a result of the above considerations we recommend: a) That the eastern flank of that section of Kingsway that lies between the junctions with Sardinian Fields to the south and High Holborn/Southampton Row to the north, be brought within the boundaries of the Seven Dials SPA. b) That both flanks of High Holborn, east of the junction with Kingsway/Southampton Row, be brought within the boundaries of the Seven Dials SPA, as far as the junction with Proctor Street only.

The justification for these suggestions is that many of the cumulative impacts of Licensable Activities that may be attributed to the cluster of premises in Seven Dials are also experienced in these locations, just to the east of the current boundary. The customers of premises within the Seven Dials SPA were observed to move towards the facilities on Kingsway (east) and High Holborn (east) late at night.

28 See Brands et al., (2015) who discuss reported public anxieties in the context of different types of night-time urban spaces. © Phil Hadfield 149

Seven Dials SPA boundaries: other recommended changes

In reviewing the current Seven Dials SPA boundaries we identified one further area where it may be justified to reduce the geographical coverage of this ‘Cumulative Impact Zone’. Just to the north of our main area of patrol in Holborn one finds a section of the SPA that lies north of Bloomsbury Way and stretches as far as the south pavement Great Russell Street, just below the British Museum. This northern section of the SPA is bounded by Bloomsbury Street to the west and Southampton Row, to the east, thus forming an oblong block when sketched on a map. Within the streets in question, we did not find a concentration of licensed premises, nor did we observe much movement or interaction between this area and areas of the SPA to the south of Bloomsbury Way, where most of the Seven Dials ENTE is located. At present, Bloomsbury Square is encompassed by the SPA, although it contains no licensed premises. The most prominent premises within the SPA block in question are Salvador and Amanda on Vernon Place, the Museum Tavern on Great Russell Street, The Plough (public house) on Museum Street, Pizza Express on Coptic Street and Wagamama on Streatham Street. There are a few other small independent restaurants within the area, one off-licensed convenience store, and additional cafes open during the day-time. Outside of the area, just to the north and west on Bloomsbury Street and Great Russell Street, there are further restaurants with night-trade. Apart from Salvador and Amanda, which is an outlier, located on the very edge of the area, none of the premises within this area of the SPA trade beyond midnight on any night of the week. A further factor we consider important is that the premises listed above are not bunched; they are spatially dispersed. Our suggested amendments to the Seven Dials SPA boundary are illustrated in the following map. Current boundaries of the Seven Dials SPA are indicated by the blue line; the locations shaded red illustrate the two geographies we propose for consultation on extensions to the Seven Dials SPA boundaries; the area shaded green indicates the geography we recommend for consultation regarding its removal from the SPA:

Recommendations that cut across the four research areas

1. Enforce: enhance and sustain current Premises Licence arrangements

As part of this research, test purchases were made at late-trading supermarkets and convenience stores in the four areas to check if some premises were serving alcohol beyond the times permitted by their Premises Licence. Sales-of- Alcohol time restrictions are, of course, a long-standing mechanism to control the availability of alcohol at key hours and locations where public drunkenness (as measured by volume of alcohol consumed) is at its highest levels. National evidence and local evidence - for example, the on-street visitor drinking surveys conducted by this research team in the Seven Dials and Camden Town SPAs in 201029 – suggests that, on-average, unit consumption of alcohol amongst those ENTE visitors that remain in-situ, increases hour-by-hour up until 03.00 and beyond. It is important therefore that a general culture of compliance with permitted trading hours is achieved. The results of our test purchases – made at random times in late-trading premises – indicate currently high levels of non-compliance. The alcohol availability issue has greatest resonance for the most committed of drinkers; those ENTE patrons who seek out off-sales sources after leaving on- trade premises and alcohol-dependant street drinkers from the homeless population. Non-compliance with licensing hours by off-sales outlets provides access to additional consumption opportunities for these ‘hard- drinking’ sub-groups; fuelling public drunkenness on public transport and pedestrian journeys in the course of exits from central locations30. As a general rule, it is important to enforce existing licensing controls before imposing new ones31.

2. Finance: assess the Late-Night Levy and its suitability for Camden

29 Hadfield, P., Noga, H., Large, J. and Jones, R. (2010) Visitor drinking, late-night refreshment and transportation in the Camden Special Policy Areas: Final Report to the London Borough of Camden. August 2010. London: www.philhadfield.co.uk. 30 Bellis, M. and Hughes K. (2011) ‘Getting drunk safely? Nightlife policy in the UK and its public health consequences’. Drug and Alcohol Review, 30: 536-45. 31 Hadfield, P. and Measham, F. (2010) Lost Orders? Alcohol and law enforcement in England and Wales: Final report to the Portman Group. London: The Portman Group. © Phil Hadfield 152

3. Monitor: track the general direction of development within the ENTE

We recommend that Licensing Officers at the Council, with the findings of this report and other evidence in mind, monitor the number and location of new Premises Licence applications and licence variation applications for late- night drink-led uses and for LNR, across the four areas. We would suggest that all new applications / variations for post-midnight Sales-of-Alcohol and LNR are flagged, recorded, and the resulting statistics reviewed, on a six-monthly basis. This will enable the Camden Community Safety Partnership to identify and track emergent ENTE development trends that are not always apparent when processing large numbers of applications from locations Borough-wide.

4. Think across boundaries: place management requires cross-borough collaborations

5. Collaborate: on supportive services by extending ENTE partnership working and on new income streams for integrated place management

We are rapidly entering an era in which urban place management is delivered through a network of providers and organisational collaborations: from wholly-voluntary private sector Corporate Social Responsibility (CSR) schemes at one end of the spectrum, through to wholly public delivery at the other. The fiscal cuts for councils and their public sector partners, together with the dubious track-record of branded CSR policy transfers involving 'big business' backers, externally-imposed KPIs and weak local leadership32 would suggest that the best, most accountable and politically palatable approach in the near future will be that of novel public-private sector partnerships led by the ‘city vision’ of councils, rather than the more narrow concerns of the police or business community. There is an opportunity for Camden to provide leadership, especially on matters of public accountability and standards of evaluation, as they apply to those partnership measures and initiatives to be applied to the public streets and other shared spaces33. There are several examples of the Borough and the wider Camden Community Safety Partnership working collaboratively with private sector stakeholders, emergency health services and NGOs conducting ‘outreach’ work on alcohol and drug issues in the areas examined by our research. a) Pub Watch. The Euston Pubwatch, for example, provides a forum for the exchange of intelligence between the MPS, Camden Council and the pubs located in and around the three mainline stations in Euston/Kings Cross/St Pancras. The aim of Pubwatch is to encourage a safe and secure social drinking environment in all licensed premises and help to reduce drink-related crime. Licensees from pubs, bars, restaurants and cafes meet every couple of months to discuss common issues. These meeting are supported and attended by Licensing Officers from the Council and representatives from the MPS. Information shared will relate, for example, to football fixtures, football hooliganism, and potential overcrowding pressure from other major public events across London and the South East. Effective engagement of Pubwatch provides opportunities to cut the costs of policing and licensing enforcement / litigation by encouraging licensees to be pro- active; operating their premises so as to prevent the occurrence or recurrence of crime and disorder (for example, by closing early on police advice in the case of high-risk football fixtures).

32 Home Office / KPMG LLP (2008) Review of the Social Responsibility Standards for the Production and Sale of Alcoholic Drinks, Birmingham: KPMG LLP. Hadfield, P. and Measham, F. (2015) ‘The outsourcing of control: Alcohol law enforcement, private sector governance and the evening and night-time economy’, Urban Studies. 52(3): 517- 37. 33 Hadfield and Measham, (ibid.) © Phil Hadfield 154 operation and establish partnership working on security and safety issues. b) Business Improvement Districts (BIDs). The areas examined also contain BIDs. A BID is a defined geographical area within which local businesses have voted to invest collectively to improve their trading environment. BIDs operate usually for periods of five years, which can run successively. BIDs provide additional or improved services as identified and requested by local businesses. Services often include additional safety and cleansing and broader environmental measures. BIDs are business-led organisations, funded by members, who pay an agreed levy previously approved by ballot.

There are three BIDs currently operating in Camden that encompass some of the Borough’s main ENTE areas:

34 http://fitzroviapartnership.com/what-we-do/safety-security/ (as accessed 22 September 2015).

6. Evaluate: Night tube

The above measures, if sustained in combination, will undoubtedly support public safety and security on Camden’s soon-to-be-implemented all-night weekend tube services. Nonetheless, there are a number of important unknowns about how the night service will impact on the social behaviour of ENTE users. It is too simplistic to assume that there will be a seamless transition to easier and more rapid dispersals late at night, immediately easing the pressure on public services35. It could be, for example, that a proportion of visitors use the new late-night tube services after 00.30 to attend late-night events in ENTE areas, having already ‘pre-loaded’ on alcohol (and drugs) in their home localities. This possibility, together with the impacts on residential noise nuisance, street cleansing services, and station security, for example, are matters of conjecture at present. Such issues were not considered in the research commissioned by TfL (which focused on economic benefits to late- trading businesses)36, in pilot trials of the service, or in detailed service planning discussions with the Boroughs (to the author’s knowledge).

35 As highlighted in the following work, with respect to licensing hours:

36 Volterra, (2014) Impact of the night tube on London’s Night-Time Economy: Report prepared by Volterra Partners for TfL and London First. London: TfL and London First.

Appendix one: References

Basanta, A.R. (2009) ‘Spain’, in Hadfield P. (ed.) Nightlife and crime: social order and governance in international perspective, pp.153–65. Oxford: Oxford University Press. Bellis, M. and Hughes K. (2011) ‘Getting drunk safely? Nightlife policy in the UK and its public health consequences’, Drug and Alcohol Review, 30: 536-45.

Brands, J., Schwanen, T. and van Aalst, I. (2015) ‘Fear of crime and affective ambiguities in the night-time economy’, Urban Studies, 52/3: 439-55. Brantingham, P. L. and Brantingham, P. J. (1995) ‘Criminality of place: crime generators and crime attractors,’ European Journal of Criminal Policy and Research, 3: 5-26. Bromley, R. and Nelson, A., (2002) ‘Alcohol-related crime and disorder across urban space and time: evidence from a British city,’ Geoforum, 33: 239-254.

Camden Community Safety Partnership (CCSP) Information Unit (2015) Cumulative impact assessment - Camden crime data to aid licensing statement, Version 2. CCSP Information Unit: London. Demant, J. and Landolt, S. (2014) ‘Youth drinking in public places: the production of drinking spaces in and outside nightlife areas’, Urban Studies, 51/1: 170-84. Felson, M. (2008) ‘The routine activity approach’ in R. and L. Mazzerole, (eds.), Environmental criminology and crime analysis. UK: Devon Press.

Gehl, J. (1996) Life between buildings, 3rd edn. (Copenhagen, Arkitektens Forlag).

Humphreys, D. and Eisner, M. (2010) ‘Evaluating a natural experiment in alcohol policy: The Licensing Act (2003) and the requirement for attention to implementation’. Criminology & Public Policy, 9/1: 41-67.

Hadfield, P. (2004) ‘The prevention of public disorder’ in P. Kolvin (ed.), Licensed premises: law and practice. 1st edition. Haywards Heath: Tottel.

Hadfield, P. and Measham, F. (2010) Lost orders?: alcohol and law enforcement in England and Wales: Final report to the Portman Group. London: The Portman Group. Hadfield, P. and Measham, F. (2015) ‘The outsourcing of control: Alcohol law enforcement, private sector governance and the evening and night-time economy’, Urban Studies. 52(3): 517-37.

Hadfield, P., Noga, H., Large, J. and Jones, R. (2010) Visitor drinking, late-night refreshment and transportation in the Camden Special Policy Areas: Final Report to the London Borough of Camden. August 2010. London: www.philhadfield.co.uk.

Hadfield, P., Sharples, S., Bevan, T. and Measham, F. (2016) Westminster evening and night-time behaviour audit 2013-14. Final report to the West End Partnership Group and the City of Westminster. London: www.philhadfield.co.uk.

Home Office (2015) Revised guidance issued under section 182 of the Licensing Act 2003. March. London: Home Office.

Home Office / KPMG LLP (2008) Review of the social responsibility standards for the production and sale of alcoholic drinks, Birmingham: KPMG LLP.

Home Office and Office of the Deputy Prime Minister (2004) Safer places: the planning system and crime prevention, London: ODPM.

London Borough of Camden (2011) Statement of licensing policy 2011. London: Borough of Camden.

Perham, N., Moore, J. Shepherd and B. Cusens (2007) ‘Identifying drunkenness in the night-time economy’, Addiction, 102(3): 377-80. Piquero, A. and Weisburd, D. (eds.) (2010) Handbook of quantitative criminology. New York: Springer Verlaag.

Sampson R. and Raudenbush S. (1999) ‘Systematic social observation of public spaces: A new look at disorder in urban neighborhoods’, American Journal of Sociology, 3 (November): 603-51.

Selmini R. and Nobili G. (2009) ‘Italy’ in P. Hadfield (ed.) Nightlife and crime: social order and governance in international perspective, pp. 139–52. Oxford: Oxford University Press.

Slade, D. (2007) Sales to drunks enforcement and the Responsible Alcohol Sales Campaign: Additional information for participating BCUs. London: Home Office, Police and Partnership Standards Unit. Taylor, J., Twigg, L. and Mohan, J. (2015) ‘Understanding neighbourhood perceptions of alcohol-related anti-social behaviour’, Urban Studies, 52/12: 2187-202.

TBR Observatory (2014) Night-mix league table – urban LAs 2011. Newcastle- upon-Tyne: Trends Business Research Ltd.

Volterra, (2014) Impact of the night tube on London’s Night-Time Economy: Report prepared by Volterra Partners for TfL and London First. London: TfL and London First.

Appendix two: Author biography

Dr Phil Hadfield is a research consultant with 15 years’ experience in the fields of urban cultural planning, evening and night-time economy policy development, community safety and mixed – methods research. He has worked for many prominent clients, including The City of London, The City of Sydney, The European Forum for Urban Security, The Home Office, KPMG, Lancashire Constabulary, Liverpool City Council, The London Borough of Camden, The London Borough of Hammersmith and Fulham, The London Borough of Lambeth, Merseyside Police, Nottinghamshire Constabulary, Alcohol Research UK, and the Economic and Social Research Council.

Phil is Associate Fellow of the Faculty of Education, Social Sciences and Law, Centre for Criminal Justice Studies, School of Law, University of Leeds. He is the author, co-author or editor of some of the leading books, scholarly collections and articles on UK, European and International evening and night-time economies. Phil works closely with clients to ensure the quality and relevance of research and advisory outputs. His work is client-centred and informed by the latest statutory developments, as well as knowledge and evaluations of best practice.

His work in licensing has occurred in the following areas:

 Independent evidence-gathering and policy development advice for LAs in relation to their Statements of Licensing Policy, most notably in respect of Cumulative Impact Policies.  Assistance for LAs with public and stakeholder consultation exercises on licensing issues.  Evidence-gathering and expert witness consultancy in cases of licensing litigation: contested variations, new premises’ applications, licence reviews etc.  Development of international comparative perspectives on alcohol and licensing matters / exchange of ‘best practice’ / urban governance and development, mostly through involvement in the EC – funded European Forum for Urban Security, but also through direct commissioning, eg. by the City of Sydney.  Work on Research Council-funded academic projects, eg., ESRC, Alcohol Research UK, as well as Home Office projects.  Academic publishing in peer reviewed journals and books.  Desktop and empirical research commissioned by NGOs (IAS, Alcohol Concern).  Empirical research commissioned by private sector CSR bodies (Community Alcohol Partnerships, Portman Group).  Contribution to media and professional publications / public seminars in the UK and internationally.  Contributions to the planning and execution of innovative evening and night-time economy ‘Cost v Benefit’ analyses.  Programme evaluation. © Phil Hadfield 160

Appendix three: Research instrument

Systematic Social Observation (SSO) is an influential approach to recording observational research data in a structured way, which makes it amenable to statistical data analysis, replication and testing37. In 2014, a research instrument was developed by www.philhadfield.co.uk to record incidents and phenomena in public places that are of direct relevance to the Licensing Objectives and therefore most suited to the measurement of evidence underpinning Cumulative Impact Policies. The SSO instrument we developed comprised of a ‘check sheet’ of categories which researchers use to record what they see at pre- defined locations and at pre-set times, each time they visit the research site/s38. Our SSO instrument was developed initially for use in a quantitative survey of public behaviour. However, its use in qualitative studies such as this, also allows the research team to record their observations more consistently. In this research, our adoption of the SSO instrument provided a guide to all research team members on the relevance of what was observed. The instrument and its contents were discussed in advance with the Research Director, based upon his experience and subject knowledge. The focus on ‘what is relevant’ (ie. on the sheet) then allowed the data collection to proceed according to explicit rules, reducing researcher bias and improving the consistency of data collection across the team. Categories on the sheet and any queries as to the consistent allocation of incidents to categories were issues discussed at nightly-team meetings. Researchers were trained in the assessment of drunkenness, following established guidance. In support of the Responsible Alcohol Sales Campaign (RASC), the Home Office provided national briefing notes to police officers on how to identify a person who is drunk, through aspects of their comportment and appearance, including: “rambling conversation”, “an unkempt appearance”, “being careless with money”, “spilling drinks”, “fumbling for cigarettes” and “bumping into furniture”39. In addition, epidemiological research has found a high degree of correspondence between Blood Alcohol Concentration, as an objective measure of intoxication, and subjective ratings of its physical manifestations (slurred speech, staggering gait and glazed eyes) when conducted by trained researchers in naturally-occurring nightlife settings40. The research instrument is reproduced below:

37 The most influential application of the approach can be found in: Sampson R. and Raudenbush S. (1999) ‘Systematic social observation of public spaces: A new look at disorder in urban neighborhoods’, American Journal of Sociology, 3 (November): 603-51. 38 Various SSO approaches to researching particular ‘geographic units’ are discussed in: Piquero, A. and Weisburd, D. (eds.) (2010) Handbook of Quantitative Criminology. New York: Springer Verlaag (p.230). 39 Slade, D. (2007) Sales to drunks enforcement and responsible alcohol sales campaign: additional information for participating BCUs. London: Home Office, Police and Partnership Standards Unit (p.5).

40 Perham, N., Moore, J. Shepherd and B. Cusens (2007) ‘Identifying drunkenness in the night- time economy’, Addiction, 102(3): 377-80.

Location no: Observer: Day: Hour:

ANTI-SOCIAL

Public physical assault property theft robbery drug dealing sexual harassment vandalism urination other bodily soiling trespass littering begging street drinking (group) street drinking (individual) drunkenness (action) drunkenness (sound) sound (amplified)

Agency police arrest police interception police argument warden argument cleansing team argument emergency siren

Premises noise outbreak (licensed premises) noise outbreak (LNR) glass safety staff-public argument staff-public physical touting (premises)

Vehicular pedi-cab (sound) pedi-cab (obstruction) pedi-cab (touting) mini-cab (touting) mini-cab (sound) mini-cab (obstruction) black-cab (sound) black-cab (obstruction)

PRO-SOCIAL

Public drunkenness (action) drunkenness (sound) conviviality (group) conviviality (inter-group) help request response bystander intervention busking

Groups busking (group) street entertainment cultural / art activities educational activities faith group activities foreign tourist activities sporting activities

Agency police (visible) wardens (visible) cleansing (visible) ambulance (attending)

Premises + Staff Intervention

Appendix four: Strengths and limitations of the research design

Strengths

+ we focus upon the ‘why?’ questions; through gaining in-depth understanding of how each area functions we provide insights into the reasons that criminal and disorderly behaviours are recorded as clustered in particular locations at certain times.

+ we look at a variety of locations and what makes them different. We are therefore able to draw recommendations that are appropriate to each area, rather than proposing broad-brush, off-the-shelf measures.

+ Over a period of six months, we look at a variety of hours of the day, days of the week, and seasons of the year and what makes them different.

+ the research team are trained to spot behaviours and issues relevant to licensing and place management and to apply categories consistently.

+ the research method provides a unique source of data on the ‘dark figure’ of un-recorded public nuisance and disorder, as well as pro-social behaviours.

+ the method could be used to assess the impact of certain interventions by recording the full range of activity before and after initiatives have been implemented, therefore also capturing any unintended consequences.

+ The research was conducted independently and unannounced. This allowed us to obtain a view of the ‘natural setting’ as it would appear to the everyday visitor, rather than obtaining an impression that was in any way ‘stage managed’ by interested parties.

Limitations

As with all research designs, limitations were set by the available financial resources and timescale of the project:

- We were unable to ‘count’ incidents of certain behaviours, thereby producing a new set of quantitative data.

- We could not control for, or count, the number of people present within the four locations on each night we worked.

- We did not have the benefit of a full 12-month timescale to study the annual calendar of events and seasonal conditions in their entirety.

- Ideally, we would have had comparable ‘control locations’ within other areas of Camden, other London boroughs, UK cities, and internationally.

- Interviews / survey work / focus groups / electronic media debate with stakeholders in each area and with samples of ENTE patrons would have added further depth to our findings.

Appendix five: Glossary of terms

BID (Business Improvement District)

A Business Improvement District (BID) is a geographical area within which local businesses have voted to invest collectively to improve their environment. BIDs provide additional or improved services as identified and requested by local businesses. Services often include extra safety, cleaning or environmental measures. BIDs are business-led organisations, funded by a mandatory levy on all eligible businesses following a successful ballot.

CIP (Cumulative Impact Policy)

In Guidance to the Licensing Act 2003, “Cumulative impact” refers to the potential impact on the promotion of the four Licensing Objectives (1. prevention of crime and disorder, 2. prevention of public nuisance, 3. public safety and 4. the protection of children from harm) of a significant number of licensed premises concentrated in one area. Cumulative impact is the concept used to reflect how in some areas, alcohol-related social harms arise, not because of the activities of individual businesses, but because there are a large number of licensed premises within a small area.

Where local evidence exists to suggest that the number of licensed premises in an area is a problem, the Council can decide to control the numbers of new venues and variations to the licensing of existing venues in that area. This is known as a Cumulative Impact Policy (CIP) as set out in the Guidance accompanying Section 182 of the Licensing Act 2003, issued by the Home Office.

Before a Council can introduce a CIP policy it must undertake a consultation with local businesses and residents. Once a CIP is in place, new licensing applications pertaining to areas within the boundaries of the CIP will need to provide evidence that they will not add to the problems that already exist in that area.

CIA / CIZ (Cumulative Impact Area / Cumulative Impact Zone)

CIA or CIZ are terms used (interchangeably) to describe the geographical area/s to which a CIP refers. Some Licensing Authorities, including Camden, employ the terms SPA (Special Policy Area) to denote the same.

CSEW (Crime Survey for England and Wales)

The Crime Survey for England and Wales (previously, the British Crime Survey) is a systematic victimisation study, currently conducted annually by BMRB Limited on behalf of the Home Office. The survey seeks to measure the amount of crime in England and Wales by asking a sample of people aged 16 and over, living in private households, about the crimes they have experienced in the last year.

The Home Office asserts that the CSEW data provides a better reflection of the true level of crime than police statistics alone, since it includes crimes that have not been reported to, or recorded by, the police. The Home Office also claims that it measures crime more accurately than Police statistics since it captures crimes that people may not bother to report because they think the crime was too trivial or the police could not do much about it. It also provides a better measure of trends over time since it has adopted a consistent methodology and is unaffected by changes in Police reporting or recording practices.

ENTE (Evening and Night-time Economy)

Most academic and policy research and related discussion around economic activity in towns and cities beyond ‘normal office hours’ has focused on the night-time and late-night periods, starting from around 21.00 onwards, up until when licensed premises close. Our research has an expanded focus and sample periods of the evening-time are employed to record public behaviours and the social and economic profile of Camden from 18.00 onwards. We therefore refer to our subject of study as the ‘evening and night-time economy’ (ENTE) in order to more accurately reflect the scope of our enquiries.

‘Kings Cross’ CIA/CIZ

The London Borough of Islington have a Cumulative Impact Policy within their Statement of Licensing Policy, 2013-17. This policy designates several parts of Islington as ‘Cumulative Impact Areas / Zones’. The ‘Kings Cross’ CIA applies to the Caledonian Road area. The CIA boundary directly abuts areas of Camden in the vicinity of Pentonville Road.

Licence Review

Licence Review is the mechanism under licensing law (the Licensing Act 2003) whereby a licensed premises may have its Premises Licence reviewed by the council’s Licensing Authority if the authority receives a formal request for this (a

Relevant Representation) from the Police (or other public agency on the list of Responsible Authorities), or from an Interested Party (such as a local resident or business owner). Reviews can only be made in the case of a representation that the premises in question has breached the conditions of its licence and/or has operated in a way which resulted in crime and disorder, or otherwise acted against the Licensing Objectives (see CIP policy).

Licensable Activities

Under the Licensing Act 2003, certain activities, such as the Sale of Alcohol and Provision of Entertainment, cannot take place lawfully without authorisation from a Council Licensing Authority. Licensable Activities are permitted on a case-by- case basis, as listed with various conditions attached, on certain forms of licence, or notice (Premises Licences, Late-night Refreshment licences, Temporary Events Notices etc.).

LNL (Late-Night Levy)

The Late-Night Levy (LNL) provides a framework to derive private sector financial contributions to the costs of policing and other crime prevention interventions, as directed by councils and local police forces. The levy is set out in Chapter 2 of Part 2 of the Police Reform and Social Responsibility Act 2011. Charges in respect of the LNL can be applied to those licensed premises operating between the hours of midnight and 06.00, subject to exceptions determined locally with reference to the national statutory guidance.

LNR (Late-Night Refreshment) Licence

Late-Night Refreshment (LNR) licences are required under the Licensing Act 2003 by premises serving hot food and drink to the public between 23.00 and 05.00, for consumption on or off premises to which the public has access.

MPS (The Metropolitan Police Service)

The Metropolitan Police Service (abbreviated to MPS and widely known informally as "the Met") is the territorial police force responsible for law enforcement in Greater London, excluding the "square mile" of the City of London, which is the responsibility of the City of London Police.

NTE (Night-time Economy)

The term typically applied in recent years to the study and discussion of post- 21.00 social and economic activity in towns and cities.

PCSO (Police Community Support Officer)

A Police Community Support Officer (PCSO) is a uniformed civilian member of police support staff in England and Wales involved primarily in street-level patrolling work. PCSOs cannot make arrests, but exercise a variety of other police powers, as authorised by one of the 43 police forces in England and Wales, or by the British Transport Police.

PSPO (Public Spaces Protection Order)

The Public Spaces Protection Order (PSPO), introduced under the Anti-social Behaviour, Crime and Policing Act 2014, is a power allowing Police and local authorities to identify certain defined public places as areas in which specified activities are prohibited. PSPO powers have replaced those of ‘controlled drinking zones’ (Designated Public Place Orders). Camden PSPO powers include the prohibition against drinking alcohol in a public place across the whole Borough, including the two SPAs, and can be enforced at the discretion of a Police Officer or PCSO.

SIA (Security Industry Authority)

The SIA (Security Industry Authority) is the body which licences, accredits and regulates the door supervisors employed at many licensed premises and also any companies and other organisations that supply them.

SPA (Special Policy Area)

Special Policy Area is the term used by the London Borough of Camden to refer to those parts of the Borough that are designated under the Council’s Cumulative Impact Policy. There are currently two areas, which are known as the Seven Dials SPA and the Camden Town SPA. Maps showing the boundaries of these two SPAs are included in Camden’s Statement of Licensing Policy, 2011. © Phil Hadfield 171

TEN (Temporary Event Notice)

A Temporary Event Notice (TEN) can be used to temporarily extend the hours or activities permitted by a Premises Licence or Club Premises certificate. Individual licensed premises may obtain a TEN up to 15 times per calendar year. TENs can also be used to hold one-off licensable events at unlicensed premises without the need for a Premises Licence, Club Premises Certificate or the presence of a Personal Licence holder, provided certain criteria are met.

TfL (Transport for London)

Transport for London (TfL) is a local government body responsible for most aspects of the transport system in Greater London. Its role is to implement London’s transport strategy and to manage transport services across London.

WESA (West End Stress Area)

The ‘West End Stress Area’ (WESA) is the largest of three CIAs applied by the City of Westminster within its Licensing Authority area. The boundaries of the WESA are set out in the City of Westminster’s Statement of Licensing Policy 2011 and broadly encompass Soho and much of Covent Garden.

Supplementary material: Photographic diary

This material can be found in an accompanying document to this report.