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Keeping the Peace: a Guide to the Prevention of Alcohol-Related Disorder

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UPDATED Keeping The Peace A guide to the prevention of alcohol-related disorder The Portman Group LOCATION OF INITIATIVES REFERRED TO IN THIS PUBLICATION ABERDEEN LOCHGILPHEAD PERTH FIFE GLASGOW NORTHALLERTON YORK LEEDS BRADFORD BURNLEY DONCASTER MANCHESTER GRIMSBY SHEFFIELD LEICESTER WOLVERHAMPTON NUNEATON COVENTRY IPSWICH LONDON COLNEY OXFORD WESTMINSTER CARDIFF SWINDON BRIXTON GUILDFORD BATH TAUNTON PORTSMOUTH BRIGHTON Keeping The Peace Keeping The Peace A guide to the prevention of alcohol-related disorder Produced by for the Portman Group The Portman Group ACKNOWLEDGEMENTS Dr Alan Foster, Scottish Council on Alcohol Drew Peterkin, Scottish Office Home Department Oliver Goode, Crime Concern Sgt Chris Plowman, Bradford Inner City Thank you to all the following who provided Sarah Harris, Health Education Authority material or advice Licensees’ Association Andrew Harrison, Leeds Detoxification Centre George Allan, Aberdeen City Council Sheriff Susie Raeburn QC Jennifer Harrower, Crown Office Douglas Allsop Inspector Simon Ramsden, Leeds Constabulary Karen House, Leicestershire Health Dr Martin Rawlings, Brewers and Licensed Gill Archibald, Crime Prevention College Promotion Centre Retailers Association Christine Austen, Portsmouth City Council Jenny Hoyle, Taunton Town Centre Partnership Sgt Kenny Rodger, Strathclyde Police Tony Ashford, Bath Alcohol Advisory Centre Bob Knights, Metropolitan Police Eddie Ronayne, North East Lincolnshire Colin Bradbury, Greater Manchester Elspeth Kyle, Greater London Association Drug Reference Group and Lancashire Regional Council on Alcohol of Alcohol Services Chief Inspector Caroline Scott, Strathclyde Police Christopher Brain, S.A.Brain & Co Ltd Marcus Lapthorn, Oxford City Council PC Ben Sherman, West Bar Police Station David Britt, Basildon District Council Vicky Lindsay, Alcohol and Drugs Advisory Jan Buckingham, Allied Domecq Service Graham Smyth, Burnley Borough Council Peter Buckle, Safeway Stores plc Angus Livingstone, Glasgow City Council Keith Spriggs, North East Lincolnshire Safer Communities Partnership Norma Buss, Sussex Association for the Alan Lloyd, Cardiff County Council Julia Stafford, Crime Concern Rehabilitation of Offenders Sheriff Brian Lockhart, Sheriffs’ Association PC Arthur Swaine, North Yorkshire Police Chief Constable H R G Cameron QPM, Peter Love, National Association Association of Chief Police Officers in Scotland of Licensed House Managers Christine Thomson, Scottish Office Home Department Rosie Chadwick, Crime Concern James Lowman, Association of Convenience George Tranter, Justices’ Clerks’ Society David Chambers, City of Westminster Stores William Venters, Argyll and Bute Council, Assistant Chief Constable Allan Charlesworth Eleanor MacOmish, Brewers and Licensed QPM, Association of Chief Police Officers Retailers Association Tony Vincent, Association of Town Centre Management Councillor John Coleman, Glasgow City Janis McDonald, Aberdeen Alcohol Advisory Licensing Board and Counselling Service PC Andy Walker, The Safer Doors Project Ian Conway, Perth Pubwatch Sandra Maguire, Fife Alcohol Advisory Service Chief Inspector Wallace, Greater Manchester Police David Coxon, The Victoria Wine Company Ken Mackie, Wolverhampton Metropolitan Borough Council Frank Warburton, NACRO Dr Alex Crawford, Renfrew Council on Alcohol Jim Manning, Ipswich Borough Council PC Colin Weaving, Brixton Police Station Adam Croot, Business Crime Check Brian Maughan, British Institute of Innkeeping David Whitley, Stagecoach Oxford Kim Culley, Sheffield City Centre Manager Pamela Menzies, Rugby House Project Denis Wilmer, Home Office Barrie Davis, Torbay Borough Council Campbell Millar, Oddbins Karen Wise, Oddbins Raoul de Vaux, National Pubwatch Amy Wright, British Entertainment & Steering Committee John Mole, Savacentre Ltd Discotheque Association Gordon Dickson, Greater Manchester Police Nigel Musgrove, Swindon Alcohol Sgt Paul Yearwood, Surrey Police for Enjoyment (SAFE) Euan Dobson, Convention of Scottish Local Zofia Zagorska, Police Research Group David Norsworthy, Taunton Deane Authorities Information Desk Licensed Victuallers Association Malcolm Eidmans, National Pubwatch Steering Committee Anne Norton, Magistrates’ Association Researched and written by Mary Ellmers, Scottish Council on Alcohol Robert O’Neill, Alldays Katharine St. John-Brooks, Hugh Ferridge, Thresher Tony Payne, Federation of Licensed Victuallers with assistance from Kate Winstanley, Associations Janet Flanagan, North Yorkshire The Portman Group. Specialist Health Promotion Service Drew Peden, Scottish Office Home Department Keeping The Peace Contents PARAS FOREWORD 1. THE PARTNERSHIP APPROACH Benefits 1.1 Strategic Partnerships 1.5 Alcohol Forums 1.8 The Key Agencies 1.9 2. PREVENTION STRATEGIES IN TOWN CENTRES The Development of Town Centre Management 2.1 Community Safety Strategies 2.5 Alcohol-related Disorder in Town Centres 2.7 The Byelaw Approach 2.9 Detoxification Centres 2.16 Closed Circuit Television 2.17 Late Night Transport 2.18 Curfews 2.22 Street Wardens 2.24 3. PUBWATCH, CLUBWATCH AND SHOPWATCH SCHEMES Community Action Against Crime and Disorder 3.1 The Evolution of the “Watch” Principle 3.4 Communication Systems 3.5 Operational Procedures 3.7 Pubwatch as a Deterrent 3.9 National Pubwatch 3.11 4. EXCLUSION ORDERS Purpose 4.1 Reasons for Low Usage 4.3 Awareness 4.4 Use of Photographs 4.7 Other Solutions to the Problem of Disorder 4.9 Pubwatch Bans 4.11 5. OPERATION OF LICENSED PREMISES Identity Cards to Deter Underage Customers 5.1 The Prove It! Scheme 5.4 Safer Enjoyment of Alcohol in Licensed Premises (SEAL) 5.7 Reducing Injury Caused by “Glassing Attacks” 5.10 Happy Hours 5.15 Page One The Portman Group 6. ALCOHOL COUNSELLING SERVICES, REHABILITATION AND THE CRIMINAL JUSTICE SYSTEM Background 6.1 The Partnership Approach 6.3 Help for Offenders 6.5 Diversion Schemes in Scotland 6.7 7. DOORSTAFF The Role of Doorstaff 7.1 Doorstaff Registration Schemes 7.4 Training 7.10 Scope for a National Registration and Training Scheme 7.16 8. TRAINING Why Training for Licensees and Bar Staff Matters 8.1 In-house Company Training 8.3 External Professional and Vocational Qualifications 8.9 Outline Content of “Model Training Course for Licensees” 8.16 9. DESIGNING OUT VIOLENCE Introduction 9.1 Basic Principles 9.3 Frustration 9.6 Lay-out 9.7 Lighting 9.18 10. CURRENT INITIATIVES Strategic Approaches page 37 Town Centre Initiatives page 41 Pubwatches page 46 Exclusion Orders page 48 Operation of Licensed Premises page 49 Criminal Justice System and Alcohol Counselling page 51 Crisis Intervention and Rehabilitation Services page 54 Registration and Training of Doorstaff page 56 Licensee Training page 58 Pub Design page 60 Useful Addresses and Telephone Numbers page 61 Index page 62 Page Two Keeping The Peace FOREWORD The Portman Group first published Keeping the Peace in 1993, as a guide to the prevention of alcohol-related disorder at the local level. It was immediately welcomed by all those with responsibilities in this area as a valuable source of information and has been in much demand since. There is no doubt that the examples of good practice described within it have served as models for countless schemes in other areas. Five years, however, is a long time in the field of crime prevention. Since the original publication, some of the schemes have come to an end, some have been modified and, most importantly, many other innovative projects have sprung up which deserve a wider audience. We therefore decided it was time to embark on a major review of current initiatives to bring the guide right up to date. The Crime and Disorder Bill currently making its way through Parliament proposes to place a statutory obligation on police and local authorities jointly to develop community safety strategies. This makes it even more important to ensure that current examples of successful partnerships are held up for everyone else to see. Like the original version, the revised Keeping the Peace covers various aspects of drink-related disorder and considers the role that each group or agency can play in reducing the problems. Unlike the original version, however, the guide now embraces Scotland, where we found many exciting ventures taking place. One of the difficulties, of course, with producing a guide such as this is that excellent initiatives are taking off all the time and, in order to keep up with them, the guide would need to be updated almost on a daily basis. We have tried to be as up to date as possible and even as this guide was going to press we were making last minute amendments to reflect the latest developments in the National Doorstaff Qualification and the National Pubwatch Scheme. I hope that users of this guide, whether they be police officers, local authorities, health promotion officers, licensees, pub operating companies, licensing magistrates, or any of the other categories of people and groups with a concern in this area, will find ideas to incorporate into their own practices, schemes and initiatives. Jean Coussins Director, The Portman Group April 1998 Page Three The Portman Group The Partnership Approach BENEFITS 1.1 In many town and cities across the country, agencies have come together to make a concerted effort to address the causes and effects of alcohol-related disorder in its various guises. There is a wide variety of possible partnership combinations - just three examples being police and licensees (pubwatch and clubwatch schemes); police, probation services and alcohol counselling agencies
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