Drug and alcohol-related anti-social behaviour

Final Report and Recommendations of the Economic Development and Community Safety

Scrutiny Board Agreed by the Economic Development and Community Safety Scrutiny Board on 20 March 2006 Considered by Scrutiny Management Committee on 27 March 2006 To be considered by the Executive on 18 April 2006

2

Contents Page no. Foreword 3 Executive Summary 4 1 Introduction 6 2 Terms of Reference 6 3 Board Members and Programme of Work 7 4 Findings 8 4.1.1 Retailing and the possible relationship between

shoplifting and drug dependency 8

4.1.2 Community-based drugs projects 9 4.1.3 Survey of retailers 9 4.1.4 The Courts service 11 4.2.1 York Impact Study and York Alcohol Strategy 12 4.2.2 Introduction of the Licensing Act 13 4.2.3 Saturation Area 14 4.2.4 Night-time Economy: Partnership working and initiatives 15 4.2.5 Industry changes 15 4.2.6 Survey of licencees 16 4.2.7 Transport issues 16 4.2.8 Round-table discussion on alcohol-related anti-social

behaviour 17

4.2.9 Alcohol advisory services 20 4.2.10 Use of CCTV to combat crime and anti-social behaviour

in the city centre 21

4.3 Domestic abuse related to alcohol use and binge drinking

22

4.4.1 Under-age drinking and related anti-social behaviour 22 4.4.2 Don’t Die Young Initiative 23 4.4.3 Survey of educational establishments 23 4.4.4 Under-age sales in pubs/clubs 24 4.4.5 Information on drugs and alcohol for young people 26 5 Summary of recommendations 6 Conclusion

28

Annex A Participants in the scrutiny review

30

Annex B Implications of the Recommendations and Responsibility for Implementation

31

Annex C Comments of the Scrutiny Management Committee and the Executive

34

3

Foreword This was a very wide ranging topic to choose and it could have lead to the Board setting off in many directions and losing sight of its main aim, which was to look at the effects of anti-social behaviour caused by the misuse of drugs and alcohol. This is an area where policy is developing rapidly and several of the issues that the Board set out to address in 2004 have, in the intervening months, been acted upon. I think one of the biggest learning points for Scrutiny reviews in the future is that, if the topic is wide-ranging, collating research into meaningful recommendations can take a long time and recommendations can be overtaken by events. This has happened on a few occasions with this review but did not dampen the enthusiasm of those taking part. Probably the biggest of these changes was the implementation of the Licensing Act 2003, which took effect from November 2005, but this has allowed us to see the initially encouraging results of the changes to closing times in licensed premises. During our research we have come across several other matters which could well be topics in themselves and these are mentioned within the report. I must say a big thank you to all the members of the Board for their input but more importantly to those members of the public, of retail and licensed businesses and the various agencies who have provided us with the information we need to try to come to our conclusions. Finally, thanks to those employed by City of York Council; without their co-operation it would not be possible to carry out these investigations which we all hope will make York a safe and pleasant city both to live in and to visit. Cllr Keith Hyman Chair, Economic Development and Community Safety Scrutiny Board March 2006

4

Final Report and Recommendations of the Economic Development and Community Safety Scrutiny Board Executive Summary

Like many other cities, York wants to encourage the development of a diverse, thriving and socially inclusive evening and night-time economy. However, we recognise that this can bring problems for residents, businesses and visitors in terms of noise nuisance, rowdiness, violence, vandalism, litter and other anti-social behaviour. Getting the balance right between promotion and protection is crucial. This topic was taken up as a result of the Board’s previous scrutiny review of City Centre Retailing, which was completed in October 2004. One of the recommendations of that review was that future work be carried out to examine the problems of the negative impact that crime, drugs and anti-social behaviour can have on retailing in York. The remit was widened to include the impact of alcohol-related behaviour and binge drinking. During its investigations the Board met with representatives of North Yorkshire Police, Safer York Partnership, the Drug Action Team, the Primary Care Trust, taxi drivers, the Council’s Education, Youth and Licensing Services as well as licensees. A questionnaire was sent to retailers, licensees, schools/colleges and the courts. It is regrettable tha t the courts service was unable to comment on how it deals with offenders and supports victims. The Board was concerned that a high proportion of incidents of shoplifting are motivated by drug use and has recommended that treatment and rehabilitation services for drug users are given a high priority by Safer York Partnership. The Board welcomes the development of the City of York Alcohol Strategy and recommends that it specifically addresses the issues of selling alcohol to people who are already drunk and tackling those who are repeatedly drunk and disorderly on the streets. The impact of the Licensing Act, introduced last year, is yet to be fully appreciated and the Board recommends that a comparison inside and outside the saturation area is carried in due course to evaluate the impact. The Best Bar None Scheme that has recently been launched is welcomed by the Board and it would like to see the scheme tackle the issue of bars serving people who are already drunk. The Board heard from health and alcohol advisory services how the low cost of some alcohol is encouraging people to drink excessively and how, generally, people are unaware of safe levels of drinking and units of alcohol. The upgrade of York’s CCTV system is to be welcomed and the Board is keen that businesses and taxi operators are encouraged to contribute to the cost of providing individual cameras.

5

Underage drinking is of growing concern and the Board would like to see a crackdown on false IDs being used to buy alcohol. It also felt that ongoing funding was needed for initiatives that help young people to receive accurate information about alcohol and drugs in the most effective learning format for them. Unfortunately the Board was unable to look at the issue of domestic violence related to alcohol use and has recommended that this be taken up as a separate review in the future.

6

Final Report and Recommendations of the Economic Development and Community Safety Scrutiny Board 1. INTRODUCTION

This topic was taken up as a result of the Board’s previous scrutiny review of City Centre Retailing, which was completed in October 2004. One of the recommendations of that review was that future work be carried out to examine the problems of the negative impact that crime, drugs and anti-social behaviour can have on retailing in York. The remit was widened to include the impact of alcohol-related behaviour and binge drinking. Like many other cities, York wants to encourage the development of a diverse, thriving and socially inclusive evening and night-time economy. However, we recognise that this can bring problems for residents, businesses and visitors in terms of noise nuisance, rowdiness, violence, vandalism, litter and other anti-social behaviour. Getting the balance right between promotion and protection is crucial. The Board recognises that this is an area where policy is developing rapidly and several of the issues that the Board set out in 2004 to address have, in the intervening months, been acted upon.

The Board has had a good leve l of co-operation in the gathering of evidence. However, some organisations have been unable to provide us with meaningful data and therefore it has not always been possible to verify the figures provided from other sources. Despite this, we do feel that the evidence we have gathered is accurate and of sufficient quality from which to draw conclusions. It should also be noted that some of the responsibilities attributed to the Council by those surveyed are actually within the remit of other agencies such as North Yorkshire Police.

2. TERMS OF REFERENCE

The aim of this review has been to explore the connection between drug use, alcohol use and the problems resulting from crime and anti-social behaviour in York.

This supports the following Council corporate aims: • To strengthen and diversify York's economy and improve employment

opportunities for residents • To create a safer City through transparent partnership working with other

agencies and the local community • Work with others to develop opportunities for residents and visitors to

experience York as a vibrant and eventful city

7

Following initial discussions, four sub-topics were identified. These were:-

a) Retailing and the possible relationship between shoplifting and drug dependency

b) City centre crime related to alcohol use and binge drinking c) Domestic abuse related to alcohol use and binge drinking d) Under-age drinking and related anti-social behaviour

The Board’s findings and recommendations are set out in Section 4 below.

3. BOARD MEMBERS AND PROGRAMME OF WORK The Members of the Board are: Cllr Keith Hyman (Chair)

Cllr David Wilde (Vice Chair) Cllr Tom Holvey Cllr Jonathan Morley Cllr Christian Vassie Cllr Richard Watson Cllr Dave Merrett Cllr Andy D’Agorne Mr Don Parlabean (Co-opted Member) Cllr Viv Kind (prior to May 2005)

Work Programme

Activity

Date

Remit agreed June 2004 Discussion with Jane Mowat, Safer York Partnership

10 August 2004

Board met to discuss feedback from public meeting on ‘Alcohol-related crime and ASB’ by Chief Insp. Andy Hirst

29 September 2004

Discussion with Gabrielle Epstein, York and North Yorkshire Drug Action Team

26 October 2004

Discussion with Mick Phillips regarding the issue of community-based projects for addressing drug abuse Discussion with film-maker Kevin Curren, including a screening of the short film ‘Catch me when I fall’

February 2005

Discussion with Dick Haswell, Head of Licensing & Regulation regarding the issue of saturation zones

26 April 2005

Sub-groups of the Board carried out research on four sub-topics and devised questionnaires

April – June 2005

Questionnaires sent out to local July -September

8

stakeholders, and responses collated 2005 Visit to CCTV Control Room, Fulford Rd Police Station followed by round-table discussion on CCTV issues

18 October 2005

Round-table discussion on alcohol-related anti-social behaviour

12 December 2005

Discussion with Clare Barrowman, Education and Amanda Gaines, Youth Service

13 February 2006

Discussion with Alison Tubbs, York Alcohol Advisory Service

20 February 2006

Discussion of final report and recommendations

February – March 2006

4. FINDINGS 4.1 Retailing and the possible relationship between shoplifting and drug

dependency 4.1.1 Research carried out by the Government in 20031 showed that drug-motivated

offences are estimated to be responsible for around a third of the total cost of crime and tend to be offences against property such as shoplifting rather than high victim trauma crime such as violence and sexual offences. It is estimated that 85% of shoplifting crimes and 80% of domestic burglary are motivated by drug use. Users of high-harm causing drugs such as heroin and/or crack are responsible for the vast majority of drug-motivated crime but less than half of these users engage with treatment each year.

The Board was updated on the National Drug Strategy by Gabrielle Epstein of the York and North Yorkshire Drug Action Team (DAT). The Strategy aims to reduce the harm that drugs cause to society and concentrates on treatment, young people, communities and supply reduction. The Drug Interventions Programme (DIP) provides treatment, through-care and aftercare for all offenders with a substance misuse problem. Drop in and needle exchange is provided Mon - Sat all day.

Gabrielle reported that in 2003/04, 85% of drug offenders were male and 68% of service users were male. Women are identified as an underserved group in treatment planning. The Board heard that the DAT's multi-agency Joint Commissioning Group commission an open access service; needle and syringe exchange; structured counselling; inpatient detoxification; specialist, community and fast-track criminal justice prescribing; a structured day care programme; and drug intervention programmes. Service providers include Compass, the Selby and York PCT’s Community Addiction Team and

1 Cabinet Office Strategy Unit Drugs Report, May 2003, web-link:

http://www.strategy.gov.uk/downloads/work_areas/drugs/drugs_report.pdf

9

Personal Medical Service for Travellers and the Homeless, York Association for the Care and Resettlement of Offenders, and General Practitioners.

Unfortunately, the DAT was unable to give a figure for the percentage of people in drugs treatment in York who have been charged with shoplifting, but it was reported that DAT were working with North Yorkshire Police to develop a shoplifting indicator to enable this data capture.

4.1.2 Community-based drugs projects

The Board heard from Mick Phillips about community-based drugs projects in York and watched a film produced by Kevin Curren, ‘Catch me when I fall’. Although not directly relevant to the remit of this topic, the film was a moving insight into the devastating effects that drugs can have on individuals and communities. The Board would like to thank Kevin for giving the Board the opportunity to view the film. This could well be an area for further investigation.

4.1.3 Survey of retailers

In August 2005, the Board sent a survey to a selection of retailers in York and eight responses were received. Four of the respondents were sole traders, one was a department store, one a chain, one a shopping centre and one classified itself as ‘other’. Two of the respondents said that 95+% of the shoplifting incidents on their premises had been committed by people under the influence of drugs. Very few of these incidents resulted in the offenders going to court. Most incidents involved one person. The cost to the retailer of shoplifting ranged from £200 to £3,420. Three retailers said that a tagging system was effective in acting as a deterrent; however, experienced shoplifters have the knowledge of how to de-tag items using magnets, side-cutters, and pliers as well as foil-lined bags to stop alarms. Five retailers saw CCTV as beneficial in combating retail crime, and also co-operation amongst stores through Retailers against Crime in York (RACY). The amount that retailers were prepared to spend on crime prevention measures ranged from ‘nothing’ to £26,000 for a security officer. Three retailers cited credit card fraud as other technologies featuring in retail crime in York. Retailers had received advice on improvements to security, changes to criminal technology and tackling shoplifters from the police, RACY and security firms. Five retailers thought that the increase in the visible police presence had had a measurable deterrent impact in the city centre (though not in out of town areas such as Clifton Moor) and improved the police’s ability to tackle retail crime as it happened. One retailer suggested that a designated police team for the city centre would be helpful because there had been a lack of continuity in policing.

10

Six retailers have a formal staff policy/procedures for dealing with shoplifters and five have a policy for dealing with people who appear to be under the influence of drugs on the premises. Staff training on dealing with shoplifters or difficult customers ranged from informal training for small businesses to full training from a security contract company. Retailers commented that the police are supportive in giving advice on crime prevention and when intervention is required. It was commented that there is a lack of police support at Clifton Moor. The retailers thought their key partners were the police, RACY, security firms, the Council and the Safer York Partnership. One retailer commented that they would like to work more closely with the staff operating the CCTV system and that it would be useful for them to be the base station for monitoring the city radio links. This radio link system allows participating retailers to communicate during opening hours and alert each other to shoplifting incidents. Retailers saw the primary role of the Council as being

- to assess and manage the impact of extended licensing hours on residents and the business community

- to provide more and better-placed CCTV cameras and for CCTV staff to produce a daily log of incidents reported by the radio users network

- to take the lead in partnership working - to set policies for the city and disseminate information to businesses - to take a zero tolerance policy on theft and anti-social behaviour.

Retailers saw the primary role of the police as being

- to have the capacity to respond speedily - to provide the city with a dedicated shoplifting squad to deal with city

centre incidents - To issue RACY exclusion notices to regular or prolific offenders - To issue more anti-social behaviour orders (ASBOs) and use the

Harrassment Act - To work closely with retailers and RACY - To provide a police presence outside the city centre.

Retailers felt that the Crown Prosecution Service should make a stronger case against shoplifters and ensure that all evidence provided gets to court. Courts were perceived as not being on the side of the victim and retailers felt they should take theft and anti-social behaviour more seriously. One retailer said they would like to see more grouping of offences allowing the courts to recognise habitual offenders. There was very little awareness of the role of the Drug Action Team in terms of addressing retail crime. When asked how the Council could support retailers more in addressing the issue, it was commented that the Council should

11

- clamp down on loud and abusive behaviour from drunks, particularly on weekend afternoons

- consider carefully where drug centres are placed. It was felt that the number of crimes committed on one retailers’ premises had been greatly reduced since the drug rehab centre moved from 116 Micklegate

- keep encouraging police to have a greater presence on the streets of York

- improve coverage of the CCTV system and ensure that the system is always working, effectively maintained and monitored to benefit retailers

- enforce ASBO’s. As to missing or weak links, retailers felt that more could be done by McArthur Glen, Monks Cross, Clifton Moor and outlying areas like Acomb to communicate with the city centre to address crime, and that a committee of retailers should set up to act on crime. The Board would encourage retailers to pursue this through professional organisations such as the Chamber of Commerce or Chamber of Trade.

Recommendation One: The Board urges North Yorkshire Police to consider its support arrangements for dealing with the city centre, including the re-establishment of a city centre office, as a visible presence in the city centre is a key factor in addressing retail crime and anti-social behaviour resulting from drug and alcohol use.

Recommendation Two: Given the evidence that a high proportion of incidents of shoplifting are motivated by drug use, the Board recommends that treatment and rehabilitation services for drug users is given a high priority by the Safer York Partnership and Adult Services.

4.1.4 The Courts Service A questionnaire was sent to York Crown Court and York and Selby Magistrates’ Court asking for information about how the criminal justice system deals with offenders, supports victims and works in partnership. The courts did not complete any part of the questionnaire and responded that they were unable to respond because they did not keep the statistics the Board required and did not feel it was appropriate that the courts should comment on sentences and other agencies’ input to the criminal justice system. The Chair wrote to the Department of Constitutional Affairs expressing the Board’s disappointment with the lack of information made available by the courts. A reply was received from Her Majesty’s Courts Service that they were unable to assist with completion of the questionnaire and suggested that the Board contact the local Anti-Social Behaviour Co-ordinator for a response. They commented that the type of information asked for is held by a number of different agencies, if at all, and would take some time to co-ordinate.

12

The Board is strongly of the view that it is counter-productive to building a joined-up framework for tackling crime and anti-social behaviour if a key agency does not engage by providing information. However, it should be noted that the Courts are a key stakeholder in the Drug Intervention Programme (DIP). This programme is governed by the Criminal Justice Steering Group (North Yorkshire and the City of York). Courts are a valued partner in this group and implementation and play a key role. Recommendation Three: That the Executive writes to the Home Office and to local MPs expressing the Council’s disappointment that the courts service has not responded to the Scrutiny Board’s request for information, and asking them to seek Government action to foster partnership working.

4.2 City centre crime related to alcohol use and binge drinking 4.2.1 York Alcohol Impact Study

A York Alcohol Impact Study2 was carried out by Alcohol Concern during 2005. The study found that drinking is strongly linked to violence, disorder and anti-social behaviour. The British Crime Survey found that 47% of violent crime is alcohol related, much of it fighting or accidents. According to the Safer York Partnership Crime Audit 2004, violent crime in York has more than doubled from 2001 to 2004. Of 2070 violent crimes committed by a stranger in 2003/04, most were committed in a public place. People who commit violent crimes in York are most likely to be male aged between 18 and 28. The two highest crime wards in relation to violent crime are Guildhall and Micklegate, due to the concentration of licensed premises. Higher levels of criminal damage, anti-social behaviour and the degrading of the street environment were also linked to alcohol.

The Alcohol Impact Study has provided baseline data for the City of York Alcohol Strategy. The study was carried out in the context of data that show that 42% of men and 27% of women in Yorkshire and the Humber region drink over the recommended daily levels of alcohol, and 23% of men and 10% of women regularly binge drink. The study estimated that 30,225 men and 17,778 women in York drink over the recommended daily limits and 4,318 men and 2,320 women are drinking at harmful levels.

What is the recommended level?

Selby and York PCT give the following information about safe levels of drinking.

The recommended level of alcohol for a man is not more 3 to 4 units a day and for a woman is between 2 and 3 units.

2 York Alcohol Impact Study, Libby Ranzetta for Alcohol Concern, August 2005

13

The amount in one unit depends on the abv(%) and glass size. 1 unit = 1/2 pint of standard strength beer, lager, cider (3.5-4%abv) or 25ml pub measure of spirits (gin, vodka, whiskey, etc.) (40% abv) or a small glass (125ml) of wine (9%abv). Many wines are (11-12% abv). To work out the exact numbers, multiply the volume of drink by the %abv and divide by 1000 e.g. the number of units in a 330ml bottle of lager with 5% abv is 330x5 = 1650÷1000 = 1.7 units.

Binge drinking is defined as drinking large amounts (twice the recommended daily limit) in a short space of time and tends to be more associated with violence and anti-social behaviour than chronic drinking that happens over a longer period.

York Alcohol Strategy

The aim of the Alcohol Strategy and Action Plan, which will be implemented through the Drug and Alcohol Steering Group (DASG) reporting to the Safer York Partnership, is to reduce alcohol-related harm in York including crime and anti-social behaviour.

The DASG will allocate relevant sections of the action plan to existing groups, such as the Night Time Economy Group, Shared Care and Treatment Monitoring Group etc. The strategy therefore aims to tackle many of the issues that concerned the Scrutiny Board when it decided to examine this topic in 2004 and the Board applauds the level of partnership working that exists. However, the Board feels it is important that the Strategy is not complacent, as some measures in the action plan have been ongoing for a number of years whilst at the same time levels of excessive drinking, public disorder and alcohol-related violent crime in the city centre have increased. In particular, the strategy does not engage with the core issue of selling alcohol to people who are already drunk nor the process by which the police can ensure that people who are drunk and disorderly on the street do not repeat this behaviour time and again. Recommendation Four: The Board welcomes the development of the City of York Alcohol Strategy but recommends that it specifically addresses the issues of selling alcohol to people who are already drunk and tackling those who are repeatedly drunk and disorderly on the street.

14

4.2.2 Introduction of the Licensing Act The Licensing Act 2003 has deregulated licensing by abolishing existing permits for licensed premises and introducing flexible opening hours, with the potential for up to 24 hour opening. It seeks to balance the needs of businesses for greater freedom and flexibility to meet customer expectations with the protection of local residents. Early indications since the introduction of the varied hours in York are that violent incidents have reduced by around 20%. Police figures show that there were 359 incidents of violent crime between 24 November and 31 December 2005. This compares with 451 incidents during the same period in 2004. However, it is important to consider this in context as during this period extra police resources had been put into an Alcohol Misuse Enforcement Campaign. Also, the police have changed emphasis from arrest to earlier intervention. Both these factors could have contributed towards the reduced number of incidents. It is interesting to note that the peak time for incidents occurring has extended, so that although incidents occurring during the worst peak have reduced by 10%, this peak has spread over a longer period. This is significant for local residents who have to endure disturbance and incidents over a longer time period. One City of York Councillor has given the Board anecdotal feedback that the views of some local residents who considered they were largely ignored when an application for extended hours at a club in his ward came before the licensing authority.

4.2.3 Saturation area

In April 2005, the Board spoke to the Head of Licensing and Regulation, Dick Haswell, about the development of local policies where licensed premises are restricted. He reported that Micklegate, George Hudson Street, Clifford Street were already in the ‘saturation area’ and this would be extended to Blossom Street and up Holgate Road.

A consultation on the proposals had been carried out in the local areas and of 51 responses, only one response had been received opposing the policy. The Licensing department were intending to gather baseline data on the situation prior to the Licensing Act being introduced to compare the impact of the Act on the incidence of crime and anti-social behaviour inside and outside the saturation zones. Recommendation Five: a) That the comparative data on the incidence of crime and anti-

social behaviour inside and outside the saturation zones is made available to the relevant Executive Member and Advisory Panel 12 months after the introduction of the Licensing Act so that its impact can be assessed.

15

b) That officers explore the option of a follow-up survey carried out with local residents and businesses to find out about their experiences of the impact.

Both these activities to be timed to fit in with the statutory review required by the Licensing Act 2003.

4.2.4 Night Time Economy: Partnership working and initiatives

The York Night Time Economy Group has been established with the strategic priority to reduce alcohol-related violent crime in the city centre. The group is led by Chief Insp. Andy Hirst and includes representatives of the Licensing Department, North Yorkshire Police, Neighbourhood Pride Unit, Economic Development Unit and elected members for the Micklegate and Guildhall wards. One of the initiatives of the Night Time Economy Group is the 'Best Bar None' scheme which aims to raise standards amongst the city's pubs and clubs and make them safer. The scheme was launched on 7 March 2006. In tandem with this, Trading Standards is developing a Responsible Retailer Scheme to help prevent the sale of alcohol to under 18's at both on and off-licences. Trading Standards will encourage retailers, pubs and clubs to implement appropriate training for staff and other systems to ensure no sales to under 18's take place. The Board welcomes the Best Bar None initiative as its sets clear standards of training for bar staff in dealing with people who have had too much to drink. In order to support staff in refusing to serve those who are drunk, the Board would like consideration to be given to the use of ‘breathalyser’ machines on licensed premises. Recommendation Six: The Board recommends that, as part of the Best Bar None scheme, a) licensed premises are encouraged to take a tough approach to

excessive drinking, in accordance with the regulation not to serve people who are already drunk

b) a training scheme is developed that will ensure all participating premises meet minimum criteria for supporting staff in dealing with drunkenness

c) a publicity campaign is implemented to raise the public's awareness of the law and that it will be enforced.

4.2.5 Industry changes

Changes in the structure of the alcohol-related entertainment industry over recent years has brought about a shift in how the industry regulates itself. It

16

has become characterised by corporate ownership of ‘brands’ of venues, with a decline in the significance of local, independent operators. The nature of premises has also been the subject of transformation and there is now a blurring of the distinction between pub, café-bar, bar and nightclub. One club manager commented that it was now a ‘revolving door’ industry, with some venues having frequent changes of ownership. It was noted by the Board that membership of the York Licensed Victuallers’ Association was declining and that this lack of a co-ordinating body meant that industry standards were less likely to be upheld. The Board therefore welcomes the proposal contained in the Night Time Economy Action Plan to establish a licensees forum.

4.2.6 Survey of licensees

In August 2005, the Board sent a survey to a selection of licensees in York. Three responses were received. Licensees identified that transport for people leaving pubs and clubs was an issue and thought an increase in the number of taxis operating on an evening/night would ease the problem. Dispersal was more of a problem on weekends and student nights. Licensees thought there was a relationship between alcohol-related anti-social behaviour and drink promotion offers, but commented that this was encouraged by distributors and wouldn’t change unless regulated by Government. All licensees thought that varying closing hours would make it easier to address problems. They reported experiencing one or two violent or abusive alcohol-related incidents per week, but only the most serious incidents were reported to the police. A high percentage of these were committed by people visiting York from other areas, in particular those on hen and stag nights. Drug-related incidents were rare. The licensees surveyed did not receive advice from the police or others on improvements that could be made to premises to improve personal safety or how to handle anti-social behaviour (ASB), but they were aware of who to contact when an incident occurred. The licensees reported that they had formal policies for dealing with alcohol-related ASB and that their key partners were the police and security firms. One said that he would like to establish common approaches with other licensees so that they could provide better support for each other. The licensees saw the Council’s role as being to co-ordinate and plan the night time economy and the role of the police to give more co-operation and advice and to have a zero tolerance approach to ASB. They commented that more support was needed from the Council on taxi provision and food premises policing, as well as improving CCTV coverage. The licensees did not rule out paying a contribution towards additional policing but commented that it would have to be across the Board and tied to other agreements to get establishments working better together.

17

4.2.7 Transport issues The location of taxi ranks and bus stops can be a significant factor in incidents of anti-social behaviour. Inadequate provision of taxis and inappropriate positioning of ranks can lead to delays in dispersal of people leaving licensed premises, which is more likely to result in incidents occurring whilst people are waiting. The Council is currently carrying out a review of the policy for hackney carriage quantity restrictions in York (this excludes private hire) following Government guidance tha t local authorities should relinquish their powers to limit the number of taxis licensed in their area. The guidance states that restrictions on issuing licences should only be maintained if there is strong justification that the removal of the restrictions would lead to significant consumer detriment as a result of local conditions. City of York currently limits the licences it issues to 158 taxis that operate from 12 full-time ranks and 7 part-time ranks. Legislation allows for licence plates to be transferred and this can mean that licences have a significant capital value in restricted areas such as York. Current licence plate holders are therefore concerned about any de-restriction on taxi licence numbers. In a recent report3 to the Licensing and Regulatory Committee requesting the policy review, the Head of Licensing and Regulation reported that a survey carried out in December 2004 had shown that “the existing [taxi] trade fails to satisfy the demand for transport late at night and in the early hours of the morning. This trade is primarily linked to the late night hospitality economy. As a result of the Licensing Act 2003 … the pattern of late night trade is likely to change significantly with the dispersal of people from late night venues taking place over a longer period of time.” It was therefore agreed by the Committee that the current limit of taxi licences be maintained until November 2006 to allow for a full assessment of the effects of the Licensing Act on the late night taxi trade to take place, as well as work to be completed on the adequacy and position of existing taxi ranks. The review of quantity restrictions for hackney carriages and the review of the adequacy and position of taxi ranks are welcomed by the Board and it is hoped that the outcome of the reviews will alleviate the current dispersal problems in the city centre.

4.2.8 Round-table discussion on alcohol-related anti-social behaviour

The Board held a round-table discussion with relevant parties on 12 December 2005. The attendees included John Lacy, Licensing Manager; Chief Insp. Andy Hirst, North Yorkshire Police; Frank Cartin, Landlord of Snickleway Inn; Dave Harrison, Luminar Leisure; Janet Flanagan, Health Improvement Manager, Selby and York Primary Care Trust; and Colin

3 Licensing and Regulatory Committee, 4 November 2005, Agenda item 4

18

Rumford, Head of Environmental Services and Trading Standards at the Council. The Chair and Vice-Chair held a separate meeting with Peter Brownsword, Manager, MacMillans on 4 January 2006, as he was unable to attend the round-table discussion. The following issues were discussed: a) Impact of the new licensing hours The Licensing Manager reported that all 844 premises in York had been licensed. He felt there were some robust conditions on pubs/clubs which meant that more litter was being picked up and more marshals were in operation at some licensed premises to help with security and dispersal. Chief Insp. Andy Hirst reported that early indications were that the new arrangements had not lead to increased problems and that anecdotal evidence showed that some pubs were shutting earlier due to lack of custom. He added, however, that the Summer months would be the biggest test. He said that at present the staggered hours are not a problem for police resourcing but they could cause problems if the peak moves from late night to early morning, ie. 4am-5am. b) Security and dispersal It was reported that there are now more marshals as a result of licensing conditions placed on some establishments. Marshals help to disperse people on leaving the licensed premises and can act as an effective deterrent, e.g. by wearing high visibility jackets that make them look like Police from a distance. They can also provide information to the Police. However, some participants felt that better co-ordination of marshals was needed so that trouble-makers know that marshals will radio ahead to other venues and that they could therefore be stopped from entering the venue. One suggestion was that the Council should employ marshals and charge individual businesses, particularly in the saturation zone. This could lead to greater co-ordination between marshals. It was felt that the Police response to alcohol-related problems in York is good and that the use of the town radio helps communication between licensed premises. c) Training of staff to deal with alcohol-related problems All nightclubs confirmed that their staff are trained to ask for ID, and false ID is confiscated, whereas at some other venues ID wasn’t confiscated. One of the reasons given for this was the additional workload for the police that would result from confiscation.

19

Although it is an offence to serve someone who is drunk, the difficulty is getting the evidence of this, as someone may not appear to be drunk when they present themselves or the alcohol is purchased by someone else. At the venues we surveyed, staff do not conduct sobriety tests. A very small percentage of customers are asked to leave. Staff try to deal with drunken customers themselves but if the customer gets aggressive, staff would involve the Police. If the customer is a lone female or vulnerable person, staff would get them to ring a relative or friend before leaving the premises. Some venues commented that known local trouble-makers wouldn’t be allowed in because they are familiar to bar staff. d) Measures to discourage vertical drinking Some establishments, including restaurants, have tried to change licences to get more vertical drinking areas (i.e. where people stand to drink rather than sit and drink with a meal), but this has been turned down by licensing committees. The Licensing Manager felt it was important that York strongly resists the proliferation of super-pubs, as the effect of this on ASB has been a major problem in other cities such as Nottingham. ‘Cumulative Impact Zones’ ensure that Council can limit the number of super-pubs, lap dancing clubs etc. e) Drinks promotions The Board was informed that some bars serve double measures or large glasses to customers as a matter of course unless a smaller measure is asked for. Some establishments operate a ‘Designated driver’ campaign where the person driving gets free soft drinks whereas others have a responsible trading policy. Many of their offers are connected to a promotional card which requires the recipient to complete a form with their personal details. The manager felt that this encourages more responsible drinking. However, although they do have some special offers on the price of soft drinks but they do not operate a Designated Driver promotion. Despite promotions run by pubs and clubs, alcohol can still be bought more cheaply from supermarkets as they use alcohol as a loss-leader. This can encourage people to buy larger quantities to drink at home and prior to going out to pubs and clubs. f) Impact on health services The SYPCT’s Health Improvement Manager said that consumption of alcohol in the home is increasing because alcohol is more easily available and cheaper, and that this will have long-term consequences for people’s health. She commented that children are being educated about alcohol-related harm through the substance misuse education programme, but that parents also needed to be made aware of the impact on health.

20

21

4.2.9 Alcohol Advisory Services

The Board heard from Alison Tubbs of York Alcohol Advice Service (YAAS) about support services to address problems related to alcohol use. Alison said that York was unusual in having a dedicated alcohol treatment service, as elsewhere in North Yorkshire services are within drug treatment agencies and the illicit drug users are given priority in line with funding streams. Nevertheless treatment places in York are limited. YAAS is funded by City of York Council, the PCT, Probation and Connexions. Research shows that for every £1 spent on alcohol services, £5 is saved in terms of the impact on public services. The service contributes to tackling anti-social behaviour by increasing clients’ self-respect, reducing re-offending and promoting safe and sensible drinking. The service is accessed by around 650 people per year. It aims to help people to set and achieve their own goals for dealing with alcohol and uses treatments such as hypnotherapy. Alison commented that there are gaps in the service YAAS can offer, due to funding and accommodation limitations; these are • drop-in services for chaotic clients and daily support – due to lack of space

at the YAAS offices on Bootham, there is no facility for clients to drop in without an appointment. This doesn’t allow YAAS to deal with crisis points when clients are most likely to have a relapse.

• day care (education programmes, rehabilitation and support) • family work • Alcohol Arrest Referral – currently this is entirely voluntary except for

Probation clients. YAAS would like to see more referrals made by the courts so that they have the opportunity to engage with more clients. North Yorkshire DAT conducted a three month Alcohol Arrest Referral pilot scheme in Scarborough. In this period 90 people were identified with treatment needs. Alcohol Concern is urging the Government to roll out a national Alcohol Arrest Referral scheme. This would also be welcomed by the York and North Yorkshire Drug Action Team.

Currently funding from the Probation Service pays for eight sessions with probation clients. There is a need for these sessions to be increased. Alison commented that there is a lack of understanding about units of alcohol, especially as bars now serve drinks in larger glasses than previously, and the alcohol content of some drinks has increased. She also said that the low cost of some alcoholic drinks contributes to increased consumption. Many of YAAS clients drink cider because it is cheap and in comparison, soft drinks are expensive. As a result of this evidence, and comments from the PCT’s Health Promotion Manager, the Board is extremely concerned about the pricing policy in licensed premises, supermarkets and other retailers which encourages people to consume alcohol in larger quantities than previously.

22

Recommendation Seven: That information is disseminated, through the Licensing and Regulation department, to be displayed in licensed premises and taxis that gives information about alcohol units and contact details of support agencies for people with drug and alcohol problems. Recommendation Eight: That the Executive lobbies the Government and local MPs to establish a national Alcohol Arrest Referral Scheme which would result in more opportunities for the treatment of alcohol-related offenders. Recommendation Nine: That the Executive lobbies the Government and local MPs to request that the negative price differential between alcoholic and soft drinks is addressed in order to discourage alcohol volume drinking and encourage soft drink alternatives.

4.2.10 Use of CCTV to combat crime and anti-social behaviour in the city centre

The Board were given information about the Closed Circuit Television System (CCTV) by Peter Evely, Head of Network Management. The Council is currently operating a CCTV system of 60 cameras throughout the city. This system, parts of which are over 15 years old, has been developed using traditional analogue technology and comprises 60 cameras with fibre-optic connections to a central communications and switching facility at St Leonard’s Place. The system is monitored from a control room at Fulford Rd Police Station and is staffed 24 hours per day by Council personnel who work in close co-operation with Police colleagues. The Council spends £261,340 per annum on the CCTV network. Peter Evely explained to the Board that the system has reached full capacity. The communications and switching equipment that collects and distributes the images from the cameras (the core of which is a Matrix) is in need of replacement because it has no spare capacity for adding cameras and does not support newer communications technologies. This meant that future expansion of the system would not be possible. The Board was concerned that the upgrading of the CCTV system was crucial in combating crime and anti-social behaviour in the city centre. It therefore welcomes the recent decision of the Executive Member for Planning and Transport to proceed with the replacement of the existing CCTV matrix and to migrate existing CCTV cameras to a Mesh network. This reduces revenue costs and allows quick deployment of new cameras, the use of cheaper cameras where appropriate, the publication of CCTV images on the web and the integration of the CCTV system into the wider Traffic Congestion Management System. In addition, it offers the potential to move to fully digital recording rather than relying on poorer quality VCR recording.

23

Peter Evely reported that a number of organisations had offered to fund additional cameras. The upgrade would provide additional capacity and replace the key operating systems and thereby allow gaps in coverage to be filled and the offers of funds to be taken up.

Contribution to CCTV system by private sector From the survey results and discussion with licensed establishments, it is clear that CCTV is seen as having a useful role in acting as a deterrent to anti-social behaviour. Licensees were amenable to the proposal that the private sector should contribute to the cost of CCTV coverage, particularly with the cost of a camera being as little as £5000 on a new digital network. There is a possibility that in some instances, the venue’s own cameras could be linked in with the rest of the digital network to provide more integrated coverage. Recommendation Ten: The Board recommends that, as part of the CCTV system upgrade, the Council takes a proactive role in seeking to close key gaps in the system e.g. Rougier Street and Toft Green and encourages businesses and taxi operators in York to contribute to the cost of CCTV cameras in their locality.

4.3 Domestic abuse related to alcohol use and binge drinking

It has been difficult to obtain conclusive evidence in respect of this issue. This has not been helped by the inability of the York courts to provide information about cases of domestic violence and the process for dealing with victims and offenders. Therefore, rather than only partially address the issue, the Board proposes that it is taken up as a separate scrutiny review at a later date. Recommendation Eleven: That the issue of domestic abuse related to alcohol use and binge drinking is taken up as a separate scrutiny review.

4.4 Under-age drinking and related anti-social behaviour 4.4.1 Alcohol misuse among young people is a subject of considerable concern

nationally. A recent report4 from the Joseph Rowntree Foundation by the Trust for the Study of Adolescence, used in-depth interviews with a small sample of underage young people to explore the reasons why they get drunk, and the resulting outcomes.

• The most frequently cited motivation was increased confidence in social and sexual situations. Other motivations included getting drunk to 'escape' and forget problems, to achieve a 'buzz', and for 'something to do'.

• Getting drunk was widely seen as normal and acceptable. The young people reported the important influence of friends, ranging from actual peer pressure

4 Underage ‘risky’ drinking: motivations and outcomes, Joseph Rowntree Foundation, Feb 2005

24

to the less overt, although more common, 'peer guidance'. They also reported the respect and image associated with getting drunk as a motivating factor.

• The young people often reported harmful outcomes of being drunk, with health-related effects being the most commonly cited. Being in trouble with the police was occasionally reported, although the majority of incidents were minor and the result of being caught drunk outdoors.

• Those most prone to harmful outcomes were 14- and 15-year-olds who got drunk in unsupervised locations, especially outdoor settings, and those who reported getting drunk for the 'buzz'.

• In terms of the links between alcohol misuse and anti-social behaviour, most of the young people’s accounts involved quite minor incidents (not involving arrest). However, a minority described being involved in more serious incidents with the police when drunk, usually following acts of vandalism.

4.4.2 Don’t Die Young Initiative

Chief Inspector Andy Hirst discussed with the Board an initiative taken by North Yorkshire Police in the Selby area. The initiative had targeted 1,100 young people aged 13 and 14 year and found that • 41% drink alcohol once per week • 24% drink alcohol unsupervised in public places • 7% buy alcohol for themselves • 21% get an adult to buy it for them • 31% have been sick from drinking too much • 25% said their parents give them alcohol to take out with them

4.4.3 Survey of educational establishments

Five responses were received in respect of the survey of schools, colleges and universities. Most did not hold data about the number of young people who had been cautioned or prosecuted for shoplifting and whether these young people have a drug or alcohol problem. Cannabis, vodka and cider were seen as being a particular problem. All five establishments had procedures in place for dealing with drug and alcohol problems. Activities related to crime prevention and drug and alcohol awareness was mainly through the PSHE programme. The key partners for educational establishments were identified as the University Campus Medical Practice, Compass, Connexions, the Local Education Authority and the school nurse. Some establishments wanted to work more with the local community police officers who know the area. The role of the Council was seen as co-ordinating and providing information and support for young people. The role of retailers was seen as to take a responsible attitude to alcohol sales. The role of the Drug Action Team was seen as to raise awareness about the dangers of abuse, implement national guidelines and offer support and advice. Some respondents felt that the

25

reclassification of cannabis had sent the wrong message to young people that some drugs are harmless. No establishments currently invite retailers to talk to students about the effects of shoplifting, one routinely invites the police and all invite the health services to speak to students about the effects of drugs and alcohol. All schools that responded have a Child Protection policy in place for dealing with circumstances where a student’s living arrangements involve domestic violence, drug or alcohol abuse. There was no awareness of the role of the York Domestic Violence Forum. All establishments made information available to students via leaflets/posters on drug/alcohol issues, but not all on domestic violence. Generally establishments felt that underage drinking and related anti-social behaviour was getting more prevalent. The reasons for this included easy access to drink; students taking it home without adults’ knowledge; adults condoning it; availability of alcopops; bad example set by young adults; and poor sense of self, citizenship and community belonging. Media influence, peer pressure and the ‘ladette’ culture were also given as reasons. One establishment said that Connexions and YOT were having more referrals. None of the respondents suggested how the Council could do more to support them in addressing this issue.

4.4.4 Underage sales in pubs/clubs The licensees who responded to our survey reported that no-one under age of 18 is allowed to enter their premises and people suspected of being under 21 are asked their age by door staff. Bar staff are also encouraged to ask for identification if they suspect someone of being under age. Walk-arounds are carried out by door staff to spot-check people for ID. However, this can cause conflict between door staff and customers as it is not the norm at present for young people to be asked to prove their age. It would be easier for door staff if all licensed premises asked young people to show ID in form of passport, Prove-it cards, citizen card or driving licence. False ID is not always confiscated. The introduction of national schemes for licensed premises and retailers such as Challenge 21, under which staff ask anyone who looks under 21 for ID to buy alcohol, are contributing to a change in cultural attitudes towards under-age drinking. Recommendation Twelve: That, as part of the Best Bar None scheme, the confiscation of false identification is mandatory and action is taken against young people who repeatedly try to buy alcohol with false IDs.

26

4.4.5 Information on drugs and alcohol for young people Some members of the Board met with Clare Barrowman, Drugs Education and Healthy Schools Consultant and Amanda Gaines of the Youth Service. In July 2004 Clare had facilitated a workshop with 9 York secondary schools on young people’s views of drug education and their drug use behaviour. The data gathered in respect of drinking and drug use showed that: On alcohol… • The majority of pupils have tried an alcoholic drink • For males, the average age they first tried alcohol was between 5 and 10;

for females, the average age was between 10 and 12 • Alcopops are drunk the most by both males and females but more so by

females. The males then drink either lager or beer whilst females drink either vodka, other spirits or wine.

• Young people want to know more about the effects but not with increased emphasis on the dangers. There was an interest in units of alcohol and what is a ‘safe’ amount.

On drugs… • The majority of young people have not used cannabis or illegal drugs • Of those who have used cannabis they appear to experiment on average

about the age of 13/14 • All pupils would like to know about the effects • Pupils felt that education on illegal drugs should be covered in all year

groups with a slight emphasis on Years 7 and 9 Schools and the youth service have policies for dealing with drugs-related incidents, although Clare and Amanda commented that incidents were few. Drug and alcohol awareness education forms part of the school curriculum and aims to inform children and young people about the effects of using alcohol and drugs rather than saying ‘don’t do it’. Within schools, pupils have found drama sessions as an effective way of learning about the effects of alcohol and drugs. However, funding for this type of education is not available year on year for all schools. Some schools try to work with parents by sending out an information leaflet and offering parent awareness sessions. The youth service works with young people informally through youth centres and other targeted projects such as URBIE. The Board feels that it is essential for young people to receive clear and accurate information in order that they can make informed choices about their own consumption of drugs and alcohol. Informal educational tools such as drama workshops appear to be the preferred way for young people to learn and should be encouraged as a continuing part of the curriculum year on year. Recommendation Thirteen: That the Executive Member for Children’s Services and the Safer York Partnership explore the option of ongoing funding being made available for young people to receive accurate information on alcohol units and the effects of alcohol/drug use that is delivered in the most effective learning format for them.

27

5. SUMMARY OF RECOMMENDATIONS

1. The Board urges North Yorkshire Police to consider its support arrangements for dealing with the city centre, including the re-establishment of a city centre office, as a visible presence in the city centre is a key factor in addressing retail crime and anti-social behaviour resulting from drug and alcohol use.

2. Given the evidence that a high proportion of incidents of shoplifting are

motivated by drug use, the Board recommends that treatment and rehabilitation services for drug users is given a high priority by the Safer York Partnership and Adult Services.

3. That the Executive writes to the Home Office and to local MPs

expressing the Council’s disappointment that the courts service has not responded to the Scrutiny Board’s request for information, and asking them to seek Government action to foster partnership working.

4. The Board welcomes the development of the City of York Alcohol

Strategy but recommends that it specifically addresses the issues of selling alcohol to people who are already drunk and tackling those who are repeatedly drunk and disorderly on the street.

5. The Board recommends that

a) the comparative data on the incidence of crime and anti-social

behaviour inside and outside the saturation zones is made available to the relevant Executive Member and Advisory Panel 12 months after the introduction of the Licensing Act so that its impact can be assessed.

b) officers explore the option of a follow-up survey carried out with

local residents and businesses to find out about their experiences of the impact.

Both these activities to be timed to fit in with the statutory review required by the Licensing Act 2003.

6. The Board recommends that, as part of the Best Bar None scheme,

a) licensed premises are encouraged to take a tough approach to excessive drinking, in accordance with the regulation not to serve people who are already drunk

b) a training scheme is developed that will ensure all participating premises meet minimum criteria for supporting staff in dealing with drunkenness

c) a publicity campaign is implemented to raise the public's awareness of the law and that it will be enforced.

28

7. That information is disseminated, through the Licensing and Regulation department, to be displayed in licensed premises and taxis that gives information about alcohol units and contact details of support agencies for people with drug and alcohol problems.

8. That the Executive lobbies the Government and local MPs to establish

a national Alcohol Arrest Referral Scheme which would result in more opportunities for the treatment of alcohol-related offenders.

9. That the Executive lobbies the Government and local MPs to request

that the negative price differential between alcoholic and soft drinks is addressed in order to discourage alcohol volume drinking and encourage soft drink alternatives.

10. The Board recommends that, as part of the CCTV system upgrade, the

Council takes a proactive role in seeking to close key gaps in the system e.g. Rougier Street and Toft Green and encourages businesses and taxi operators in York to contribute to the cost of CCTV cameras in their locality.

11. That the issue of domestic abuse related to alcohol use and binge

drinking is taken up as a separate scrutiny review.

12. That, as part of the Best Bar None initiative, the confiscation of false identification is mandatory and action is taken against young people who repeatedly try to buy alcohol with false IDs.

13. That the Executive Member for Children’s Services and the Safer York

Partnership explore the option of ongoing funding being made available for young people to receive accurate information on alcohol units and the effects of alcohol/drug use that is delivered in the most effective learning format for them.

REVIEW OF RECOMMENDATIONS

The Board proposes that these recommendations are reviewed by the Scrutiny Management Committee at six monthly intervals after decision by the Executive.

6. CONCLUSION

The Board has carried out a wide-ranging study of the issues relating to anti-social behaviour caused by drug and alcohol use, using a number of research tools. We have found that a large amount of progress has been made in addressing the issues, including the introduction of the York Alcohol Strategy, the Best Bar None scheme and the upgrade of the CCTV system. However, much remains to be done in terms of tackling excessive drinking and promoting safe levels of drinking. The low cost of alcohol compared to soft drinks is a particular cause for concern, as is bars continuing to serve people who have drunk excessively. The Board feels it is important that people are

29

made aware about units of alcoho l and that young people in particular receive accurate and accessible information about alcohol and drugs.

Author of the report City of York Council Economic Development and Community Safety

Scrutiny Panel

30

Annex A Participants in the scrutiny review Members of the Board Cllr Keith Hyman (Chair) Cllr Tom Holvey Cllr Jonathan Morley Cllr Christian Vassie Cllr Richard Watson Cllr Dave Merrett Cllr David Wilde Cllr Andy D’Agorne Mr Don Parlabean (Co-opted Member) Cllr Viv Kind (until May 2005) Council Officers Clare Barrowman Drugs Education and Healthy Schools Consultant Peter Evely Head of Network Management Amanda Gaines Co-ordinator, Youth Enquiry Service Dick Haswell Head of Licensing and Regulation John Lacy Licensing Manager Mick Phillips Youth Project Worker Colin Rumford Head of Environmental Health and Trading Standards Rachel Rushforth Scrutiny Manager Ruth Sherratt Scrutiny Officer Nick Wharton Temporary Scrutiny Assistant Other participants Peter Brownsword Manager, MacMillans Frank Cartin Landlord of Snickleway Inn, Goodramgate Kevin Curren Film-maker Carolyn Dunn Chief Executive, City Centre Partnership Gabrielle Epstein York and North Yorkshire Drug Action Team Janet Flanagan Health Improvement Manager, PCT Di Golding Centre Manager, Coppergate Centre Dave Harrison Area Manager, Luminar (The Gallery/Toffs) Chief Insp. Andy Hirst North Yorkshire Police Insp. David Kirby North Yorkshire Police Jane Mowat Safer York Partnership Alan Rowley Federation of Taxi Drivers Alison Tubbs York Alcohol Advice Service

31

Annex B Implications of the recommendations Recommendation Financial

Implications for CYC

Legal or other implications for CYC

Action required by

1 The Board urges North Yorkshire Police to consider its support arrangements for dealing with the city centre, including the re-establishment of a city centre office, as a visible presence in the city centre is a key factor in addressing retail crime and anti-social behaviour resulting from drug and alcohol use.

None None North Yorkshire Police

2 Given the evidence that a high proportion of incidents of shoplifting are motivated by drug use, the Board recommends that treatment and rehabilitation services for drug users is given a high priority by the Safer York Partnership and Adult Services.

Residential rehabilitation is paid for through City of York Social Services funding. The allocation is currently £25,930.

None – but legal advice would be needed if any changes are implemented

Safer York Partnership CYC Adult Services

3 That the Executive writes to the Home Office and to local MPs expressing the Council’s disappointment that the courts service has not responded to the Scrutiny Board’s request for information, and asking them to seek Government action to foster partnership working.

None Executive

4 The Board welcomes the development of the City of York Alcohol Strategy but recommends that it specifically addresses the issues of selling alcohol to people who are already drunk and tackling those who are repeatedly drunk and disorderly on the street.

None May be legal implications related to Rec 1 above

Safer York Partnership (Drug and Alcohol Steering Group)

5a The Board recommends that This is a This is a Head of

32

a) the comparative data on the incidence of crime and anti-social behaviour inside and outside the saturation zones is made available to the relevant Executive Member and Advisory Panel 12 months after the introduction of the Licensing Act so that its impact can be assessed. To be timed to fit in with the statutory review required by the Licensing Act 2003.

requirement of the Licensing Act and can be delivered within existing budgets

requirement of the Licensing Act

Licensing and Regulation

5b The Board recommends that b) officers explore the option of a follow-up survey carried out with local residents and businesses to find out about their experiences of the impact. To be timed to fit in with the statutory review required by the Licensing Act 2003.

This option will be appraised but on the face of it should present no difficulties. This recommendation can be delivered within existing budgets

Head of Licensing and Regulation

6a The Board recommends that, as part of the Best Bar None scheme, licensed premises are encouraged to take a tough approach to excessive drinking, in accordance with the regulation not to serve people who are already drunk

The BBN scheme has been successful in securing Home Office funding through SYP and any additional costs should be met by further external grant monies. It is expected that BBN will become partly self-funded in future years.

This is a requirement of legislation and can be reinforced in premises applying for The Best Bar None award. May also depend on Rec 1 above.

Stuart Benson (Council Lead for scheme), Licensing Dept

6b The Board recommends that, as part of the Best Bar None scheme, a training scheme is developed that will ensure all participating premises meet minimum criteria for supporting staff in dealing with drunkenness

See 6a above Stuart Benson, Licensing Dept

6c The Board recommends that, as part of the Best Bar

See 6a above Stuart Benson,

33

None scheme, a publicity campaign is implemented to raise the public's awareness of the law and that it will be enforced.

Licensing Dept

7 That information is disseminated, through the Licensing and Regulation department, to be displayed in licensed premises and taxis that gives information about alcohol units and contact details of support agencies for people with drug and alcohol problems.

This recommendation can be delivered within existing budgets

The availability in taxis and licensed premises will have to be voluntary.

Head of Licensing and Regulation

8 That the Executive lobbies the Government and local MPs to establish a national Alcohol Arrest Referral Scheme which would result in more opportunities for the treatment of alcohol-related offenders.

None Executive

9 That the Executive lobbies the Government and local MPs to request that the negative price differential between alcoholic and soft drinks is addressed in order to discourage alcohol volume drinking and encourage soft drink alternatives.

None Executive

10 The Board recommends that, as part of the CCTV system upgrade, the Council takes a proactive role in seeking to close key gaps in the system e.g. Rougier Street and Toft Green and encourages businesses and taxi operators in York to contribute to the cost of CCTV cameras in their locality.

Any changes would have to be addressed as part of the capital proposals for replacement and renewal

None so long as in accordance with Council policy

Head of Network Management, Executive

11 That the issue of domestic abuse related to alcohol use and binge drinking is taken up as a separate scrutiny

None Scrutiny Management Committee

34

review.

12 That, as part of the Best Bar None initiative, the confiscation of false identification is mandatory and action is taken against young people who repeatedly try to buy alcohol with false IDs.

The BBN scheme has been successful in securing Home Office funding through SYP and any additional costs should be met by further external grant monies. It is expected that BBN will become partly self-funded in future years.

This initiative is seen as good practice but has not formed part of the Best Bar None criteria which have already been produced. Licensing officers/trading standards officers and the police can examine developing a high profile city wide initiative.

Stuart Benson (Council Lead for scheme)

13 That the Executive Member for Children’s Services and the Safer York Partnership explore the option of ongoing funding being made available for young people to receive accurate information on alcohol units and the effects of alcohol/drug use that is delivered in the most effective learning format for them.

Any additional funding would need to be addressed as part of future budget proposals. As such funding would not be available until, at the earliest, 2007/8

Executive Member for Children’s Services Safer York Partnership

35

Annex C Comments of the Scrutiny Management Committee Members commented as follows

• When scoping future reports, consideration should be given to time limiting them to 3-6 months as 18 months is too long for consideration of a topic.

• Questioned the phrase monitoring city radio links in the report.

• Questioned the recommendation relating to the use of breathalyser machines on licensed premises and as to whether they would have the same calibration as those used by traffic police.

• Questioned how co-optees were chosen and reference to the male dominated board.

Comments of the Executive To be added