17. Memorandum submitted by Professor
R F Hobbs
This submission refers to evidence that has
been gleaned from an Economic and Social Research Council funded
project looking at violence and control in the night-time economy.
The research was carried out at the University of Durham under
the direction of Professor R F Hobbs. It also refers to data from
a number of learned papers listed below, and to work on a Home
Office funded project, as well as research with a number of individual
police forces and local authorities in relation to alcohol related
problems.
The findings relevant to the Home Affairs Committee's
inquiry are as follows.
1. During the late 1980s, in response to
de-industrialisation and the loss of traditional sources of employment,
local government administrations in Britain began to acknowledge
the potentially important role that leisure activities could play
in urban regeneration.
2. As a result, the night-time economy is
now a major feature of economic life in Britain. In England and
Wales alone the licensed trade employs around one million people,
and creates one in five of all new jobs. Each year, brewers, leisure
companies and entrepreneurs invest around £1 billion within
the sector, which is currently growing at a rate of 10% per annum.
The pub and club industry presently turns over £23 billion,
equal to 3% of the UK Gross Domestic Product.
3. This new night-time economy as based
upon the consumption of alcohol, and is aimed almost exclusively
at young people.
4. This economic boom has been accompanied
by a rise in violence and disorder. In every research site across
the country analysed by the Durham researchers it was found that
violence and disorder was exacerbated in direct proportion to
the number of drinkers coming in to the town or city. Further
we were able to trace the spread of violence and disorder that
accompanied the development of new drinking circuits adjacent
to established drinking routes.
5. Our findings were overwhelmingly confirmed
by research projects carried out by individual police forces,
by studies of Accident and Emergency departments, and by an evaluation
of a Home Office-funded targeted policing initiative to reduce
alcohol-related violence and disorder. There was a statistically
direct correlation between city centre licensed premise capacity
and street assault. Further, when there was an increase in the
capacity of licensed premises in a particular area or street,
this was connected to an upsurge in the number of assaults in
that area.
6. Police, ambulance and Accident and Emergency
staff are frequently overwhelmed by the workload created by the
night-time economy, which in most major urban settings, particularly
those featuring large student populations, has a nightlife that
has extended beyond the traditional Friday and Saturday night,
and in some cases is moving towards a seven night weekend.
7. Night-time economies attracting over
100,000 customers were regularly policed by 15-20 Police Officers.
Further the nature of drink related disorder, which is often unpredictable,
irrational and extremely violent, means that a small number of
simultaneous incidents will reduce the police presence further,
as officers suppress the disorder, deal with victims, identify
and apprehend offenders, and restrain, escort, and process prisoners.
As a consequence officers are unable to enforce the law as they
would during the hours of daylight. Arresting offenders removes
police officers from the street, and officers are therefore reluctant
to make an arrest unless, in their opinion, it is unavoidable,
as this will reduce the overall effectiveness of the police, and
in particular render a beleaguered night-shift unable to react
to more serious incidents.
8. Unconcious or helpless drunks, lost and
distressed underage teenagers, and generally vulnerable individuals
drawn to bright lights of the city-centre are the targets of predators.
This places an additional burden of duty of care upon police working
the night-shift.
9. Although many night-time economies have
a minority of venues that are badly run and create problems for
the police, most problems of violence and disorder are generated
in public space as customers move from venue to venue, or at hot
spots such as taxi ranks, bus stations, or fast food outlets.
10. Forthcoming changes in the licensing
laws are not grounded in any research or evidence to show that
violence and disorder will be dissipated by giving more powers
over licensing to local authorities, or by allowing 24 hour opening
hours.
11. Forthcoming changes in the licensing
laws will assist in the expansion of these night-time economies
and lead to more people on the streets throughout the night. This
will make it impossible for the Police, Ambulance service and
Accident and Emergency departments to plan their resources, or
to create time for meal breaks, administration, or follow up work
with prisoners/victims/patients. Peaks and troughs could occur
at any time.
12. During the last two years senior city-centre
managers and municipal Chief Executives have acknowledged that
the alcohol based youth market has become out of control, and
they have expressed a desire to achieving "diversity"
in the night-time economy. In particular they wish to attract
a more mature clientele into the city. A number have expressed
a desire to "attract families back". However, current
and proposed legislation ensures that the free-market dominates,
and youth orientated pubs and bars are more profit friendly than,
for instance a real ale bar for middle aged beer aficionados,
or a wine-bar.
13. Both the current and proposed licensing
laws are heavily weighed in favour of the alcohol industry. Police
or local authorities are often wary of opposing new licenses,
as failure in, for instance a Crown Court appeal, with costs being
awarded can be a severe blow to the public purse. Consequently
it is hardly surprising to find the alcohol industry willing to
commit formidable and expensive resources to any legal dispute
relating to a licensing.
14. Given the increasing scale and capacity
of night-time economies around the country, the enforcement of
ASBO's and fixed penalty notices will not have a significant impact
upon city centre violence and disorder. Further, given the realities
of policing the night-time economy, and in particular the inebriated
character of the night-time population the enforcement of fixed
penalty notices will be impractical.
RECOMMENDATIONS
15. The night-time economy is statistically
the most prominent site of violence and disorder in contemporary
Britain, and consequently offers an opportunity to deal with the
problem at its root.
16. The night time economy is a largely
unregulated youth orientated zone that floats on alcohol. It is
an economy that due to the target age range within most of its
consumers fall, and the commodity upon which it relies, is highly
risky. However, despite being a high risk environment, it remains
an unplanned economy, driven by market forces. To reduce exacerbating
problems of violence and disorder, any city and town with a night-time
economy should be required by law to create a plan that ensures
adequate, Police, transport, toilet, hospital, and ambulance facilities.
Public safety should be given the highest priority, and if these
conditions cannot be met, then the economy should not be allowed
to expand.
17. We should consider the examples of other
countries that prohibit the granting of licenses for alcohol outlets
that are in close proximity to other alcohol outlets. This would
restrict and contain the growth of drinking circuits, and therefore
improve safety in public space.
13 September 2004
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