Select Committee on Welsh Affairs Written Evidence

3. Written evidence from the North Wales Police

EXECUTIVE SUMMARY

Introduction

  North Wales Police welcomes the opportunity to contribute to the Welsh Affairs Committee inquiry into the police service, crime and anti-social behaviour in Wales. We believe there is much to be proud of and optimistic about so far as policing in the region is concerned. This report will detail the efforts currently in train within North Wales to make a significant and lasting improvement in civil well-being.

  This written submission will be supplemented by oral evidence to the Committee by Mr Richard Brunstrom, Chief Constable on 3 November 2004.

Home Affairs Committee—Inquiry into anti-social behaviour

  The Welsh Affairs Committee inquiry is concurrent to a Home Affairs Committee Inquiry into anti-social behaviour. The Association of Chief Police Officers (England, Wales & Northern Ireland) has recently made to the Committee a submission to which North Wales Police wholly subscribes. The local and national submissions should therefore be read in conjunction.

Anti-social behaviour in North Wales

  The sub-culture of criminal and disruptive behaviour, in certain north Wales communities, is a continued cause of public concern. Many people feel intimidated by overt and perceived misbehaviour in public spaces. Others are frustrated by the lack of respect for law, individual safety and the environment. North Wales Police recognises the concerns of the public.

  Some two years ago, the chief officers resolved to harness force resources in a way that would begin to deal with this "Cinderella" of policing imperatives. Research from the United States and elsewhere was compelling in identifying the overall benefits of tackling low-level quality of life issues. Implementation of a "Zero Tolerance" strategy was considered. However, it was felt a more local resonance was needed. Furthermore, the chief officers are of the belief that a wholly intolerant society is inherently unhealthy. The phrase "Dyna Ddigon" appeared to encapsulate our vision; a firm, parental rebuke to inappropriate behaviour, but a rebuke which also acknowledged further responsibilities.

Dyna Ddigon

  "Dyna Ddigon" combines a philosophy of community policing with best practice from the tactics of a zero tolerance engagement. It is now well embedded within the force and is widely recognised by the public. It has given managers the opportunity to exercise determination and innovation in solving a range of social problems.

  "Dyna Ddigon" has a number of aims, supporting the vision of a safer north Wales:

  1.  To galvanise public distaste for the "yob culture".

  2.  To inculcate abhorrence of petty crime & anti-social behaviour.

  3.  To make public areas welcoming and safe at all times of the day.

  4.  To support other public bodies in promoting civic pride.

  5.  To protect young people from conflict and confrontation.

  "Dyna Ddigon" is a riposte to the behaviours that adversely affect the quality of life in our communities. It describes a shared responsibility for challenging attitudes and acts that demean and damage. It seeks to promote and support a culture of respect for individuals and their property, both private and shared. It is concerned with the preservation of the best of north Wales and the discouragement of the worst.

Richard Brunstrom

Chief Constable

The Prevention & Detection of Crime:  Our Present Position

  North Wales Police is enjoying continued increases in performance.

  For the fiscal year 2003 to 2004, the all crime detection rate rose from 29% to 32.5%. There were 478 less incidents of violent crime across the force area. Domestic burglaries were reduced by 22.9%, with a detection rate of 27.9% being achieved. Over 4,000 more offenders were arrested, an increase of 18%.

  When viewed in a national context, such levels of performance are noteworthy. The situation has not changed, the most recently available data[28] indicating that:

—  All crime is down 10%, with a detection rate standing at 39.8%.

—  Domestic burglaries are down 41%, with a detection rate of 35%.

—  Vehicle crime is down 25%, with an increase in the detection rate to 18.8% (from 8.5% ).

—  Our detection rate for violent crime is 76.1%, up from 60.1%.

—  The force is achieving all of its detection targets.

—  There has been a significant decrease in the number of residents perceiving disorder as high, from 23% to 13%.[29]

  Despite this, it is generally accepted that public fear of crime is high throughout England and Wales, a situation that has perpetuated due to the perceived lack of order in public areas, and an apparent unwillingness for agencies to address local issues. For this situation to be reversed and confidence to be restored, we must all be willing to engage communities, identify their needs and demonstrate our accountability by responding in a meaningful way.

  Our Policing Plan 2004-2005 contains the following national priorities:

—  Providing a citizen focused service to the public, especially victims and witnesses, which responds to the needs of individuals and communities and inspires confidence in the police, particularly amongst minority ethnic communities.

—  Tackling anti-social behaviour and disorder.

—  Continuing to reduce burglary, vehicle crime, robbery and drug related crime in line with the Government's Public Service Agreement targets.

—  Combating serious and organised crime, both across and within force boundaries.

—  Narrowing the justice gap by increasing the number of offences brought to justice.

  The following local priorities have also been set:

—  Increasing the time that front line officers spend within their communities.

—  In partnership with other agencies, target and reduce the violence and abuse suffered by vulnerable people, in particular within the areas of child protection, domestic violence and hate crime.

—  Other areas of police work that we will be focusing on are roads policing, business & retail crime, football related disorder and animal rights extremists.

  Anti-social behaviour is nevertheless consistently the issue that remains at the top of the agenda for many communities in North Wales. Our on-going response to those concerns is described on the pages that follow.

ANTI-SOCIAL BEHAVIOUR AND THE LEGISLATION THAT MATTERS

  The term "anti-social behaviour" has different meanings according to the context in which it is used. The Government White Paper entitled Respect & Responsibility—Taking a Stand against Anti-Social Behaviour (12 March 2003) provided the following guidance:

  "Anti-social behaviour" means different things to different people—noisy neighbours who ruin the lives of those around them, "crack houses" run by drug dealers, drunken "yobs" taking over town centres, people begging by cash-points, abandoned cars, litter and graffiti, young people using airguns to threaten and intimidate, or people using fireworks as weapons.

  While most crime may be generally categorised as anti-social behaviour, the converse is not true. Behaviour is not automatically criminal just because it is anti-social, although the White Paper did go on to say:

  As a society we have rules and standards of behaviour. For the minority who flout these rules and standards, we must take action to enforce them.

  During his speech of the 7 July 2003 (Criminal Justice Reform—Essential & Urgent), the Prime Minister said "Anti-social behaviour is as corrosive to community life as more serious crime. It is petty crime and public nuisance that causes real distress and anguish to people: vandalism, graffiti, aggression and threats".

  It is evident that the Government wishes to deal robustly with anti-social behaviour and pass legislation that it perceives is focussed on enabling the police and local authorities to have a wider, more flexible range of powers to meet their existing responsibilities and respond to the needs of their local communities. The Government is effectively calling for a cultural change, for communities to become more willing to take a stand against anti-social behaviour.

THE LEGAL DEFINITION:

  The legal term for "anti-social behaviour" is not strictly defined; however the Crime & Disorder Act 1998 describes the conditions that must be met to permit certain action against offenders. One of the conditions is to show that "a relevant person acted in a manner that caused, or was likely to cause harassment, alarm or distress to one or more people who are not of the same household as the relevant person".

THE EVOLUTION OF LEGISLATION

  There are many different elements of present legislation that can be used to deal with instances of anti-social behaviour that occur, with varying degrees of seriousness. These include:

—  Wounding or Grievous Bodily Harm (Offences Against the Person Act 1861, s.20).

—  Actual Bodily Harm (Offences Against the Person Act 1861, s.47).

—  Common Assault (Criminal Justice Act 1988, s.39).

—  Basic instances of criminal damage (Criminal Damage Act 171, s.1 (1)).

—  Fear or provocation of violence (Public Order Act 1986, s.4).

—  Intentional harassment, alarm or distress (Public Order Act 1986, s.4A).

—  Causing harassment, alarm or distress (Public Order Act 1986, s.5).

—  Harassment (Protection from Harassment Act 1977, s.2).

—  Putting in fear of violence (Protection from Harassment Act 1977, s.4).

  (All of the above may be "racially or religiously aggravated" under s. 28 of the Crime & Disorder Act 1998).

—  Public nuisance (Common Law).

—  Throwing fireworks into a highway or street (Explosives Act 1875, s.80).

—  Exceeding noise level after service of warning notice (Noise Act 1996, s.4 (1).

—  Leaving litter (Environmental Protection Act 1990, s.87 (1).

—  Threats to Kill (Offences Against the Person Act 1861, s.16).

—  Drunk and Disorderly (Criminal Justice Act 1967, s.91 (1)).

—  Riot (Public Order Act 1986, s.1).

—  Violent Disorder (Public Order Act 1986, s.2).

—  Affray (Public Order Act 1986, s.3).

  This is certainly not an exhaustive list, as a comprehensive number of other offences are also applicable, including those falling under legislation applying to activities such as the usage of firearms & vehicles, and sporting events.

  Despite this, additional legislation has now been introduced that provides a greater number of methods for dealing with anti-social behaviour.

  For many years the courts have exercised penal sanctions against people who disobey court orders. The use of criminal law to provide sanctions for disobedience to court orders is a contemporary development.

  The Protection from Harassment Act of 1997 had the effect of providing that certain courses of conduct would be both a criminal offence and the subject of a claim in civil proceedings. Moreover, breach of a Non-harassment Order made in the civil court would itself be a criminal offence as well as contempt. The criminal courts were also given the power to make Restraining Orders, breach of which would amount to a further criminal offence.

  In both cases, the Order could prohibit a person from doing something which would not otherwise be a criminal offence. These anti-harassment provisions have formed the model for the Anti-Social Behaviour Order (ASBO) introduced by the Crime & Disorder Act 1998.

  As well as the Crime & Disorder Act 1998, other relevant items of legislation that deal with anti-social behaviour are the Criminal Justice and Police Act 2001 and the Police Reform Act 2002. The Anti-Social Behaviour Bill was passed on the 24 June 2003. Like its counterparts, it has significant implications for the Police Service and other agencies.

The Crime and Disorder Act 1998

  The Government rightly considered that anti-social behaviour which caused harassment or intimidated neighbours, or a community in general, to be unacceptable. It therefore introduced the Anti-Social Behaviour Order (ASBO) among the measures included in its Crime and Disorder Act 1998.

  Other measures included:—

—  Crime and Disorder Strategies

—  Parenting Orders

—  Local Child Curfew Schemes

—  Reparation Orders

—  Action Plan Orders

  Section 5 of the Act placed on local authorities and the police a joint responsibility for the formulation of crime and disorder reduction strategies in each district, borough or unitary local authority area in England and Wales.

  The Act placed a legal obligation upon police authorities, probation committees and health authorities to co-operate fully in this work. It also gave the Home Secretary power to extend that obligation by order of Parliament to any other person or body he (or she) chooses; and by similar means to require local authorities and the police to ensure that other specified people or organisations are invited to contribute to the process. These latter provisions were intended to ensure that there was adequate scope for input by the local business and voluntary sectors and others.

  There was also a requirement for local authorities and the police to draw up and implement a strategy for reducing crime and disorder in their area. The process involved consisted of a review of the level of crime and disorder (the Crime and Disorder Audit), followed by analysis and consultation with the local community. A strategy was then to be developed, including published targets, and views obtained on it. Performance information relating to the achievement of objectives was to be disseminated. The strategies were expected to run for three years and subject to review throughout that time.

The Criminal Justice and Police Act 2001

  Following consultation, the Criminal Justice and Police Act 2001 introduced measures that now enable constables to issue Penalty Notices to a person aged 18 or over, if the officer believes that a "penalty offence" has been committed.

  A penalty notice offers an offender the opportunity, by paying a penalty, to discharge any liability to be convicted of the offence.

  A pilot scheme was commenced in five locations in September 2002, in which North Wales Police participated through the Rhyl Priority Policing Area initiative.

  The offences that are presently listed as "penalty offences" are:

—  Being drunk in a highway, other public place or licensed premises.

—  Throwing fireworks in a thoroughfare.

—  Knowingly giving a false alarm to a fire brigade.

—  Trespassing on a railway.

—  Throwing stones etc. at trains or other things on railways.

—  Buying or attempting to buy alcohol for consumption in a bar in licensed premises by a person under 18.

—  Disorderly behaviour while drunk in a public place.

—  Wasting police time or giving false report.

—  Using public telecommunications system for sending messages known to be false in order to cause annoyance.

—  Behaviour likely to cause harassment, alarm or distress.

—  Consumption of alcohol in a designated public place.

  This list is about to be significantly expanded.

The Police Reform Act 2002

  The Police Reform Act 2002 provided for a Chief Officer of police to accredit non-police employees involved with the provision of community safety with powers to undertake certain functions to support the police:

Police Community Support Officers (PCSOs)

  The role of the Police Community Support Officer (or PCSO) was created under the Act. They are Police Authority employed support staff who can perform a high visibility, patrolling role, with the am of providing reassurance to the communities they serve.

  They are intended to complement the work of police officers by focusing predominantly on lower level crime, disorder and anti-social behaviour. They are seen as an important weapon in the Government's drive to crack down on anti-social behaviour.

  The Act allows Chief Officers of police to designate PCSOs with limited enforcement powers to enable them to tackle such issues effectively. Whereas Neighbourhood Wardens and Street Wardens are generally managed by local authorities, PCSOs will be Police Authority employees, under the direction and control of the Chief Officer.

  Although there is no statutory requirement to consult on the introduction of PCSOs, it is seen as important that consultation with the local community does take place so that this informs any decisions about how PCSOs might be deployed and ensures that they are welcomed and supported where they are introduced.

  Police forces are permitted to appoint PCSOs at any time of their choosing, on the proviso that the necessary funds are allocated from their own budgets, or from Crime and Disorder Reduction Partnership agencies.

  PCSOs will only possess the powers that are specifically conferred on them by the Chief Officer of their force.

  PCSO powers can only be exercised in the force area of the designating Chief Officer and when the PCSO is on duty in uniform. The summary of powers appears below:

—  Issue of Fixed Penalty Tickets for variety of low level offences;

—  Power to request name and address for some low level offences and anti-social behaviour;

—  Power to detain person for 30 mins pending arrival of PC or accompany that person to police station with their consent;

—  Power to use reasonable force to detain a person or stop them making off;

—  Power to seize alcohol from young people and in alcohol designated areas, and to stop persons drinking in such areas;

—  Power to seize cigarettes from young people;

—  Power of entry to save life or limb or prevent serious damage to property;

—  Power to seize vehicles used to cause alarm or distress;

—  Power to require removal of abandoned vehicles;

—  Power to maintain and enforce cordons under terrorist provisions;

—  Power to stop and search vehicles and things carried by driver/passenger under terrorism powers and things carried by pedestrians;

—  Power to regulate traffic for the purpose of escorting abnormal loads; and

—  Power to stop a vehicle for emissions testing.

  Note that some of these detention powers are only available in pilot police areas until the 21 December 2004, when decision will be taken to extend them or not.

  There are three offences against designated staff, which apply to PCSOs. The Police Reform Act 2002 section 46 sets out the offences in detail. They are:

—  Assaulting a designated person in the execution of their duty;

—  Resisting or wilfully obstructing a designated person in the execution of their duty; and

—  Impersonating a designated person.

Accredited Wardens (Under a Community Safety Accreditation Scheme)

  As a result of the Police Reform Act 2002, Chief Constables of all 43 forces in England and Wales, and the British Transport Police, are now able to establish a system of accreditation for the purposes of contributing to community safety and security.

  There are a large number of people contributing to safer communities, including neighbourhood and street wardens, and private security staff. It is perceived that benefit can be derived from the "extended police family" of assorted community patrols being brought together under one local scheme, co-ordinated by the police. The Accredited Community Safety Officer scheme has therefore been introduced.

  The powers Accredited Community Safety Officers will possess are more limited than those of Police Community Safety Officers. The measures came into force on the 1 April 2003.

  Accredited persons can issue fixed penalty notices for a variety of offences.

  They also have the same powers regarding the confiscation of alcohol and tobacco as PCSOs.

  North Wales Police was the first Police force in England and Wales to establish a Community Safety Accreditation Scheme (CSAS). The force has provided guidance to a number of other forces looking to establish their own CSAS. North Wales Police are currently in further negotiation with a number of statutory and voluntary organisations that would like to take advantage of the CSAS.

The Anti-social Behaviour Act 2003

  The Anti-social Behaviour Bill was published on the 27 March 2003 and passed on the 24 June of that year.

  The new Act has been designed to ensure the police have the appropriate powers to deal with anti-social behaviour. It has introduced new powers for tackling the problem of premises used for drug dealing and for dispersing intimidating groups. It allows the police to deal with the nuisance caused by young people with air weapons and has banned the possession of imitation firearms and air guns in public without good reason. It has additionally addressed the danger of air weapons that can easily be converted to be used with conventional ammunition.

  Powers for local authorities and their partners to deal with anti-social behaviour in local communities have also been provided. There is an extension of landlord's powers to deal with such problems, including the use of injunctions and demoted tenancies. It includes provisions aimed at dealing with noise nuisance. The Act has developed the sanctions that are available for use against offenders and extended the range of agencies that can use them. It now provides a means for schools, local authorities and youth offending teams to work with the parents of children who are behaving anti-socially and creates the mechanisms for enforcing this work.

  The Act extends local authorities' powers in relation to cleaning land. It also extends the measures that can be taken to remove graffiti, and restricts the sale of aerosol paint to children. It amends existing police powers to place conditions on public assemblies and to deal with unauthorised encampments.

  The Act is in nine Parts. Part 1 creates new powers to close premises that are being used for drug dealing or use. Part 2 extends powers for tackling anti-social behaviour in social housing. Part 3 develops mechanisms for enforcing parental responsibility for children who behave in an anti-social way in school or in the community. Part 4 creates a new power for the police to designate areas where they can disperse groups causing intimidation. Part 5 develops the existing sanctions of anti-social behaviour orders, fixed penalty notices and supervision orders. Part 6 deals with the misuse of air weapons. Part 7 extends powers for local authorities to clean the environment. Part 8 amends police powers for dealing with public assemblies and trespassers. Part 9 contains general provisions.

  The following measures were to be commenced separately by the National Assembly for Wales:

—  Housing (Clauses 12 to 17);

—  Parenting contracts and orders related to truancy and exclusion from school (Clauses 19 to 22 and clause 24 (1));

—  Closure of Noisy Premises (Clauses 46 and 47);

—  Night noise (Clause 48);

—  Graffiti and fly-posting (Clauses 49 to 51 and 53); and

—  Waste and litter (Clauses 57 and 58).

  Clause 23 (penalty notices for parents in cases of truancy) does not apply to Wales unless the National Assembly for Wales makes an order under this clause.

  The Licensing Act 2003 establishes a single integrated scheme for licensing premises, which are used for the supply of alcohol, to provide regulated entertainment or to provide late night refreshment. Permission to carry on some or all of these licensable activities will now be contained in a single licence—the premises licence, and the Act has accordingly removed some of the bureaucracy involved.

  The Act also provides a balanced package of freedoms and safeguards. It will have an important role in the prevention of crime and disorder and public nuisance. 

  The Act provides certain rights of appeal to the magistrates' court for those who feel aggrieved by decisions made by licensing authorities. A right of appeal is not only afforded to applicants where their application has been rejected, or has been granted subject to conditions, but is also afforded to those who made relevant representations in relation to an application; for example, a local resident has a right to appeal against the decision of the licensing authority to grant a premises licence if they made relevant representations as an interested party in relation to the application where he considers the application should not have been granted.

  The Act marks the end of the existing licensing regimes.

 

  Key measures contained in the Act include:

—  Flexible opening hours for premises, with the potential for up to 24 hour opening, seven days a week, subject to consideration of the impact on local residents, businesses and the expert opinion of a range of authorities in relation to the licensing objectives. It is intended that this will help to minimise public disorder resulting from fixed closing times;

—  A single premises licence which can permit premises to be used to supply alcohol, to provide regulated entertainment and to provide refreshment late at night. This brings together the six existing licensing regimes (alcohol, public entertainment, cinemas, theatres, late night refreshment house and night cafes);

—  A new system of personal licences relating to the supply of alcohol which will enable holders to move more freely between premises where a premises licence is in force;

—  Premises licences to be issued by licensing authorities after notification to and scrutiny of all applications by the police and other responsible authorities. Those living in and businesses operating in the vicinity of the premises will also be able to make representations on applications;

—  Personal licences to be issued by licensing authorities after scrutiny by the police where the applicant has been convicted of certain offences.

  The Fireworks Regulations 2004, made under the Fireworks Act 2003, have introduced a comprehensive package of measures including:

—  Making it illegal to possess adult fireworks in a public place by anyone under the age of 18;

—  Making it illegal to possess professional display fireworks by anyone other than a fireworks professional;

—  Requiring suppliers that sell fireworks all year round to be licensed—having the effect of containing the fireworks season to the traditional sale/usage periods since 1975;

—  The creation of a curfew on firework use—between 11 pm and 7 am (in line with the Noise Act 1996), with the exception of certain nights where the curfew will begin at different times. This regulation is set to come into force on 1 January 2005;

—  Making it illegal to supply adult fireworks to anyone under the age of 18.

  From April 2004, the offence of letting fireworks off in the street (under section 80 of the Explosives Act 1875) is also punishable by a fixed penalty notice—attracting the upper tier of £80.

  From 11 October 2004, police will also have the power to issue fixed penalty notices to those under the age of 18 caught possessing fireworks in a public place or those breaching the 11 pm curfew time. Again, the offence attracts the upper tier of £80.

Main influences on our approach

  The progressive introduction of new legislation has provided clear indications as to the intentions of government. The concept of the extended police family and the growing emphasis on the reassurance elements of community policing—environmental issues, the protection of communities and locally driven enforcement—have also provided guidance as to the way forward.

  In North Wales, the need to actively address the continued expressions of concern by members of communities about anti-social behaviour was identified some time ago. This was consistently the issue of greatest local concern. Despite notable crime reductions in priority areas (such as domestic burglary, vehicle crime and violent crime) public perceptions of safety were being unduly affected by the lack of apparent activity of various agencies in dealing with quality of life issues.

  March 2003 saw the publication of the government White Paper entitled "Respect and Responsibility—Taking a Stand against Anti-social Behaviour." The way forward was being clearly defined, with plans being formulated at ACPO level within North Wales Police for a force-wide initiative.

  In May 2003, the Deputy Chief Constable, Clive Wolfendale, presented a paper to the North Wales Police Authority. This described the "Dyna Ddigon" (or "That's Enough!") initiative that the force intended on introducing, to challenge anti-social behaviour throughout North Wales. It was met with unanimous approval by the Police Authority.

  The "Broken Windows" concept, demonstrated by the work performed in the late 1980s and early 1990s in New York, was an indirect influence on the new initiative. The New York City Subway experience had shown that by impacting on "low-level" offences, significant decreases in more serious crime types could occur. There was a complementary effect upon levels of public confidence in the police and a reduced fear of crime.

  Dyna Ddigon was introduced into three pilot sites on the 14 July 2003 and a progressive expansion into further sites has occurred. (Dyna Ddigon is later described in more detail).

  The launch of the Government's action plan to tackle anti-social behaviour "Together" took place on the 14 October 2003. It was described as "a national campaign that takes a stand against anti-social behaviour and puts the needs of the community first."

  The Government's view is that tackling anti-social behaviour is a challenge for all public authorities—cutting across housing, education, social services, transport and environmental services, town centre management, the criminal justice system and policing. It was apparent that the approach adopted by North Wales Police was entirely consistent with the aims of "Together."

  "Policing: Building Safer Communities Together" was published in November 2003. It was a major consultation exercise, aimed at enabling the development of a modern, truly representative police force which is more accountable to communities, and which is able to tackle crime at a local, regional and national level. The community engagement aspect of the consultation document was a key area of interest.

  The National Policing Plan 2004-07 makes specific references to anti-social behaviour, as one of the five key overriding priorities is "Tackling anti-social behaviour and disorder". Also, one of the two underpinning national themes is "Community engagement and civil renewal".

  The Plan states that Police and partner organisations from the public, private and voluntary sector need to work together in new and imaginative ways to build safer communities. Engagement with communities in a manner which enables them to accept broader responsibility for aiding and supporting the police is seen as particularly important in work to reduce anti-social behaviour.

  The Policing Performance Assessment Framework will increasingly be the tool for performance measurement for the police. The Framework was introduced in 2003-04.

  From the Key Priorities:

—  Citizen Focus

Providing a citizen focused service to the public, especially victims and witnesses, which inspires confidence in the police.

  It is acknowledged that the police can contribute to strengthening communities by working with them and being accountable to them. The basis for effective policing is public support where communities have the confidence to work in partnership with the police and other agencies to tackle crime and disorder. Forces and authorities must develop a clear understanding of the needs of the communities they serve.

  Levels of public satisfaction and confidence are key elements of police performance.

  "Wales—A Better Country"—The Strategic Agenda of the Welsh Assembly Government is a vision of a sustainable future for Wales, where action for social, economic and environmental improvement work together to create positive change.

  A "top ten" of commitments are listed by the WAG, each seeking to address fundamental and connected issues around health, communities, skills and jobs and to invest for the long term.

  Directly related to policing is a commitment to a £100 million crime fighting fund. Its aim is to reduce fear of crime and address drug-related crime, including effective treatment for addicts. The implementation plan is one of bringing together existing funds into a new focused package of programmes and actions.

  There are four key areas which the WAG will concentrate on as policy is developed:—

—  Helping more people into jobs.

—  Improving health.

—  Developing strong and safe communities.

—  Creating better jobs and skills.

  One specific element of the overall vision is: action on social justice that tackles poverty and poor health, and provides people and their communities with the means to help themselves and break out of the poverty trap. This specifically reaffirms the WAG's intention to focus on tackling the issues that can most damage day to day life for people and supporting work in local communities. A number of commitments under this vision are listed, with the following featuring prominently:

Commitment	Aim	Implementation Plans
Tough action on anti-social behaviour	To improve quality of life in local communities	New legislation in 2004 to increase fines and set standards
Roll out Communities First	To enable areas to benefit from this programme which helps communities to shape a new future for their areas.	Progressive roll-out on the basis of experience.

  There is a desire for communities to identify their own needs, future direction and address problems of day to day concern, such as crime, drug abuse and the quality of the local environment. The WAG has drawn attention to the Communities First programme, as it is enabling communities to identify what they each need to tackle their concerns.

  The Home Office Strategic Plan 2004-08 "Confident Communities in a Secure Britain" sets out the intentions of government to revive community policing through a large increase in uniformed patrol officers, specifically Police Community Support Officers—24,000 by 2008.

  Local communities will have greater influence in deciding the priorities for neighbourhood policing teams, and in tackling anti-social behaviour.

  Dealing with prolific offenders and revisions to various aspects of the criminal justice system are also specified in the strategic plan.

  There is mention of the following intentions in respect of anti-social behaviour:

—  Prevention and deterrence of anti-social behaviour through the development of a culture of intolerance of it, and increasing order in public spaces.

—  Greater use of sanctions specifically designed for tackling anti-social behaviour.

—  Improvement of the prosecution and court processes for tackling anti-social behaviour.

  Of particular note is the need to prevent crime by reducing opportunities and tackling alcohol abuse. Alcohol abuse and binge drinking are strongly linked to violent and anti-social behaviour.

  The House of Commons Environmental Audit Committee report "Environmental Crime: Fly-tipping, Fly-posting, Litter, Graffiti and Noise—9th report of Session 2003-04" describes how there is a need to eradicate the problems of graffiti and litter. As well as the adverse financial impact such criminal behaviour causes, graffiti in particular has a detrimental social cost, making an area feel run down and contributing to the fear of crime.

  A concerted effort towards environmental renewal is required, with closer working relationships to be established between agencies. Local environmental quality is clearly higher up the agenda in government nationally and locally, than it was a decade ago.

  The National Reassurance Policing Programme is an important initiative that recognises local people are best placed to identify local concerns. It is a joint Home Office/ACPO programme currently being tested in 16 sites across England.

  The programme aims to work with communities and local partners to tackle "signal crimes and disorders." A "signal crime" is an event that has a disproportionately negative effect on the public's perception of risk. It acts as a powerful warning signal for those who encounter or experience it, causing them to change their beliefs or behaviour because of the risk they perceive. Crucially, the NRPP recognises that only local people can identify local "signals." A process of genuine, proactive community engagement is therefore central to the success of the programme, with local people taking ownership of their neighbourhoods in partnership with the police and other agencies.

  Tackling these signal crimes and disorders should lead to communities that not only are safer, but feel safer too.

DYNA DDIGON—CHALLENGING ANTI-SOCIAL BEHAVIOUR ACROSS NORTH WALES

  In May 2003, the Deputy Chief Constable of North Wales Police presented a paper to the North Wales Police Authority. This described the "Dyna Ddigon" (or "That's Enough!") initiative that the force has now introduced to challenge anti-social behaviour.

  "Dyna Ddigon" is a policing and community concept describing an abhorrence of petty lawlessness and the recovery of civic pride. It has a number of aims, supporting the vision of a safer North Wales:

—  To galvanise public distaste for the "yob culture".

—  To inculcate abhorrence of petty crime and anti-social behaviour.

—  To make public areas welcoming and safe at all times of the day.

—  To support other public bodies in promoting civic pride.

—  To protect young people from conflict and confrontation.

  The Dyna Ddigon strategy has been designed to integrate fully with the aims of the Force.

  North Wales Police has undertaken to respond speedily to offences and deal with offenders robustly.

  Through methods such as high-visibility patrolling and the Community Beat Manager project, we are providing reassurance and are now more accessible in our communities.

  We look to inspire our officers to act confidently when engaging identified criminality. We are also using a variety of methods to gather evidence and prosecute offenders.

  The corporate health of the North Wales Police will be further consolidated as the public see tangible results, obtained through the provision of officers by way of the extra funding secured for the Force. The organisation continues to further integrate into social, economic and environmental improvement strategies across North Wales.

  This approach acknowledges local crime and disorder priorities. It has been informed by clear and current management information exploiting technical developments presently in train.

  It harnesses the proven techniques of problem-solving policing.

  The force directs and encourages officers to deal with offences of crime and disorder wherever and whenever possible. They will be fully supported by corporate resources. They must employ craft, creativity and determination to detect and deter criminal activity.

  Appropriate and innovative methods of dealing with identified problems are being used. Whilst a rigorous approach will be encouraged, it will be proportional and conform to the Human Rights Act. We have not removed the ability of our officers to exercise discretion.

  It is clear that in devising long-term solutions to crime problems, the Police cannot operate autonomously. A key element of the "Dyna Ddigon" approach is multi-agency liaison and action. We encourage involvement from those who can actively participate in the achievement of effective and lasting solutions. We also seek media recognition and support.

  "Dyna Ddigon" is being continuously and rigorously monitored for effectiveness and impact. Challenges, opportunities and successes are being publicised with openness and honesty.

  "Dyna Ddigon" is a riposte to the behaviours that adversely affect the quality of life in our communities. It describes a shared responsibility for challenging attitudes and acts that demean and damage. It seeks to promote and support a culture of respect for individuals and their property, both private and shared. It is concerned with the preservation of the best of North Wales and the discouragement of the worst.

  Multi-agency co-operation, involving Crime and Disorder Reduction Partnerships, is fundamental to the success of Dyna Ddigon. The ethos and principles of the scheme are becoming embedded within the Force. Operational officers are engaging with communities to reduce the fear and causes of crime.

  The key elements of the initiative are:

—  Informed, locally driven enforcement.

—  Enabling officers to act, with support.

—  Use of appropriate, innovative and proportional methods—discretion has not been removed.

—  It is a long-term approach.

—  There must be joint ownership of local issues.

—  There will be an audit of results, to assess the level of success of the imitative.

DYNA DDIGON—PROJECT BOARD

  From the outset, a steering group of key officers and members of police support staff was formed, under the leadership of the Deputy Chief Constable. This group performed the initial development work of the initiative. After a period of further development, the dedicated Project Board that has emerged now meets on a monthly basis. It contains the following members:

  The Project Board oversees the continued implementation and development of the Dyna Ddigon initiative. The scope of the Board includes the full "tool kit" of measures the force is able to employ to tackle anti-social behaviour, as well as important issues that are both directly related to the imitative and ancillary to it.

  A senior officer from British Transport Police attends each meeting, as North Wales Police and BTP are anxious to enhance an already close working relationship.

DYNA DDIGON—PROGRESSIVE IMPLEMENTATION

  Upon the conception of the Dyna Ddigon imitative, each of the three Territorial Divisions were required to nominate one appropriate "pilot" site for implementation purposes.

  The three areas first chosen were Peblig Ward (Caernarfon), Kinmel Bay and Redhall Estate (Deeside). They were nominated as analysis of local crime and disorder incidents revealed them to be problematic, there was public appetite for dynamic police action, and the Communities First scheme was either operating in the area, or adjacent to it. Media launches were held simultaneously in each site, on the 31 July 2003, with extremely positive publicity being generated from the outset.

  The realisation that the force was embarked upon a significant scheme to deal successfully with anti-social behaviour meant that demand for an expanded number of sites was experienced almost immediately. A decision was made at senior level to accede to local requests for inclusion in the initiative. This meant that on the 22 September 2003, following further analysis, additional sites were commenced in Holyhead Town, Colwyn Bay, Bryn Offa and Hightown (Wrexham).

  Consolidation of these sites, combined with the evolution of a structured performance management process and usage of new legislation, meant that further demands for inclusion were resisted. Notwithstanding this, officers were still required to deal effectively with anti-social behaviour throughout the entire force area—"best practice" was simply being established in the pilot sites, as part of a long-term process to achieve a positive cultural change.

  On the 1 April 2004, additional sites were introduced:

—  Llangefni.

—  Bangor.

—  Pwllheli.

—  Barmouth.

—  Llandudno.

—  Prestatyn.

—  Denbigh.

—  Rhostyllen.

—  Chirk.

—  Bryn Gwalia (Mold).

—  Coleshill and Castle (Flint).

  They have been followed by Pentrefoelas on the 1 May and Porthmadog on the 1 August 2004. The imminent introduction of Dyna Ddigon into the Sealand Manor Estate means that there will be a total of 21 sites operating across the North Wales Police area.

  Dyna Ddigon is a continued commitment by North Wales Police to work with partner agencies. The primary organisations with whom we work (essentially, our CDRP partners) are depicted below. It is vital to remember that local consultation and problem-solving are the very essence of the initiative in achieving lasting solutions to crime and disorder problems.

  The criteria for Dyna Ddigon site inclusion:

  There must be a definite need for the initiative to be commenced in an area. This need is established through local analysis and consultation. There must be agreement between the police, partners and the local community that the initiative should be introduced (there may be local issues which may prohibit or delay this). Planning as to how problem-solving activity will be performed in partnership must occur, with all identified agencies and organisations making a commitment to it.

  An example action plan is featured overleaf.

HOLYHEAD "DYNA DDIGON" ACTION PLAN

  Overall Mission Statement—"To improve the quality of life for people who visit, work and live in Holyhead Town Centre"

Objective	Actions	Performance Indicators	Timescales	Responsible Organisation
Objective One To reduce the problem of anti-social drinking of alcohol in public within the town centre	To introduce an order pursuant to Section 13 of the Criminal Justice Act 2001 designating the town centre as an "alcohol free zone"	Number of complaints received. Number of prosecutions once the Order has been implemented. Frequency of anti-social drinking in St. Cybl's churchyard	To introduce the Order by 16.12.03	Lead—Isle of Anglesey County Council. Support—Police
Objective Two To tackle the problem of persistent shoplifters in Holyhead town centre	To rigorously pursue post conviction ASBOs against persistent shoplifters. To establish an effective Chamber of Trade for Holyhead. To further develop the town centre "Shopwatch" scheme.	Number of recorded shoplifting offences for Holyhead town centre. Percentage of detections for shoplifting offences in the town centre.	To be reviewed 31.3.04	Police. Hollyhead Crime & Disorder Sub-Committee. Isle of Anglesey County Council
Objective Three To tackle the problem of violent crime in Holyhead town centre	To upgrade the current town centre CCTV system which is now seven years old. To further develop the Holyhead Pubwatch Scheme.	Number of violent crime offences for Holyhead town centre. Percentage of detections for violent crime in the town centre. Number of Pubwatch bans.	To be reviewed 31.3.04.	Isle of Anglesey Council (Lead—Community Safety Co-ordinator). Holyhead Pubwatch.
Objective Four To improve the appearance of the town centre by reducing the blight caused by fly posting and graffiti.	To carry out enforcement in respect of illegal fly posting. To ensure a swift response to cleaning sites subject of graffiti.	Number of prosecutions undertaken. Photographs of town centre before and after the campaign.	To be reviewed 31.3.04.	Isle of Anglesey County Council (Lead—Planning Department). Isle of Anglesey County Council (Lead—Community Safety Co-ordinator).
Objective Five To reduce the amount of damage and anti-social heavier caused in the town centre.	To establish an ASBO database of offenders. To carry out truancy sweeps. To carry out tests purchases at off-licences for underage sales.	Number of complaints of anti-social behaviour. Number of offences of criminal damage committed by juveniles.	To be reviewed 31.3.04.	Police. Isle of Anglesey County Council—Education Department. Isle of Anglesey County Council—Trading Standards Department
Objective Six To promote public reassurance in the town centre through increased patrols	To bid for an additional CBM for Holyhead Town Centre. To increase the number of police patrols. To introduce Community Wardens.	Survey to be conducted amongst shoppers and shopkeepers.	To be reviewed 31.3.04.	Police. Holyhead Crime & Disorder Sub-Committee

DYNA DDIGON—IMPLEMENTATION AND WHAT WE ARE LOOKING FOR

  There are many different components to Dyna Ddigon. Guidance for local supervisors has been produced that specifies the desired practice to be adopted, under various themes:

Analysis of local problems

  Does the Division undertake systematic analysis of disproportionate crime, disorder, anti-social behaviour or victimisation? Where disproportionality is identified, how is this addressed through resource deployment?

  What we are looking for:

—  Targeting of key offenders and dissemination of information.

—  Information sharing with partner agencies.

—  Use of local analysis and consultation to identify problem areas.

—  Community Safety Department input on local working. Use of anti-social behaviour (ASB) databases—RMS.

Awareness of local objectives

  Do objectives on crime and disorder reduction cascade rationally from DHQs to local level?

—  Knowledge amongst officers of local priorities.

—  Evidence of engagement in targeting key individuals.

—  Evidence of any positive impact upon local levels of crime and disorder based on ward-level analysis.

—  Consistency between national/force/Basic Command Unit (BCU) targets in relation to CDRP priorities.

Intelligence based patrols and the NIM

  Are patrols intelligence-driven; in particular, are areas of disproportionate levels of anti-social behaviour/disorder identified and policed appropriately? Is NIM used to pursue reassurance objectives? Does the Division have a systematic approach to integrating community intelligence and criminal intelligence?

—  A patrol strategy that incorporates problem-solving under the National Intelligence Model (NIM) and meets local policing needs.

—  Significant use of local analysis and consultation to identify problem areas and support community cohesion.

—  Staff aware of the NIM and the contribution they should be making.

Effectiveness of patrol

  How are visibility, accessibility, reassurance and the effectiveness of patrol evidenced?

—  The use of the British Crime Survey and other local data to gauge public satisfaction, confidence, fear of crime, etc (by ethnicity).

—  Satisfaction with police visibility and accessibility being measured, with the satisfaction of ethnic and other minority groups addressed.

—  Existence of specific sustainable policing packages, eg POP files directing patrols, and maintenance of same with accompanying supervisory intervention.

Improving patrol and knowledge of responsibilities

  What efforts are made to ensure response staff are assigned to patrol pilot areas? (ie, in a community policing rather than purely reactive role?) Do response officers have an awareness of their responsibilities to aid implementation of the initiative, thereby creating a climate where ASB is unacceptable and communities are reassured.

—  Evidence that response officers and those from OSD are engaged in robust enforcement activity when patrolling pilot areas.

—  Awareness amongst officers that they are expected to undertake patrols in pilot areas whenever possible. Participation in POP work.

—  Evidence that BCUs have identified the range of customer needs and are taking steps to respond to those needs, including the needs of minority groups.

CBM awareness

  Does the Community Beat Manager understand the purposes and aims of his/her post?

—  Evidence of requirements to provide public reassurance through a visible police presence, focussing on incidents of crime and disorder and addressing community safety issues by acting as a focal point for partnership working.

—  Evidence that the officer(s) understand this is to be achieved through the North Wales style of Problem Orientated Policing and partnership working.

CBM role engagement

—  Is the Community Beat Manager able to successfully engage in his/her role?

—  Evidence that a Beat Action Plan has been produced and agreed by the district Inspector.

—  Development of a Beat Profile located on the Force Intranet and regularly updated.

—  Knowledge of active criminals within area of responsibility.

—  Ability to work with a minimum of supervision. Focussed intelligence based patrols.

—  Awareness of crime prevention techniques.

—  Attendance of three day Beat Manager's training programme.

—  Local community needs—ability to converse through the mediums of English and Welsh.

—  Knowledge of diverse community in beat area.

—  Establishment and maintenance of relationships with key partners, eg local authorities, locally elected councillors, principle authority and community councillors, family of key relevant workers within their beat.

—  Evidence the CBM has signed a career planning agreement. Length of time in post.

CBM support

  Is the Community Beat Manager receiving meaningful support from supervisors and colleagues?

—  Evidence of liaison with other officers and colleagues to aid the development of community intelligence and assist in the identification of crime and anti-social trends for prevention and detection purposes, eg support from Divisional Diversity Officer and Anti-Social Behaviour Co-ordinator.

—  The CBM is being used to provide response cover in an appropriate way and such abstractions are well managed.

—  Evidence that support is provided by supervisors when required. Advice and assistance should be freely available. Evidence that autonomous working is supported and finances to assist in community schemes is provided as appropriate.

—  Provision of equipment to function efficiently, eg IT, phones.

Divisional engagement in Dyna Ddigon activities

  To what extent is the Division engaging in dedicated operations and activities under the Dyna Ddigon banner, to deal with anti-social behaviour? Are other Divisions (ie OSD and CSD) providing assistance when required? Have partnership interventions (pre-enforcement) through multi-agency problem solving agreements been developed?

—  Engagement with partners in community clear ups under Operation Scrub-It. Local protocols to ensure racist and hate graffiti is removed within 24 hours and dissemination of intelligence to BCU/Diversity Officers. Use of Graffiti Busters.

—  Assessment and development of alley gating schemes under Operation Gate-It. Evidence of exploration of an expansion in funding opportunities and partnership working in liaison with HQ.

—  Development of local procedures to ensure the swift removal of abandoned and scrap vehicles, under Operation Scrap-It.

—  Targeting of inappropriate driving in conjunction with OSD, under Operation Lifeboat.

—  Dedicated patrols of vulnerable public areas, eg town centres, schools, railway and bus stations, particularly at night. Evidence of liaison with BTP and local security. Use of mobile CCTV facilities.

—  Licensed premises—disorder identification and enforcement of licensing offences. Pub Watch. Proof of Age Scheme. Objections to license renewal. Engagement with door staff including possibility of accreditation. Work with Trading Standards to target sales to under-age persons. Use of PNDs for relevant offences. Evidence of local authority liaison to consider areas as alcohol free zones.

—  Evidence of assessments of environmental effects upon crime and disorder. Partnership working to "design out crime", eg use of lighting and CCTV. Provision of youth shelters.

—  Local agreements to provide diversionary facilities for young people, particularly during holiday periods. Sports facilities availability, including free/reduced charge use. Provision of other contemporary facilities, such as skate board parks.

—  Direct engagement with local schools and youth organisations.

—  Link work with Communities First where applicable, to ensure commonality in approach.

—  Development of innovation and use of best practice culled from elsewhere, eg yellow card schemes, Dispersal Notices, ASBO leaflets, Ring Master, Crime Stoppers, and the Mediation North Wales Service.

—  Use of civil legislation to complement enforcement against activities such as begging.

—  Reassurance activity towards the elderly and enhanced awareness on the part of young people, eg Through Other's Eyes Scheme, and involvement of support organisations such as Neighbourhood Watch and Victim Support Scheme.

—  Specific projects dealing with community awareness of problem behaviour and the sanctions that can be taken against offenders, eg throwing fireworks and work with Environmental Health to deal with noisy nuisance neighbours.

—  Evidence that requested assistance is provided by OSD and CSD, eg vehicle based operations and surveillance work—there should be no organisational resistance to obtaining RIPAs in appropriate circumstances to support ASBOs etc.

THIS LIST IS NOT EXHAUSTIVE

Clarity of policy on interventions

  Is there a clear policy on ASBOs, ABCs and other similar interventions? How many have been applied for and granted in the last 12 months? What support is available—eg have Divisions formulated local protocols with CPS? What level of co-ordination exists with HQ?

—  Evidence that BCUs regard ASBOs as a useful tool in delivering CDRP objectives. Number of Yellow Cards submitted to Divisional ASB Co-ordinators. BCU use of databases to record ASB information.

—  Awareness of new powers for local authorities and RSLs contained in the Anti-Social Behaviour Bill.

—  Evidence of consultation with CPS regarding any difficulties encountered in the ASBO process. Local protocol development.

—  Evidence of use of ABCs and other interventions, such as parenting contracts and orders.

—  Evidence that Divisions are considering individual cases for inclusion in the ASBO publication scheme.

—  Evidence of engagement with partners involved in the ASBO process, including assisting local authorities in obtaining ASBOs.

Use of Penalty Notices for Disorder

  To what extent is the Division utilising Penalty Notices for Disorder?

—  Evidence of training completion by designated officers (uniformed, up to Inspector level) and impetus to do so being maintained by DCTs.

—  Evidence of use amongst patrolling officers as an enforcement tool. The Number of PNDs issued per Division and "on the spot".

—  Expectation that PNDs are used as a default means of disposal of arrestees from custody when appropriate.

The extended police family

  Is the Division using new powers in respect of the extended police family to strengthen the patrol function? How many PCSOs have/will be recruited and does their deployment link directly to reassurance objectives? Are Community Wardens being considered and what level of progress towards accreditation is being made?

—  Use of the Crime Fighting Fund

—  Partnerships with councils and private security agencies for, eg patrols.

—  Considered deployment policy for PCSOs—ensuring they have been provided with police powers.

—  Assessments of Warden Schemes and suitability for participation in accreditation.

—  Divisional consideration of PCSOs during applicable funding bids.

Divisional consultation

  Does the Division perform its own local consultation involving DCT members and partners to review implementation of Dyna Ddigon and explore new ways forward? How do leaders ensure that support and development are provided which encourage staff to focus on challenging anti-social behaviour and how are policies marketed/communicated?

—  Assessment of standard of local consultation through supply of relevant notes/minutes to HQ.

—  Evidence that actions arrived at are dealt with and local PIs have been developed.

—  Evidence of complementary work, eg exploration of funding opportunities external to the organisation. Liaison with Partnership Funding Manager/PACT.

Innovation in approach

  Is there evidence of innovative approaches, especially in relation to "hard to reach" elements of communities?

—  Good channels of communication and dialogue with community umbrella organisations, opening doors to otherwise excluded groups and individuals.

—  Divisional liaison with Safe Communities Dept to ensure a good cross-section of the community is considered.

Communication with young people

  What channels exist to communicate with young people?

—  Evidence of communication and dialogue with young people through schools and local youth organisations. Schools Liaison Officer input.

—  Evidence of positive interaction with groups of young people in vulnerable areas, with assessments of their requirements.

—  Introduction of facilities should they not exist, in conjunction with partner agencies. Development of existing facilities.

—  Engagement with other key organisations eg the Prince's Trust Cymru & Duke of Edinburgh Award Scheme.

Community consultation

  What (recent) evidence is there of decisions being influenced by consultation with users and a representative selection of residents? Is there a framework to ensure effective action is taken?

—  Evidence of the provision of a citizen focused service to the public, especially victims and witnesses, which inspires confidence in the police.

—  Evidence of local community contact, eg community councils and residents' associations, Divisional Diversity Group, retained on Divisional databases, detailing action points stemming from such meetings and how any issues arising have been addressed.

—  Formulation of sustainable local action plans, using the SARA/POP principle, devised through community consultation and assigning ownership of actions to the police and partner organisations. Plans to be made publicly available and disseminated to partners for agreement. Progress to be documented

—  Evidence of scoping exercises having been performed for new initiatives.

Community influence on policy

  Are there formal and informal means for the community to influence policing policy, especially tackling anti-social behaviour and disorder, in accordance with the national theme of community engagement and civil renewal?

—  Evidence of decisive engagement with communities to devise local action plans and further community cohesiveness.

—  Persistence in approach and creativity when there is an unwillingness to engage with police.

—  Involvement of partnership agencies in community consultation, demonstrating ownership is shared.

Drug abuse strategy

  Are objectives on tackling drug abuse integrated within local enforcement strategies?

—  Evidence of efforts to bring offenders for Class "A" drugs supply to justice.

—  Identification of suspects and venues—awareness and use of legislation to close "crack houses".

—  Consolidation of work with Substance Misuse Action Teams (SMATS), in accordance CDRP objectives.

Media and marketing.

  How is the Division using a media and marketing strategy to promote reassurance? Is media impact monitored? How does the Division strive to reach the community, in particular ethnic and other minority groups? What consideration is given to maintaining and enhancing the positive promotion of activity under Dyna Ddigon?

—  Communications strategy that uses internal and external media to promote reassurance and help manage public expectation and demand.

—  A positive media profile.

—  Press office engagement and that it is fit for its purpose.

—  Visibility in community press and in particular local ethnic and other minority press.

—  Awareness on the part of officers that positive examples of community working are needed.

  The Deputy Chief Constable visits to the pilot sites on a rotational basis, where he meets with a member of the Divisional Command Team, the Area Inspector, and Community Beat Managers. This is to review their performance and assess the level of commitment being exhibited not only by the Police, but also partner agencies, in dealing with anti-social behaviour.

  The DCC conducts patrols in the pilot sites to speak with local residents and community leaders, to establish how effective Dyna Ddigon actually is. This "first-hand" assessment process is about to be augmented by visits to each local Community Council for the sites, to obtain their views.

DYNA DDIGON—THE PEOPLE

Community Beat Managers

  The Chief Constable has introduced the Community Beat Manager (CBM) concept over the past three years. Its aim is to assist the Force deliver its vision of a safer North Wales by reassuring the public through high visibility policing and making officers more accessible to the public using mobile police stations and innovative technology.

  The purpose of a Community Beat Manager is to increase public reassurance within any given beat area by providing:

—  A highly visible police presence.

—  A focus upon reducing incidents of crime and disorder.

—  A means of addressing community safety issues by acting as a focal point for partnership working.

  The officers achieve this through the adoption of the North Wales style of Problem Oriented Policing and Partnership working.

  On the 31 March 2004, 164 Community Beat Managers were in post throughout North Wales communities.

Schools Liaison Initiative

  In December 2001 following consultation with local Directors of Education, Gwent Police appointed an experienced secondary school teacher to the force [on a two year secondment] as a schools liaison co-ordinator. Following her appointment a new core programme was developed for children from infant level in key stage 1, to the age of 16 in key stage four. The programme replaced previous PSE and was delivered by newly appointed police school liaison officers.

  On 18 December 2002 all four Chief Constables of the Welsh forces met and agreed to adopt the Gwent school liaison programme throughout the whole of Wales as part of the education aspect of Operation Tarian.

  The school liaison co-ordinator provides a focal point for: primary and secondary schools in the force area, LEAs, territorial police divisions and the officers going into schools. The programme has been agreed by partners and covers three crucial topics, Drugs and Substance Misuse, Social Behaviour and Community and Safety.

  A request for the funding of the school liaison co-ordinators post, the schools liaison police officers posts (16 for North Wales) and associated materials for each of the four Welsh forces was approved on a 50% part funded basis for three years. A force working group has been formed which includes representatives from the three territorial divisions along with HQ community safety and the force-funding officer to oversee the implementation of the project. All 16 Schools Liaison Officers are now in-post.

Divisional Anti-Social Behaviour Co-ordinators

  Three Divisional Anti-Social Behaviour Co-ordinators are in post, one in each Territorial Division. Their responsibility is to monitor incidents of anti-social behaviour and suggest proactive activity to eradicate it. They liase with local groups and agencies. They are also in place to assist officers in obtaining pre and post conviction Anti-Social Behaviour Orders, as well as being involved in the process of obtaining Acceptable Behaviour Contracts (ABCs).

  The Co-ordinators collate information from patrolling officers who provide notification of instances of anti-social behaviour. These occurrences are then entered onto a forcewide database and a diversion process is implemented. If this multi-tiered process fails, an application is then made for an ASBO before conviction.

Police Community Support Officers

  The three Territorial Divisions are currently introducing additional numbers of Police Community Support Officers:

Central Division

—  There are currently eight PCSO posts in Rhyl. Six of the posts are filled, with two vacancies now having arisen as one has now joined as a police officer, whilst the other has found alternative employment.

—  Eight PCSO posts have been advertised for the Colwyn Bay area.

—  Four part-time PCSO posts have been advertised for the Llanrwst and Conwy areas.

—  There are no other bids in at present.

Eastern Division

—  There are presently no current PCSO posts within the Division; however, 12 have now been advertised for deployment across the Divisional area.

—  A bid for 16 more PCSO posts has been submitted—the decision on which is pending.

Western Division

—  There are presently no current PCSO posts within the Division. Ten have been advertised for deployment across the Divisional area.

—  A bid for eight more PCSOs has been submitted—again, a decision is pending.

PCSO totals for North Wales Police:

Current Posts:	8

Advertised Posts	32 (includes four part-time posts = two full time posts)
Bids in	24
Total	64

Accredited Wardens (CSAS)

  North Wales Police was one of the first Police forces in England and Wales to establish a Community Safety Accreditation Scheme (CSAS) and is committed at Chief Officer Level to maximising the positive impact of new legislation.

  The force has provided guidance to a number of other forces looking to establish their own CSAS.

Wrexham

  In April 2004, one manager and three wardens commenced employment in Wrexham. A further 11 posts are being advertised following reported enthusiastic support in the locality. The wardens have been deployed on high-profile patrols and problem solving initiatives to tackle anti-social behaviour. They have been accredited with the full range of powers available. Training was delivered locally, with support from Eastern Division's staff and partner agencies.

  There is regular interaction with North Wales Police. A daily police briefing sheet is prepared by the Community Beat Managers' Sergeant. The wardens are performing follow-up work in relation to incidents that do not require police attendance. Reports of anti-social behaviour are sent to the police ASB co-ordinator.

  There is also good interagency work being performed with the local Fire Service and Youth Offending Team. Joint funding initiatives are being pursued to assist with youth diversion schemes and the like. Various powers being gradually introduced—the wardens are currently using the power to require a person's name and address, and arrange for the removal of abandoned vehicles. The power to confiscate tobacco and alcohol will be introduced soon.

  There has been excellent feedback from residents, police and the local housing office. Awareness raising took place at a local Asda store alongside police officers, which resulted in calls for increased numbers of wardens for those areas not yet covered.

Flintshire

  The Local Authority is currently recruiting one Warden Supervisor, one Assistant Supervisor, and five wardens (three full-time and two part-time on a 22 hour week) augmented by one clerical assistant.

  The overall purpose of the wardens is to "Reduce the incidence of anti-social behaviour and crime and disorder; Promote community safety and reduce fear of crime, strengthen communication between residents and local service providers". An implementation plan has been created.

Denbighshire

  The Local Authority is currently implementing its traffic warden scheme; however meetings have been held with North Wales Police regarding further development to include accreditation. Initial indications are that accreditation will be sought during the current financial year, but this has not been confirmed.

Gwynedd

  A presentation has been given to the Community Safety Partnership attended by senior Command Team officers. There is no reported outcome at the time of writing..

Ynys Mon and Conwy:

  Approaches have been made by North Wales Police, but neither Local Authority is able to commit to the scheme at present. This is understood to be mainly for financial reasons.

  Community Safety Accreditation Schemes should be considered as an integral part of local enforcement and an important part of the approach to tackling the demand for community reassurance and a visible presence. The elements of this approach should not be viewed in isolation but seen as complementary to each other and contributing to a multi-agency team effort. It should form part of the overall approach to crime reduction and be driven by a locally identified need.

Special Constables

  Special Constables provide valuable front line policing in our communities. The role of the Special Constable is to assist and support the regular police officers in meeting local policing needs. They are an important part of the force and have a vital role to play in the future policing of North Wales. There are currently 40 Special Constables serving in North Wales Police. We hope to increase that figure by at least 25 during this year.

Volunteer Community Support Officers

  North Wales Police is currently developing a Police Volunteer scheme, the benefits of which can be significant. The utilisation of volunteers will allow the force to provide a service that would not otherwise be available, as well as enabling the force to tap into a vast pool of local knowledge, skills and experience. The use of volunteers will also assist in further engagement with the local community in the policing their neighbourhood.

Youth Offending Teams

  North Wales has four Youth offending teams, namely Wrexham and Flintshire within Eastern Division, Conwy Denbighshire covering Central Division, and Gwynedd Mon covering Western Division.

  Each Youth Offending Team has its own structure and staff, which are there to achieve the key performance indicators established by the Youth Justice Board.

  The individual Youth Offending Teams have their own Steering Groups which oversee and direct the Youth Offending Team.

  Targets are set by the Youth justice Board which need to be reached by the Youth Offending Team.

  Youth Offending Teams are linked to CDRPs and the Local Criminal Justice Board.

  Plans have to be submitted by the individual YOTs to the YJB for the year ahead , giving their plans and intentions.

  A comprehensive scheme of quality assurance is also underway, called EPQA: Effective Practise and Quality Assurance, covering the main service areas of YOTs.

  There is a Wales Manager for the Youth Justice Board who is based in Cardiff with specific responsibilities for Wales. A YJB Board Member has a specific responsibility for Welsh issues.

  The Youth Offending Teams follow similar structures, with variation dependent on local needs and issues. Eg Wrexham YOT has a Strategic Manager and then three Operational Managers compared to the one Operational Manager in Flintshire. Some will have more Senior Practitioners.

WORKING IN PARTNERSHIP—TURNING COMMUNITIES AROUND

  Local consultation is on-going through many different working groups and forums. We consult with the Courts, CPS, Local Authorities, Youth Offending Teams, Housing Associations, Social Services, Education Services, Environmental Health, Victim Support, Tenants and Residents Associations, Probation Service, Town Centre Managers and Youth Workers, plus many more relevant parties to aid the introduction of local initiatives.

  An example of this is the Holway Estate, Holywell in Flintshire, where residents have engaged with their local Police, MP and Social Inclusion Team through the Tenants and Residents Association, to participate in the formulation of an Action Plan to reduce the problems experienced in the area (primarily high levels of youth and adult anti-social behaviour).

  The local Police Inspector has worked with the community to develop an Action Group that can devise local Actions, Performance Indicators and Targets, as well as allocating and engaging the organisations that are to be responsible for alleviating certain problems.

  The Holway Action Group meets every quarter to review progress and evaluate the work being done. Over the three or so years the group has been working together, juvenile anti-social behaviour has been reduced by 72%. The work of the group has been complemented and sustained by a community based approach to health issues through a Sustainable Health Action Research Programme.

  Consequently, the community has been the main force for change. For example, every week up to 20 youngsters join adults to clean the estate, picking up litter and rubbish, thereby adding a sense of ownership and community spirit.

  A very recent example of how energy is being used more creatively to tackle social exclusion and disengagement is the summer hanging basket competition that was organised for minimal cost in conjunction with a local horticultural college. Thirty baskets were made by residents at a workshop held in the Community Centre, with 10 being made for the older people on the estate who were unable to make their own. The owners of the winning baskets were awarded a small prize, the key point being that none of the baskets were damaged or stolen, and the estate has begun to develop an appearance of being "looked after". A repeat, larger event is planned for next year.

  The success of these local initiatives has prompted the group to develop a more ambitious action plan to tackle Assaults, Domestic Violence and Residential Burglary.

  The Actions arrived at in respect of anti-social behaviour include tackling under age drinking and the purchase of alcohol, a reduction in the number of void properties, prompt investigation of nuisance neighbour problems and implementation of enforcement action, prevention of access to waste areas, recording of details of those involved in anti-social behaviour, means of making the area more attractive, maintenance of local youth projects, provision of shelter for young people including engaging them in any design process, positive marketing, assessment of CCTV effectiveness, reduction in abandoned and badly driven vehicles, and improved lighting in vulnerable areas.

  Results have been remarkable. Residents regularly refer to the activities of those involved in the Holway Action Group at other public meetings, stating that the work of the group has contributed significantly to improving their quality of life. There is now tangible evidence of civic pride in an area that has previously suffered from a bad reputation and improvements are continuing.

  Such has been the success of the Holway Action Group, that North Wales Police are using it as a model of the community, police and other agencies working together to achieve worthwhile benefits. The police are using the principles established by the workings of the HAG to help other areas in North Wales.

  Partner agencies involved in the area's achievements are the Holway Tenants and Residents Association, Ground Work Wales, SHARP project co-ordinator, Flintshire Neighbourhood Watch, Flintshire Victim Support Scheme, Police, Clwyd Alyn Housing, Flintshire County Council Housing, Tai Hafan Housing Association, Holywell Neighbourhoods Communities First co-ordinator, Youth Service and Trading Standards.

  It is this type of evolutionary local consultative approach that the Force is expanding upon throughout all communities.

DYNA DDIGON—THE NATIONAL INTELLIGENCE MODEL

  The National Intelligence Model (NIM) has made changes to the way police officers, police community support officers and police staff perform their roles.

  The NIM was launched by the National Criminal Intelligence Service (NCIS) and adopted by the Association of Chief Police Officers (ACPO) in 2000. This year's National Policing Plan has required forces to adopt the NIM.

  It allows for information to be collected, researched and analysed in a structured way. It offers the opportunity to have an understanding of the "big picture" of local problems. This means that we can create strategies that will reduce crime and improve the quality of life in our communities.

  North Wales Police is using the NIM for all aspects of policing work, including:

—  tackling anti-social behaviour;

—  improving community cohesion;

—  identifying crime hot-spots;

—  targeting persistent offenders;

—  identifying a series of crimes or incidents;

—  targeting criminals; and

—  Improving road safety.

  It is apparent that the NIM links very clearly into the key priorities of this year's policing plan. This gives us an excellent opportunity to use this tool as an effective way of tackling the priorities.

  Recently, the force has improved upon its analysis of anti-social behaviour and brought it into line with other areas of control strategies.

  Central and Eastern Division have ensured that appropriately skilled analysts have the time to analyse ASB effectively. Western Division currently relies on the performance analyst to do this.

  A standard process with regard to the analysis of anti-social behaviour incidents from the command and control system has been adopted across the force. This will be made more effective by the impending force-wide implementation new IT systems (RMS and i2).

  All Divisions have implemented tasking and co-ordination processes that include partnership agencies to address anti-social behaviour, known as Joint Action Groups.

DYNA DDIGON—EVALUATING OUR PERFORMANCE

  From the outset, an embryonic performance management system was implemented, with the emphasis on the ASBO process and usage of Penalty Notices for Disorder. Due to the lack of specific guidance stemming from the Home Office on how anti-social behaviour should be quantified (only recently addressed in part by the document entitled "Defining and Measuring ASB"), North Wales Police has developed its own system, which will undergo further refinement in due course.

  At present, the force collates data on the following:

  Number of submissions of Yellow Cards (previously juvenile nuisance forms).

  Number of letters to offenders sent (those who are involved in anti-social behaviour).

  Number of Acceptable Behaviour Contracts signed.

  Number of Anti-social Behaviour Orders (ASBOs) obtained.

  Number of Criminal Anti-social Behaviour Orders (CrASBOs) obtained.

  Number of ASBO applications submitted.

  Number of ASBO applications that have failed.

  Number of ASBO breaches.

  Overall total number of ASBOs obtained as a force.

  Number of Penalty Notices for Disorder issued to adults in custody.

  Number of Penalty Notices for Disorder issued to adults elsewhere than in custody.

  Number of Penalty Notices for Disorder issued to juveniles in custody.

  Number of Penalty Notices for Disorder issued to juveniles elsewhere than in custody.

  Number of Penalty Notices for Disorder issued to juveniles, as a percentage of the overall total issued.

  Total PNDs issued for the fiscal year to date.

  Total PNDs issued since the scheme commenced in September 2002.

  Number of warnings issued under Section 59 of the Police Reform Act for the fiscal year to date.

  Number of vehicles seized under Section 59 of the Police Reform Act for the fiscal year to date.

  Performance in each of the above areas is described later in this document.

  In addition to the above, a system of evaluating anti-social behaviour crimes and incidents has been introduced, applicable to each of the Dyna Ddigon areas.

  The level of "all crimes" for an area features within the force monthly performance bulletin, with "anti-social crimes" being compared against that level. "Anti-social crimes" were defined by the force as being those that can have an adverse effect upon the wider community, and not just specific victims themselves. They constitute low level air weapon offences, drug possession and supply offences, offensive weapon possession offences, low value criminal damage and other matters. It should be noted that although the Force is specifying offences in this way, the acknowledged level of seriousness of their effects on victims has in no way been diluted.

  This is broadly similar to the signal crimes concept used by the National Reassurance Policing Programme; however rather than allow the community to define signal offences, the force has done this on a far wider basis. This system will be revised as the force is about to commence its participation in the reassurance programme.

  Analysis shows that "anti-social crime" constitutes approximately one third of the overall total of recorded offences. It is logical to assume that by making inroads into levels of `anti-social offences', significant reductions in overall crime levels and an increase in the public perception of safety are achievable.

Example:  Peblig Ward (as of September 2004)

Caernarfon—Peblig Ward	All Crime Recorded	Progress	Anti-social Crime Recorded	Progress
Month	17		6
YTD 2004/05	97	-33.6%	35	-52.1 per cent
YTD 2003/04	146		73

Peblig Ward (as of September 2004)

  The above graph represents the reductions in "all crime" and "anti-social crime" levels that have been achieved during the last 12 months.

  All incidents of "anti-social behaviour" are plotted on a month by month basis for each site. The incident closing codes for anti-social behaviour are used to classify incidents; however the force adoption of the national incident recording standard will improve the level of accuracy of the information and level of efficiency involved in compiling it.

Peblig Ward (as of September 2004)

Caernarfon Peblig Ward	Anti-social Behaviour Incidents	Progress
Month	10
Current three month	22	-42.1%
Previous three month	38

  The representation of anti-social behaviour incidents is achieved by use a rolling 3month comparison due to the implementation of new force incident recording systems in May 2003.

Anti-Social Behaviour Count.

  On 10 September 2003 the Force participated in the Home Office Anti-Social Behaviour national count.

  The results obtained indicated that during a 24 hour period, North Wales Police received a total of 211 reported incidents of anti-social behaviour, using Home Office incident type assessment criteria. The distribution of the incidents across the Force area was as follows:

—  Eastern Division—75 incidents (or 35.5%).

—  Central Division—79 incidents (or 37.5%).

—  Western Division—57 incidents (or 27%).

  At the launch of the "Together" Action Plan, the Government made reference to the one day count, to highlight the problem of anti-social behaviour in England and Wales. 66,107 reports of anti-social behaviour were received during the 24 hour period, with an estimated cost to agencies of £13,500 per day. The estimated cost per year is £3.375 billion.

Type of anti-social behaviour	Categories used by NWP	Total number of reports received
Nuisance behaviour/Anti-Social behaviour	ASB	51
Hoax calls	Hoax,Nusiance Phone Calls	2
Drug/substance misuse & drug dealing	Drug Offences	4
A nimal relatel dporblem,s	Animals, Stray Animal, Stray Dog, Dangerous Dog	12
Street drinking; begging	Drunk, Drunk and Disorderly	3
Intimadation/harassment	Harassment	14
Prostitution; kerb crawling; sexual acts		—
Criminal damage/vandalism	Criminal Damage	23
Abandoned vehicles	Abandoned Vehicles	18
Litter/rubbish	Litter	—
Vehicle related nuisance & inappropriate vehicle use	M/Veh Licence, Driving Alcohol, Driving Ins Off, Parking, Obstruction Road, making off, interfere M/V, Dangerous/Careless driving, Disqualified driver, Susp. vehicle	58
Noise	Noisy party	4
Rowdy behaviour/Disorder	Disorder	22
Total		211

  The count was the first occasion that the behaviours constituting "anti-social behaviour" were defined by the Home Office.

  Using this information, the force embarked upon a community survey prior to the introduction of Dyna Ddigon into several sites on 22 September 2003. The data in respect of the Colwyn Bay area showed that the matters of primary concern (ie the things that affected people the most) were as follows:

Incident	Affected
Litter	80%
Street drinking/begging	78%
Rowdy behaviour	75%
Noise	71%
Nuisance behaviour	70%
Vehicle related nuisance	61%
Vandalism	61%
Drugs	61%
Abandoned vehicles	52%
Animals	38%
Intimidation/harassment	33%
Hoax calls	19%
Sex related problems	18%

  This survey has aided the implementation of Dyna Ddigon and has reinforced the need for partnership working.

  The Home Office Anti-social Behaviour Unit had advised forces that they would not be provided with specific guidance on the methods and standards used to demonstrate force performance in tackling anti-social behaviour. Forces will be required to design their own processes for doing so. The recent publication "defining and measuring anti-social behaviour (Home Office)" now provides some general guidance that will be incorporated into our existing methods.

  As previously mentioned, the introduction of a National Standard for Incident Recording (NSIR) will define the type of activities that constitute anti-social behaviour and will enable commonality to be achieved across forces, complemented by an enhanced level of efficiency in data analysis.

  The collation methods described above relate solely to readily quantifiable data. As increased public reassurance and confidence are amongst the desired outcomes, the collation of subjective (qualitative) data is necessary. Further survey work and the provision of information from other public sector services are amongst the methods being considered to better establish force performance.

  The force will continue to forge ahead with the development of its ASB performance assessment processes, as it will not be constrained by directions from the Home Office in this area. Nevertheless, it must acknowledge supporting Home Office strategic intentions.

  The force will join with the National Reassurance Policing Programme and develop the collation of signal offence data. This might not be appropriate on a force-wide basis, as signal offences are pertinent to local issues, therefore through entities such as Joint Action Groups local signal offences could be arrived at. There is no reason why these could not be specific to "Dyna Ddigon" sites. Local consultation will need to occur to achieve this.

  The development of methods to collate information that relate to "quality of life" issues needs to continue. It is vitally important that the force establishes the effect that Dyna Ddigon is having on public reassurance and confidence.

  ASBOs, ABCs and the like are only a part of the overall intervention picture. There are a large number of sanctions and orders available, such as parenting contracts and curfew orders. There should be some exploration of the feasibility of providing information on such activities if police involvement is a requirement and they support efforts to reduce anti-social behaviour.

  An important element of our approach will be occurrence management. In essence, this will mean that if officers encounter anti-social behaviour, they will be expected to take one of the following options:

—  No further action.

—  Yellow Card.

—  Fixed Penalty.

—  Arrest (followed by full range of custody suite disposals).

  This simplified mechanism will enable (in conjunction with NIRS) incidents of anti-social behaviour to be properly identified and classified, with a quality assured policing response being provided to victims of it. Such occurrences, if dealt with appropriately, will become "detected occurrences". This will enable appropriate assessments of operational performance to be made.

Further Evaluation

  In July 2004, The National Reassurance Policing Programme implementation team carried out an inspection of the work being performed by North Wales Police. Whilst there are of course areas in which the force can demonstrate improvements, the feedback received was largely positive and has enabled the force to prepare for participation in the programme:

—  There is an exceptional level of commitment and enthusiasm amongst all those involved in the planning and delivery of local policing. This is clearly driven from the ACPO team and there was awareness of the desire for local policing at all levels.

—  Overall, visible, accessible and familiar policing is being implemented to a high degree.

—  There was evidence of innovation and creativity, but this "appeared" to be restricted to police driven initiatives.

—  The investment made and foundations built within North Wales are well suited to implementation of reassurance policing, and the additional elements that entails, should this be taken as a strategic decision.

—  The clear project planning and implementation of Dyna Ddigon was felt to be a particular strong point. A similar approach to implementation of a coherent force-wide implementation of reassurance policing is likely to bring benefits. A number of trial site forces are now engaged in a wider roll out of reassurance policing without the benefit of the considerable investment that has been achieved in North Wales.

DYNA DDIGON—USE OF THE "TOOL KIT"

  The introduction of new legislation to tackle anti-social behaviour has been welcomed. The frequency with which new powers have been provided has provided some challenges, as the force has learned to implement them successfully.

ANTI-SOCIAL BEHAVIOUR ORDERS

  Magistrates have possessed the powers to make ASBOs since 1 April 1999.

  Local authorities and Chief Officers of Police, in consultation with one another, are able to apply to a Magistrates' Court for an Order to protect the community from the actions of an individual or individuals over 10 years of age who cause harassment, alarm or distress to others not in the same household as themselves. Equivalent orders are available in the county court and in the Crown Court. The British Transport Police, local authorities and registered social landlords are also now able to apply for anti-social behaviour orders.

  Housing Action Trusts (HATs) and English county councils are added to the list of relevant authorities who can apply for an ASBO or an Order in county court proceedings. They must consult the police and local authority for the area in which the person resides or appears to reside.

  Applications by HATS are limited to applications for an order which would protect from anti-social behaviour persons who reside in or who are in the vicinity of premises provided or managed by HATs and applications by county councils are limited to applications for an order which would protect from anti-social behaviour persons within the county of the county council.

  A local authority will be able to prosecute for breach of an order where it is the relevant authority which obtained the Order or where the person subject to the order resides or appears to reside in the authority's area. The Crown Prosecution Service will retain discretion to prosecute in relation to breach of an ASBO.

  Proceedings to apply for an Order are civil, not criminal; however it has now been clarified that the standard of proof to demonstrate that an individual has engaged in acts that are anti-social is the criminal standard. The need for an ASBO is solely a decision for the court and not subject to this standard of proof. If an Order is made the defendant will be prohibited from doing any act or behaviour specified in it. The Order itself will not give the defendant a criminal record.

  A breach of an Order is a criminal offence. The prosecution must prove beyond reasonable doubt that the Order has been breached. Where a person is convicted of a breach, the courts can impose penalties of up to five years' imprisonment.

  ASBOs should be used wherever it is thought they will be a successful remedy to anti-social behaviour and where other methods may be less effective. This does not necessarily mean that other methods have to be tried first. In other words, ASBOs are not, as some have suggested, a last resort.

  The ASBO will have effect for a specified period of at least two years or indefinitely until the court makes an order discharging or varying it. It was intended that ASBOs should be targeted at criminal or sub-criminal behaviour, not minor disputes between neighbours or matters which could be dealt with effectively under other legislation.

  The types of behaviour the ASBO is intended to deal with include:

—  Noise

—  Using and selling drugs

—  Unkempt gardens (eg those which attract the dumping of goods, creating "eyesores")

—  Alcohol and solvent abuse

—  Criminal behaviour

—  Prostitution

—  Verbal abuse

—  Uncontrolled pets and animals

—  Intimidating gatherings of young people in public places

—  Harassment (including racist and homophobic incidents)

—  Damage to property (including graffiti and vandalism)

—  Intimidation

—  Nuisance from vehicles (including parking and abandonment)

—  Nuisance from business use

—  Rubbish dumping and misuse of communal areas

—  Riding/cycling on footpaths

—  Aggressive begging

  The typical process employed by North Wales Police in obtaining an ASBO is along the following lines:

  Instances of anti-social behaviour will be challenged by officers and full details of the persons involved recorded (by use of the Yellow Card Scheme). These details will be provided to an individual in each of the Territorial Divisions who has been tasked with compiling records on those who come to notice.

  A letter will be sent out to the parents or guardians of the individual involved (if a juvenile), advising them of the incident. Should the person come to notice on another occasion, a visit by the Community Beat Manager or Youth Offending Team representative will take place. If a further instance arises, then action will be taken with a view to obtaining an ASBO or utilising an ABC (Acceptable Behaviour Contract). At each stage in the process, there are attempts made to stop the offending from continuing. An "individual" progression through each stage is a matter for Divisional discretion.

CRIMINAL ANTI-SOCIAL BEHAVIOUR ORDERS (CRASBOS)

Orders made on conviction in criminal proceedings

  Criminal courts—the magistrates' court, the Crown Court and the youth court—are able to make Orders against an individual who has been convicted of a criminal offence.

  The Order on conviction is considered and made by the court after the verdict during a civil hearing. It is not part of the sentence the offender receives for the criminal offence. It be made only in addition to a sentence or a conditional discharge.

  The Order will be granted on the basis of the evidence presented to the court during the criminal proceedings and any additional evidence provided to the court after the verdict.

  The court may make an Order on conviction on its own initiative and an application for an Order is not required. Alternatively, the Order can be requested by the police or local authority, which may make representations to the court in support of the request.

  The Order on conviction is a civil order and has the same effect as an ASBO made on application—it contains prohibitions rather than penalties and is made in civil proceedings.

  It is similar to the football banning Order on conviction in that it is a civil Order made following a criminal procedure.

  If the offender is detained in custody the court may make provision for the Order on conviction to become effective on his or her release.

  It is considered much easier to obtain a CRASBO rather than an ASBO, although the force is consulting with leading practitioners to establish where blockages may lie and the way forward.

  A court may make an Order on conviction either at the request of the prosecutor or of its own volition. The court may consider evidence from the prosecution and defence when deciding whether to make an Order. Evidence not admissible in the criminal proceedings may be presented for the purpose of deciding whether to make an Order.

  The local authority where a person subject to an order resides or appears to reside is allowed to prosecute for breach of that Order.

  Automatic reporting restrictions from the order on conviction stage of a hearing against a juvenile in the youth court are removed; however the court retains discretion to apply reporting restrictions.

  Our performance:

  Force total ASBOs:

—  Prior to 31 March 2004: 35.

—  Year to date: 19.

—  Total ASBOs now obtained by North Wales Police: 54.

  Our ASBOs are broken down as follows:

—  ASBOs obtained by NWP (YTD): 3

—  CrASBOs obtained by NWP (YTD): 16.

ACCEPTABLE BEHAVIOUR CONTRACTS

  Acceptable Behaviour Contracts are an offshoot of ASBOs. They have no statutory basis. They were pioneered by Islington LBC in association with the police and Islington Community Safety Partnership and provide an alternative to legal action.

  Although the term "contract" is used, an acceptable behaviour contract is not a legally binding document.

Definition:

"An individual written agreement by a young person with a partner agency and the police not to carry on with certain identifiable acts, which could be construed as anti-social behaviour".

Appendix G Hone Office guidance on Local ASBO Protocols.

  An ABC is a written agreement between an individual who has been involved in anti-social behaviour and one or more local agencies whose role it is to prevent such behaviour.

  ABCs are most commonly used for young people but may also be used for adults. The contract is agreed and signed at a meeting between the individual and the lead agencies. Where the person whose behaviour is at issue is a child or young person, parents or guardians should be encouraged to attend.

  The contract specifies a list of anti-social acts in which the person has been involved and which they agree not to continue. Where possible the individual should be involved in drawing up the contract. This may encourage them to recognise the impact of their behaviour and take responsibility for their actions.

  Support to address the underlying causes of the behaviour should be offered in parallel to the contract. This may include diversionary activities (such as attendance at a youth project), counselling or support for the family. It is vital to ascertain which agencies are already involved, especially where the individual is aged between 10 and 17 years.

  Legal action in the form of an anti-social behaviour order or possession order (if the young person is in social housing) should be stated on the contract where this is the potential consequence of breach. The threat of legal action provides an incentive to ensure that the contract is adhered to.

  ABCs have been used to address a wide range of anti-social behaviour including:

—  Harassment of residents or passers by

—  Verbal abuse

—  Criminal damage

—  Vandalism

—  Noise nuisance

—  Writing graffiti

—  Engaging in threatening behaviour in large groups

—  Racial abuse

—  Smoking or drinking alcohol while under age

—  Substance misuse

—  Joy riding

—  Begging

—  Prostitution

—  Kerb-crawling.

  The flexible nature of ABCs allows for various agencies to take the lead according to the circumstances in each case, local practice and which agencies can have greatest impact on reducing unacceptable behaviour.

  Other agencies involved with ABCs—either as signatories on the contract or in providing support to the individual and family—are registered social landlords, social services, schools, environmental health and health services. This is not a prescriptive list.

  Our performance:

—  Force total ABCs signed (fiscal year 2003-04): 28.

—  Force total ABCs signed (current fiscal YTD): 37.

PENALTY NOTICES FOR DISORDER

  On 12 August 2002 police in three force areas began piloting new powers to help tackle low-level anti-social and nuisance offending. Police officers in Essex, Croydon, West Midlands and the British Transport Police started issuing penalty notices to people aged 18 or over whom they suspect of having committed one of a specific list of disorder offences. North Wales Police also began operating the measures at the start of September 2002.

  The penalty notice for disorder scheme has been introduced as a response to the need for a speedy and effective alternative means of dealing with low-level, anti-social and nuisance offending, which does not require a court hearing. The schemes stated aims are to:

—  Offer operational officers a new, effective alternative means of dealing with low-level, anti-social and nuisance offending.

—  Deliver swift, simple and effective justice that carries a deterrent effect.

—  Reduce the amount of time that police officers spend completing paperwork and attending court, while simultaneously reducing the burden on the courts.

—  Increase the amount of time officers spend on the street and dealing with more serious crime and to free the courts to deal with more serious offending.

  Offences for which a penalty notice may be issued include being drunk and disorderly, throwing fireworks in the street and wasting police time. Officers have the power to issue a penalty notice either on the street or at a police station. The new measures are discretionary and provide an additional option for dealing with a suspect and do not preclude the use of any existing methods of dealing with offenders.

  Once a penalty notice has been issued the recipient must either pay the amount shown on the notice or request a court hearing. This must be done within 21 days of the date of issue. Payment of the penalty by the recipient discharges their liability to conviction of the offence for which the notice is issued. Payment involves no admission of guilt and removes both the liability to conviction and a record of criminal conviction. If the recipient requests a court hearing the case is processed in the normal way, which may result in a hearing. If the recipient neither pays nor elects a hearing usual practice will be for the penalty to be registered as a fine at one-and-a half times the value of the original penalty. This will then be enforced as a normal fine by the courts.

  PNDs should only be issued to 16 and 17-year-old offenders for minor, straightforward offences, where the offence does not form part of a pattern of offending behaviour, and greater intervention is not needed (eg a "one-off" single incident).

  All current forms of disposal remain available and the option to issue a penalty notice or deal with a case in any other way will be at the officer's discretion. Powers of Arrest, Reprimand and Final Warning arrangements remain unchanged and should be used where appropriate.

  PNDs are not intended to replace Reprimands and Final Warnings. Where offenders appear to be vulnerable and in need of intervention, PNDs should not be used. Officers should use the existing forms of disposal to ensure that where it is more appropriate for intervention to take place it does so.

  The Criminal Justice and Police Act 2001 (Amendment) and Police Reform Act 2002 (Modification) Order 2004 was made on 27 September. This Order added 3 new firework offences to the PND scheme with effect from 11 October 2004.

  A further seven offences listed in the Order will come into effect with effect from 1 November 2004.

  The Penalties for Disorderly Behaviour (Amount of Penalty) (Amendment No. 2) Order 2004 sets the penalty amounts for all penalty offences, replacing the 2002 Order. This Order applies the higher tier of £80 to the new firework offences with effect from 11 October. The amounts for the other offences are all effective from 1 November. The Order raises the lower tier to £50 and resets the penalty for the offences of being drunk and disorderly and buying alcohol for a person under 18 to the higher tier of £80. The Order provides a schedule listing all penalty offences and the penalty amount which will apply to each.

  A revised version of the Police Operational Guidance is being prepared and will be posted on the Home Office website as soon as possible. The revised version will include guidance on handling the new offences of theft and criminal damage where a victim is involved.

  The core principles to be applied when considering issue of a PND for these two offences are:

  If a victim is involved whose views should be taken into account when making the decision on the most appropriate disposal.

  PND disposal precludes the possibility of a court awarding a compensation order in favour of the victim. The victim should be appraised of this fact and advised that they would still have the right to seek redress through the civil courts (ie small claims court).

  The victim should be advised that PND disposal will remove the need for the victim to act as a witness and/or give evidence in court, and the PND will provide the offender with an immediate fine.

  Both theft and criminal damage are notifiable offences and PND disposals will count as offences brought to justice.

The North Wales experience:

  In August 2004, a "snapshot" of the force position revealed that:

—  Total number of PND issued since pilot—1,066.

—  678 paid.

—  348 Fine registered.

—  36 unpaid.

—  four elected court hearing.

  The vast majority of PNDs were being issued for the offences of Section 5 Public Order Act 1986, and Drunk and Disorderly. The tickets were predominantly being issued to persons in custody:

—  Number of arrests for Section 5 Public Order—1,381

—  Disposed of using FPND—352.

—  Issued at station—317.

—  Issued in street—35.

—  Disposal by FPND as percentage of all arrests—25.5%

—  Charged and bailed to court 44%

—  Number of arrests for Drunk and Disorderly—2,589

—  Disposed of using FPND—693.

—  Issued at station 675.

—  Issued in street 18.

—  Disposal by PND as percentage of all arrests—27%

—  Charged and bailed to court—23.6%

  Due to the situation, the force objectives relating to PNDs were therefore defined as:

—  Increased street issue.

—  Improved per cent disposal against all arrests for Section 5 and D&D.

—  This will be achieved by:

—  Improved street issue through dealing with 16/17 year olds in the same way as adults.

—  Disposal will be the decision of the issuing officer and officers must be positive about this.

—  Adoption of the Lancashire model utilising the "mobile police station" ticket pouch and ink pad.

—  Monitoring through Custody Inspector's Weekly Performance Review process.

—  Officers were interpreting "street issue" to be issue at the time and location of the offence. PACE allows offenders to be de arrested where "at any time before the person arrested reaches a police station, a Constable is satisfied that there are no grounds for keeping them under arrest or releasing them on bail". A record of the arrest needs to be made. This allows FPND to be issued quite lawfully in situations where arrested persons, having been removed from volatile situations are calm and compliant. This has been accepted and incorporated into the simplified ASB guidance document prepared for officers.

Our current performance:

—  Number of PNDs issued to adults in custody (YTD): 415.

—  Number of PNDs issued to adults elsewhere than in custody (YTD): 52.

—  Number issued to juveniles in custody (YTD): 27.

—  Number issued to juveniles elsewhere than in custody: 12.

—  Number issued to juveniles—per cent of total issued (YTD): 7.7%.

—  Number of persons arrested for PND applicable offences (YTD): 10,307.

—  Total PNDs issued YTD: 506.

—  Total PNDs issued by North Wales Police since scheme commenced Sept. '02: 1,572.

OPERATION LIFEBOAT (SECTION 59, POLICE REFORM ACT)

  This operation involved was commenced when officers from the Operational Support Division and Eastern Division, working together to deal with the persistent problem caused by young motorists behaving in an anti-social way in the Wrexham town centre area.

  Acting under the Dyna Ddigon initiative and using powers conferred on them by the Police Reform Act 2002, officers conducted observations on gathering places for motorists, who are categorised by the press as "boy racers". Once offences, such as handbrake turns, were committed, those involved were served with a warning notice explaining that if they persisted in their behaviour, their vehicles would be seized.

  Several vehicles have been seized during the various instances the operation has been run, with a cost to each offender of £105, plus additional incremental costs dependent upon the length of time the vehicle is retained for.

  This is proving to be very effective. There has been local public and media support, and the areas used by the motorists are reported to have quietened down considerably. A protocol is being finalised to enable this operation to be employed Force wide in the near future. It should be noted that North Wales Police were the first Force in Wales to carry out such activities.

  There must be reasonable grounds to believe a motor vehicle is being used on any occasion in a manner that is careless and inconsiderate (as in s3 of the Road Traffic Act 1988) or contravenes the prohibition of off road driving (s34 RTA 1988) AND is causing or is likely to cause alarm, distress or annoyance to members of the public. (There must be both careless driving or driving off road and anti-social behaviour in order to use the legislation.)

  A warning can be given or seize the vehicle if a warning has been issued in the previous 12 months.

  In most circumstances it relates to the driver only and any vehicle they are in. There is one instance where if the offence is committed on the "same occasion" then it can relate to the vehicle, ie a group of people on a trials bike who once one rider is warned they swap and another rider commits the offence. This can also be applied to "Boy Racers" on a car park for example who are all driving the same vehicle.

The first seizure in Wales: Wrexham Town Centre—July 2003

  The initial warning lasts for 12 months, once a second warning is issued and the vehicle seized the warning period is reset to another 12 months from that date so it effectively acts as another first warning.

  How long after the offence can a person be warned or the vehicle seized? There is nothing in the legislation regarding time limits. Certainly it does not have to be at the time and the wording states only the person who appears to be the driver. There have been warnings a couple of days after a complaint when the vehicle has been located and there have been seizures a week or more afterwards.

  After 21 days, if unclaimed, vehicles may be crushed. The first vehicles to be disposed of in this way in Britain were those seized from an individual in North Wales.

Our performance:

—  Force total warnings issued (fiscal YTD): 348.

—  Force total vehicles seized (fiscal YTD): 43.

—  Approximately 12 vehicles have now been crushed.

DISPERSAL OF GROUPS (SECTION 30, ANTI-SOCIAL BEHAVIOUR ACT 2003)

  The Anti-social Behaviour Act contains new powers to permit police to disperse groups of two or more and return young people under 16 who are unsupervised in public places after 9 pm to their homes.

  These powers will only be available where an authorisation has been made by an officer of at least the rank of Superintendent (the "relevant officer"), in respect of a designated area.

  The relevant officer must have reasonable grounds for believing that any members of the public have been intimidated, harassed, alarmed or distressed as a result of the presence or behaviour of groups of two or more persons in public places in any locality in his or her police area (the "relevant locality") AND that anti-social behaviour is a significant and persistent problem in the relevant locality. "Anti-social behaviour" means behaviour by a person which causes or is likely to cause harassment, alarm or distress to one or more other persons not of the same household as the person.

  The powers conferred by the authorisation are exercisable for a period specified in the authorisation, which does not exceed six months.

Power to Disperse Groups in a Relevant Locality

  Once the authorisation has been granted, if a constable in uniform has reasonable grounds for believing that the presence or behaviour of a group of two or more persons in any public place in the relevant locality has resulted, or is likely to result, in any members of the public being intimidated, harassed, alarmed or distressed he may give one or more of the following directions:—

—  Require persons in the group to disperse (either immediately or by such time as he may specify and in such way as he may specify).

—  Require those persons whose place of residence is not within the relevant locality to leave it or any part of it (either immediately or by such time and in such a way as he may specify).

—  Give a direction prohibiting any of those persons whose place of residence is not within the relevant locality from returning to it or any part of it for such period (not exceeding 24 hours) from when the direction was given, as he may specify.

  (There are occasions when directions may not be given. This is when groups are engaged in conduct under certain sections of the Trade Union and Labour Relations (Consolidation) Act 1992 or Public Order Act 1986).

Power to Remove Persons under 16 years

  If (once a relevant officer has granted such an authorisation), between the hours of 9 pm and 6 am a constable finds a person in any public place in the relevant locality who he has reasonable grounds for believing:

—  Is under the age of 16, and

—  Is not under the effective control of a parent or a responsible person aged 18 or over.

  He may remove the person to the person's place of residence unless he has reasonable grounds for believing that the person would, if removed to that place, be likely to suffer significant harm.

  Police Community Support Officers also possess the power to disperse groups and remove persons under 16 to their place of residence. The powers to make authorisations and directions also apply to British Transport Police officers.

North Wales Police use of the powers:

  We first introduced the dispersal powers on 30 April 2004, in the St Cybi's Churchyard area of Holyhead.

  This was apparently the first occasion in Wales when the power has been employed to deal with a serious and persistent problem of disorder. The situation had been carefully assessed. The force has had to demonstrate that numerous incidents have taken place in the same area and that numerous individuals have been arrested. This was an issue of great community concern, further evidenced by a survey we performed in Holyhead just before Christmas 2003. Despite our efforts, the problems did continue and the police and Local Authority have been forced to take this action. We have defined a very small geographic area in the town centre (the end of a pedestrianised street and adjoining church yard) which was the "hot spot" for the problem.

  An initial assessment of the effects of the dispersal notice was performed in July 2004, in line with the first anniversary of Dyna Ddigon. Early indications proved positive, with the use of this power being extremely well received by the local community.

  The implementation of the Section 30 power is controversial, as it is clearly a very strong measure. It is understood that legal challenges to it are now being mounted in other parts of Britain. It is likely to directly impact upon young people and there will undoubtedly be an ancillary effect upon our relationship with them, which may not always be positive. Mutual understanding through dialogue is vitally important in order to avoid possible problems.

  The Dyna Ddigon campaign has as one of its aims the explicit intention of protecting young people from conflict and confrontation. The swingeing use of new powers as a blunt enforcement instrument is not the intention of North Wales Police. Our actions must be proportional to the problem we need to surmount, lawful and necessary. We have no intention of wilfully breaching the human rights of members of our communities.

  The evolving best practice would appear to be:

—  Utilise other methods first.

—  Widely consult on the intended implementation of the power.

—  Designate a clearly defined geographical area, which is proportionate to what has to be achieved.

—  Assess the effects of the use of the power.

—  Formulate an `exit strategy' so that once the power no longer applies, the problem will not return. This may include measures such as making the area an alcohol free zone.

—  If there is no need for continued use of the power, remove the designation.

Areas in North Wales where Dispersal Orders apply:

Power Exercised	Officer Authorising	Date	Location(s)	Expiry date
Dispersal of Groups (Curfew): S.30 Anti-social Behaviour Act 2003	Chief Supt Pritchard (Western Division)	30/04/04	Market Square & St Cybi's Church Gardens, Holyhead	29/10/04
	Chief Supt Sandham (Central Division)	11/07/04	Rhyl
	Chief Supt Thomson (Eastern Division)	19/07/04	Brynteg, Wrexham	14/11/04
	Supt Humphreys (Central Division)	28/07/04	Conwy Town	20/01/05
	Chief Supt Thomson (Eastern Division)	10/09/04	Acton, Wrexham	10/11/04

CLOSURE OF "CRACK HOUSES" (SECTION 1, ANTI-SOCIAL BEHAVIOUR ACT 2003)

  The Anti-social Behaviour Act 2003 confers on police the power to close down premises being used for the supply, use or production of Class "A" drugs, where there is associated serious nuisance or disorder.

  A Superintendent (or officer of higher rank) can authorise the issue of a closure notice, provided that:

  The local authority has been consulted with AND that reasonable steps have been taken to establish the identity of any person who:

—  lives on the premises or

—  who has control of or

—  responsibility for or

—  An interest in the premises.

  No drug specific criminal offence has to be proved before a notice can be served or an order made.

Entry to premises

  A constable or any other person authorised by the chief officer of police for the area in which the premises are situated may enter the property and secure it against entry by any other person, using reasonable force if necessary.

Offences

  If persons remain on the premises subject to a closure notice or order without reasonable excuse OR obstructs a constable or authorised person then there is a power of arrest for a constable in uniform and the penalty will be a fine of up to £5,000 or six months imprisonment (which will be increased to 51 weeks by the Criminal Justice Act 2003).

Closure Orders

  Service of a closure notice temporarily closes the premises to all of the public except the owner or those who habitually reside there, until a magistrates' court decides whether to make a closure order. The court must consider this within 48 hours.

  If the conditions are met, the closure order will close the premises altogether, including to owners and residents, for up to three months, with a possible extension up to a maximum of six months. Police can apply for this extension, authorised by a Superintendent, provided that there are reasonable grounds for believing the extension is needed to prevent the occurrence of disorder or serious nuisance to the public and the local authority has been consulted.

  The hearing can be adjourned for up to 14 days to allow the occupier or someone else with an interest in the property to show why an order should not be made, eg because problems have ceased or the occupiers have been evicted. The court can order that the closure notice continues to have effect during this period.

North Wales Police use of the power:

  On the 7 July 2004, North Wales Police used a Closure Notice for the first time, to close down a nuisance premises in Shotton, Flintshire. Further closures are expected in due course.

OPERATION TARGET

  The Anti-Social Behaviour Act 2003 introduced additional measures to regulate the possession of air weapons and imitation firearms. The relevant parts of the Act imposing these restrictions were commenced on 20 January 2004.

  North Wales Police devised a high-profile campaign to heighten awareness of new legislation. It secured the assistance of Dyfed-Powys Police, Gwent Police and South Wales Police to hold Operation Target. It took place during the period of Monday, 19 April to Friday, 30 April 2004.

  The commencement date of the restrictions that now apply to specific air weapons using a self-contained gas cartridge system was the main reason behind Operation Target. These types have become prohibited weapons; therefore they cannot be possessed, purchased, acquired, manufactured, sold or transferred without the authority of the Secretary of State. Provision is made for existing owners of these weapons to retain possession, provided they have obtained a firearms certificate from the police. Such certificates must have been applied for by the 30 April. If not, weapons must have been surrendered to police by that date.

  The Anti-Social Behaviour Act 2003 created specific offences relating to air weapons and replicas: It is an arrestable offence to carry an air weapon (whether loaded or not) or an imitation firearm in a public place without lawful authority or reasonable excuse. There has been an amendment to the specified age at which a young person may own an air weapon. The present limit is raised from 14 to 17 years. It is also an offence for anybody to give an air weapon to a person under 17. This will mean that no-one under 17 years will be able to have an air weapon in their possession at any time unless supervised by someone who is aged at least 21 or as part of an approved target shooting club or shooting gallery. 14 to 16 year olds (inclusive) will be permitted to have air weapons unsupervised when on private land, provided they have the consent of the occupier. It is an offence for them to shoot beyond the boundaries of that land.

  It must be noted that there was no specific exemption from proceedings provided by the Attorney General to accompany this activity in Wales. The primary message is that self-contained gas cartridge weapons are to be surrendered or an appropriate licence applied for.

  Whilst the force was acting in recognition of the dangers of air weapons (and replica firearms), it was acknowledged that many other purposely manufactured articles are deliberately harmful. The operation provided an ideal opportunity for removal of these items from circulation.

  The intentions of Operation Target were to:

—  Heighten awareness of the legal requirements of the Anti-Social Behaviour Act 2003 in respect of self-contained gas cartridge air weapons and the general possession of air weapons.

—  Encourage those in possession of firearms, ammunition, replica firearms, air weapons and offensive weapons to surrender them, thereby reducing their overall availability.

—  Provide tangible evidence of the determination of North Wales Police, in partnership with the other Welsh forces, to deal with the dangers posed by the illegal possession and use of any weapon, in order to reassure the public and reduce crime and anti-social behaviour.

Operation Target Publicity Poster

  Some 292 firearms of various descriptions were surrendered to police. The assistance of the British Association for Shooting and Conservation was also secured to support the campaign. The unified approach adopted by the four forces was considered to be successful and will form the basis for further joint campaigns.

Force	SCAC Weapons Surrendered	SCAC Certificates Obtained/Applied For	Number of SCAC Weapons accounted for on Certificates	Other Air Weapons Surrendered	Imitation Weapons Surrendered
North Wales Police	17	25	60	90	20
South Wales Police	13	58	67	98	2
Gwent Police	3	8	13	7	0
Dyfed-Powys Police	37	31	48	5	0
Wales Total	70	122	188	200	22

  Monitoring of incidents involving firearms occurs as senior level within the force. An assessment will be commenced shortly to establish the likely effects of the use of new powers in North Wales and the level of appropriate usage officers.

YOUNG CITIZEN AWARDS

  Working closer with the community is one of North Wales Police's main priorities. We have launched a programme for 2004 entitled: Young Citizen Awards.

  The force is recognising young people who help their local neighbourhood, a person, a family member or a school, and the scheme is open to anyone aged between 11 and 18 years old.

  The Young Citizen Awards will encourage involvement from young people and we are especially keen to hear about projects that can help make local communities safer and better places to live in.

  Approval of a parent or guardian is required for the nomination, in the event of subsequent publicity involving the finalists.

Awards

  All nominations are recognised and a panel of judges within the Force selects winners every six months. The Awards Ceremonies are held at Force Headquarters, Colwyn Bay and the prizes are as follows:

—  First Prize: £250 plus a specially commissioned Young Citizen trophy and certificate signed by the Chief Constable and Deputy Chief Constable of North Wales Police.

—  Second Prize: £100 plus a certificate.

—  Third Prize: £75 plus a certificate.

Charity Donation

  As an added benefit to a community, the prize money is matched and donated to the community project or charity of the winners' choice. Nominees of the winners also receive £50 donation for charity.

Launch Material

  Promotional material including posters and nomination forms have been sent to each school, and youth club in each of the local authorities. Nomination forms are also available from Police Stations and a copy has been sent to each station.

DYNA DDIGON—POLICING THE NIGHT-TIME ECONOMY

  The scope of this area of policing is extremely wide. A number of recommendations are made later within this document. Two examples of our approach are described below.

  Example 1:  Wrexham Town

  At the end of May 2004 violent crime in the town had shown a rise of over 80%. As a consequence, Operation Reclaim was drawn up as part of the town's violent crime reduction strategy, £10,000 was obtained from Dyna Ddigon funds to allow the utilisation of extra staff at weekends. £8,000 was later obtained under the National Alcohol Misuse Enforcement Campaign, which was used to perform test purchases at off-licences, and allow two officers to working high-visibility reassurance patrols on Fridays and Saturdays.

  At the same time, the local police Inspector purchased reflective coats for the door staff of the clubs and bars. A further £500 was spent on a lollipop campaign which has proven very successful. Recent crime figures showed that offences of violence have now been reduced to 37%. The indications are that week on week on violent crime is falling. An important factor to note that in July and August last year there was a significant police presence in the town following on from the Caia Park disturbances. This resulted in very low numbers of violent offences and distorted the usual picture with regard to violence offences.

  The District Inspector is highly confident that the continued success of Operation Reclaim will yield an actual reduction in violent crime before the year's end. A reduction of 204 offences will make this a reality and this is achievable.

  The purchase of reflective jackets for door staff has been another great success. The £500 has been spent and the Inspector is currently seeking additional funding as an increasing number of premises wish to have them for their door staff. The effect at the moment is considered impressive. It has increased a high visibility uniform presence on the street. 

 

  Voice boxes warning visitors that CCTV is in operation have been introduced. At every stage the press have been involved and the articles stemming from the local media have been almost exclusively positive in nature.

  The water bowser concept continues to be a hit with the public. The fact that its use has now been extended to tackle litter has been extremely well received. Soon it will have a day job as well—dealing with people caught allowing their dogs to foul footpaths. (Something that is top of the list for complaints to the council). Individuals are offered the opportunity to clean up their mess and are issued a Yellow Card. Should they decline, the issue of a PND or arrest are further options that are being used.

  The introduction of night buses is now being pursued. Approximately two years ago the Wrexham Night Safe group looked at a Night Bus Scheme for the town. The only bus company willing to look at it was Arriva. The idea stalled as Arriva would not allow their drivers to handle money late at night. Arriva wanted the Local Authority or night clubs to fund the service. The club, bar and pub operators could not agree a fair method of paying for the scheme.

  Recently, officers have made a liaison visit to Blackpool where the local bus companies had been faced with the same problem. The solution has been found in providing ticket machines in the town centre. A person arrives in town and then places £2 in a ticket machine to purchase a ticket for the home journey. The purchaser has to select a Midnight, 1am, 2am, 3am or 4am ticket. These tickets are not transferable and there is a cut off time to encourage people to buy the ticket early. The machine is then capable of sending information to the bus operator as to how many people need transport and at what time.

  A recent development has been a trial of a Night Bus Scheme in St Helens. One of the bus companies taking part is Arriva. The results have been extremely encouraging with considerable reductions in violent crime, reductions in anti-social behaviour while at the same time a substantial rise in people visiting the town centre at night leading to increased business. 

  Wrexham now has 24 hour shopping with large supermarkets open seven days a week. This has resulted in some additional work with shoplifters now being taken outside what was traditionally their normal working hours.

  Newi College also continues to expand its courses targeting foreign students. Many new students have arrived for the new term. Some of these students come from areas where there is a bar culture and so they continue to come into town at night to make use of the growing numbers of small bars. Inevitably this does lead to occasional disorder.

  Ian Lucas MP, Eleanor Burnham and representatives of the Policing Standards Unit have recently accompanied officers at night, to experience the nature of policing the night-time economy. They have been given full access to our patrols and processes and the feed back has been extremely favourable. In the next fortnight,

  Example 2:  Rhyl

  The use of a water bowser, on similar lines to that first introduced in Wrexham, has taken place. This, when combined with the Yellow Card Scheme, is proving a worthwhile deterrent to anti-social behaviour.

  The local District Inspector is effectively using closure orders in Rhyl in respect of licensed premises. He is engaged with the managers of licensed premises and assists them by implementing action plans when failings are evident.

  He also meets on an almost weekly basis with the operators of the big eight nightclubs in Rhyl, in order to ensure that standards are maintained.

  Much of the basis for focussing on specific premises stems from intelligence provided by PCSOs and is supported by analysis of reported incidents.

  It is by concentrating on licensed premises and ensuring that a manager is responsible for the conduct of individuals not just on the premises, but in its environs, that standards of behaviour can be improved and a cultural shift (with a complementary drop in crime levels) can occur.

National Alcohol Misuse Enforcement Campaign

  The Police Standards Unit and ACPO spearheaded the summer alcohol misuse enforcement campaign aimed at tackling alcohol-related violence and disorder and targeting those who encourage under-age and binge-drinking. The force worked closely with partners such as Trading Standards, the Fire Service, environmental health officers, the licensing industry and others to ensure that concerted action was taken to combat the problems facing towns and cities across North Wales.

  The campaign was cited as a first step towards achieving the longer-term aims of the Government's Alcohol Harm Reduction Strategy. It was intended to raise awareness of the issues and signal to those who sell irresponsibly and drink irresponsibly that the police and partners will no longer tolerate actions that fuel alcohol-related.

  This campaign is a first step towards achieving the longer-term aims of the Government's Alcohol Harm Reduction Strategy. It is intended to raise awareness of the issues and signal to those who sell irresponsibly and drink irresponsibly that the police and partners will no longer tolerate actions that fuel alcohol-related violence and disorder.

NORTH WALES POLICE AREA—RESULTS FOR NATIONAL ALCOHOL MISUSE ENFORCEMENT CAMPAIGN

	On licenses	Off licences
Total number of visits conducted by police and partners	459	275
Percentage of offences identified from visits	3%	0%
	On licences	Off licences
Total number of test purchase operations	0	9
Total number of Licensees identified as selling to persons underage	0	3
Percentage of offences identified from test purchase operations	-	33%
Total number of arrests (not subject to FPNs)	130
Total number of disposals (subject to FPNs)	67
Total number of Fixed Penalty Notices issued for causing harassment etc (S. 5 Public Order Act)	25
Total number of Fixed Penalty Notices issued for drunk and disorderly (S. 91 Criminal Justice Act 1967)	31
Total number of Fixed Penalty Notices issued for other alcohol related offences	11
Total number of disposals following arrest	53
Total number of disposals not leading to an arrest	14
Number of confiscations of alcohol from youths (Confiscation of Alcohol (Young Persons) Act 1967)	16
Number of confiscations of alcohol—alcohol exclusion zones and designated areas (S.12 CJPA 2001 & S.155 LA 2003)	101
Number of dispersal orders	3

  From three participating BCUs within North Wales as of 20/09/04.

TACKLING ANTI-SOCIAL BEHAVIOUR: WHAT MORE DO WE HAVE TO DO?

  Consolidate the implementation of our Dyna Ddigon initiative so that it is truly responsive to the needs of communities.

  Continue to forge ahead with innovative use of new powers, including parenting contracts and acceptable behaviour contracts.

  Maintain the commendable increases in performance of the force in priority crime areas.

  Raise awareness within our own organisation of the need to tackle anti-social behaviour and increase the community perception of safety, using a problem-solving approach.

  Provide appropriate training to those who are engaged on the "front line" in dealing with local community problems.

  Increase the number of individuals within the extended police family, in particular the numbers of Police Community Support Officers, Accredited Wardens and Volunteers.

  Introduce a new system of occurrence management so that a high-quality, nationally recognised service to incidents of anti-social behaviour can be achieved.

  Improve our liaison with other forces in Wales, so that a unified approach to anti-social behaviour issues can be adopted and best practice disseminated. This will become a reality on the 19 October, when the first Wales police ASB forum meets involving all forces, including the British Transport Police.

  Refine our performance management process so that true qualitative data representing progress in community issues can be obtained.

  Further our strong relationships with Local Authorities and other organisations across North Wales, assisting and encouraging them to use the new powers available to them.

  Involve ourselves in the National Reassurance Policing Programme to ensure that we continue to lead the way in community policing.

  Publicise our efforts and celebrate success.

  Lobby the Welsh Assembly Government to adopt the powers made available by the Anti-social Behaviour Act 2003, where it has presently failed to do so.

  Ensure that problems relating to the environment and night-time economy are tackled with vigour, in partnership. It is possibly these two areas that will soon begin to assume the greatest significance.

  Ensure that witnesses and victims are supported and encouraged to provide evidence.

  Ensure that far wider usage of fixed penalty tickets for appropriate offences occurs.

  Work to establish the potential for joint anti-social behaviour units involving the police, local authorities and other organisations such as Youth Offending Teams.

  Firmly establish our model for community policing, involving all elements of the extended police family, across North Wales.

TACKLING ANTI-SOCIAL BEHAVIOUR: THE IMPACT OF DEVOLUTION

  Devolution has undoubtedly led to challenges being encountered in the implementation of new powers to deal with anti-social behaviour.

  The most obvious difficulties present themselves when differing elements of new enactments are introduced in England and not Wales. This situation does not appear to apply conversely.

  Prime examples of this are contained within the Anti-social Behaviour Act 2003:

—  The duty for landlords to publish policies and procedures.

—  Injunctions against anti-social behaviour.

—  Demoted tenancies.

—  Parenting Contracts for truancy and exclusion, as well as Parenting Orders on exclusion.

—  Penalty Notices for parents in cases of truancy.

—  Closure of noisy premises by approved Environmental Health Officers.

—  National availability of penalty notices for noise at night.

—  Removal of graffiti from street furniture and the like.

—  Waste and litter—powers for Local Authorities to tackle fly-tipping and enforce litter abatement notices.

—  Public Order and trespass.

—  High hedges.

—  Proceedings under Section 222 of the Local Government Act 1972: power of arrest attached to an injunction.

  Forces in Wales are faced with the often ludicrous situation of being advised that new powers are available (as listed above) only to later discover that they only apply to Wales. In particular, the power to issue penalty notices in the case of truancy is listed in Home Office publications as applying to both England and Wales, yet this power has specifically NOT been introduced in Wales.

  This serves to create a frustrating and confusing predicament. The primary cause for concern is that these powers are perceived as being of great potential in alleviating communities from problems that have a significant detrimental impact, yet partner agencies and the police are unable to utilise them.

  We urge the Welsh Assembly Government to confer on relevant organisations the appropriate powers that will enable them to function unhindered and make a real difference in communities. The information relating to the introduction of new powers must be unambiguous and well publicised, to avoid further difficulties.

TACKLING ANTI-SOCIAL BEHAVIOUR: WHAT WE NEED OTHERS TO DO

  We are anxious to build upon the good relationships we hold with Local Authorities and other agencies and organisations throughout North Wales.

  We need to ensure that, where the appropriate powers have been granted, our partners are given all possible assistance to make use of them. When they do not, and it is to the detriment of a community, we are not willing to conceal inaction. Accountability is a key principle of our policing approach to local issues.

  We need to develop a shared understanding between the partner agencies, communities and North Wales Police about the definition of anti-social behaviour in a specific area and the role that each agency will play in tackling it. Shared ownership is vital.

  Joint action is the only way in which anti-social behaviour can be tackled effectively. There needs to be government action to facilitate joint activity, down to a local fully integrated strategy—for us, this is Dyna Ddigon.

  Joint agency activity to tackle anti-social behaviour must have applied to it a set of common minimum standards. There must be methods of identifying, developing, evaluating and promulgating measures that work—for all the agencies and bodies involved.

  A common performance regime across all the agencies involved, with joint targeting and scrutiny functions, must be adopted.

  There must be recognition on the part of all agencies that local people must be involved in the process of deciding what aspects of behaviour are causing them the most difficulties. Negotiation with communities as to how to prioritise and address local issues must become the norm.

  Multi-agency action consisting of a mix of help and enforcement, supported by the National Intelligence Model, will be effective in reducing anti-social behaviour. The activation of local agencies in an intelligence led strategy must be enhanced and this means joint targets, explicit monitoring of performance against those targets, and proper levels of resources.

  Private landlords, as well as Registered Social Landlords, do have an important role to play and we urge for supportive action and positive enforcement to be performed.

  We support the ACPO position on policing of the night-time economy[30], in that:

—  There must be support for local approached to be delivered through CDRPs in a holistic manner, taking into consideration preventative and educational matters, as well as powers of enforcement.

—  There must be more effective integration and enforcement of licensing and planning laws. Resident's views must be given a high priority in determining whether a licence is granted or renewed.

—  Saturation (the cumulative effect) must be grounds for refusal of a licensing application.

—  Tighter regulation is required to prevent changes of use of premises, within and between classes.

—  There remains a need for the police to be able to object to issuing of personal and premises licenses.

—  The police and Local Authority must have stronger powers to close licensed premises temporarily (perhaps up to seven days) and permanently where they are creating crime and disorder problems and selling to those underage.

—  Policing the night-time economy creates a huge demand on police resources which are currently stretched in many town centres. The ACPO position is to support the "polluter pays" principle and the view that licensed premises should be responsible for the costs associated with crime and disorder problems resulting from the night-time economy.

—  Local Authorities must be empowered to promote mixed venues to prevent a pure youth drinking culture.

—  Good planning has a critical role to play in prevention, both in the overall environment of town centres and in licensed premises. Local Authorities use of planning and licensing regulations and the use of Section 17 of the Crime & Disorder Act must have more impact in this area. The ability to impose conditions to the grant of licenses relating to door staff, CCTV provision, etc remains critical.

—  A unified database of licensed premises and persons, rather than a series of local ones, together with a national inspectorate for licensing.

—  There must be available safe transport to deal with late night closing.

—  The administrative burden of schemes such as Pub Watch and CCTV must be removed from the police. They are supported, as is the promotion of a national proof of age scheme.

—  The Department of Health must be engaged more in addressing problems locally.

—  National chains should be tied into local issues through the licensing process.

  In terms of the environment and crime and disorder issues, the following have been included in the ACPO response to the recent DEFRA consultation paper:

—  Extend the objectives of Crime and Disorder Reduction Partnerships to include reference to local environmental crime

—  Extend the litter offence to dropping litter on all types of land, including "aquatic environments".

—  Extend local authority powers in respect of litter to cover graffiti and fly-posting. They should be extended to "placarding", prostitute carding and stickers placed on lamp posts and roadside furniture in addition, if this is not currently covered in the legislative definition of "fly posting". All of these issues are similar and are viewed and dealt with here as "vertical litter". They demand similar powers of enforcement, rather than addressing each of these problems in isolation.

—  Extend the scope of the Code of Practice on Litter and Refuse to include wider local environmental quality issues.

—  Extend Graffiti Removal Notices to cover Fly-Posting.

—  Remove the restriction on the designation of land under litter control areas.

—  Extend the "Cleansing Notice" powers to local authorities outside London.

—  Extend Free Literature Distribution Controls to local authorities outside London.

—  Specifically define discarded chewing gum (including bubble gum) and smoking related materials as "litter".

—  Make special event licences include street clean-up provisions.

—  Extend powers for dealing with abandoned shopping and luggage trolleys.

—  Introduce a new offence and clear-up provisions for dealing with the illegal disposal of waste.

—  Introduce Fixed Penalty Notices for waste left out on the streets.

—  Introduce a more effective system for stop, search and seizure of vehicles. The police service offers general support to the proposal made here. However following the passage of the Police Reform Act 2002 it is no longer always necessary for a police constable to be needed to stop a vehicle on a road. Under section 40 PRA02 Schedule 5 para 8 a Chief Constable can accredit an employee of any other suitable organisation to stop vehicles on a road. This accreditation regime is currently in use to allow Vehicle Operator Services Agency (VOSA) staff to stop vehicles throughout the country. It would be a very simple matter to extend this power for the purposes now proposed. Such an extension would have police support and would enable an effective regime to be created without the need to involve the police directly.

—  Create new offences and powers in relation to nuisance vehicles.

—  The Home Office and Department for Transport are currently collaborating over two Bills which will together significantly enhance police powers to deal with unregistered, unlicensed or abandoned vehicles. Both departments have indicated their intention to legislate as soon as possible. ACPO warmly welcomes these intentions and I suggest that the proposal in the current consultation document be discussed with us to avoid any possible duplication or omission in the legislation.

—  Streamline the dog byelaw system.

—  Give local authorities full responsibility for receiving stray dogs. This was a formal recommendation of the Police Reducing Bureaucracy Taskforce, already accepted by the Home Office.

—  Give authorised officers the power to request names and addresses. The power to request name and address is already available to those persons Accredited by a Chief Constable under Schedule 5 PRA02. It may be that the simplest way to achieve this proposal is to extend the existing scheme.

—  Extend fixed penalty issuing powers to other bodies.

—  Extend statutory nuisances to include artificial light and nuisance from insects.

—  Extend the power to issue statutory codes of practice to nuisances other than noise.

—  Introduce new measures to reduce noise nuisance. There is no doubt that excessive noise is still regarded as a major problem by members of the public. This problem continues to cause the police significant difficulty and ACPO encourages the Government to strengthen the available powers to deal with the problem. However we do have some concerns about some of the proposals made in the consultation document, particularly that to extend the requirement under section 23 of the London Local Authorities Act 1991 to the whole of England and Wales.

—  Create new powers to deal with nuisance alleyways.

TACKLING ANTI-SOCIAL BEHAVIOUR: OUR ACHIEVEMENTS SO FAR

—  Dyna Ddigon has been extremely well received by local communities and other agencies, and has been subject to praise at senior Government level. Twenty-one areas across the force will soon be included in the initiative.

—  Our Community Beat Managers are now in post force wide and working with the community to tackle anti-social behaviour and disorder.

—  Our Schools Liaison Officer programme has been now been introduced and 16 officers are now in post.

—  We have increased our number of ASBOs to 54, and this figure is still increasing.

—  We were the first force in Wales to use leaflets to inform communities of those who have had ASBOs made against them.

—  We were the first force in Wales to introduce a dispersal order (curfew), in Holyhead, which is proving successful. We now have five such areas.

—  We led Operation Target to remove air weapons from circulation, resulting in 292 being surrendered across the country.

—  Operation Lifeboat has been expanded force wide, so that vehicles used in an anti-social manner can be seized by the police. 348 drivers have been warned and 43 vehicles seized, with several actually being crushed during the current YTD. We made the first seizures in Wales.

—  506 Penalty Notices for Disorder have been issued this fiscal year, with the Force total now standing at 1,572.

—  Operation Reclaim in Wrexham is having a great effect upon drunken behaviour.

—  Crime significantly down in nearly every Dyna Ddigon area, when compared with last year.

This fiscal year to date (to September 2004):

—  Holyhead: -1.4%.

—  Llangefni: -28.7%.

—  Peblig Ward: -33.6%.

—  Bangor: -2.0%.

—  Pwwlheli: -5.9%.

—  Porthmadog: -10.1%.

—  Barmouth: 27.5%.

—  Llandudno: 6.2%.

—  Colwyn Bay: -9.9%.

—  Kinmel Bay: -8.0%.

—  Prestatyn: -8.6%.

—  Denbigh: -17.2%.

—  Bryn Offa: -23.5%.

—  Hightown: -30.7%.

—  Rhostyllen: -1.2%.

—  Chirk: -28.1%.

—  Bryn Gwalia: 14.9%.

—  Coleshll & Castle: 4.3%.

—  Connah's Quay: -12.0%

—  Our Yellow Card Scheme has been introduced force wide, reiterating our message that anti-social behaviour is completely unacceptable. Other forces are now looking at this scheme.

—  We have just made our first awards under our Young Citizen Awards Scheme.

—  We have obtained our first closure order under the Anti-social Behaviour Act 2003, which has led to the immediate closure of a nuisance premises in the Flintshire area. More will follow.

D A Roome

October 2004

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28   Force Management Information Dept: Period 1.04.04 to 29.09.04. Back

29   Police Performance Monitoring 2003-2004 (Home Office). Back

30   ACPO submission to Home Affairs Committee on anti-social behaviour 2004. Back

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Prepared 23 March 2005