13. Written evidence from the Bridend
Community Safety Partnership—"Safer Bridgend"
POLICE SERVICE, CRIME AND ANTI-SOCIAL BEHAVIOUR
IN WALES INQUIRY
1. INTRODUCTION
1.1 I am Chief Executive of Bridgend County
Borough Council and have held that position since the inception
of the Authority in 1995. My curriculum vitae is attached as Appendix
1 (not printed) . Also I am the identified spokesperson on Community
Safety issues for Welsh Chief Executives (Solace Wales).
1.2 The Bridgend Community Safety Partnership
("Safer Bridgend") was set up in 1998. This was a response
to the requirement of the Crime & Disorder Act 1998 to effect
joint partnership working to discharge the requirements of that
legislation.
2. BACKGROUND
2.1 Safer Bridgend covers the geographical
area co-terminus with the administrative area of Bridgend County
Borough Council. A brief profile of the County Borough is attached
in Appendix 2 (not printed). This is also accompanied by a map
of the County Borough.
2.2 The composition of the Safer Bridgend
Partnership is shown in Appendix 3 (not printed). The Partnership
has recently revisited the content of its membership and it has
been decided that private sector, ie business, representation
will be invited to join the Partnership in the New Year.
2.3 Safer Bridgend is a combination of the
Community Safety Partnership and the Youth Offending Steering
Group. At the inception of the Partnership these were separate
and distinct, however the commonality of issues led to these two
groups coming together under the auspices of Safer Bridgend. A
typical agenda for a Partnership meeting is shown in Appendix
4 (not printed).
3. OBJECTIVES
3.1 One of the principal objectives of Safer
Bridgend is to publish and discharge a Crime and Disorder Strategy.
This Strategy is based on a crime audit to establish effectively
the target areas of the Strategy based on local circumstances.
The current Strategy extends from 2002-2005 and has the following
key aims:
— disorder/town centre night time economy
— Developing the Partnership:
— membership/public image, identity
and links
— information development and exchange
3.2 The Partnership is now preparing its
Crime and Disorder Reduction Strategy for 2005—08. In these
respects a further crime audit is being conducted assisted by
other associated activities. In specific terms on 6 December the
Crime and Disorder Strategy Consultation Day is being held, attended
by a wide spread of Partner agencies and groups. This is being
conducted on the basis of set topics, eg anti-social behaviour
etc, and will assist in the audit process. The new Strategy will
be published in the spring of next year.
The Partnership mission statement is:
"To make Bridgend County Borough a safer
place to live, work, visit and invest. "
4. STRUCTURES
4.1 As already stated, Safer Bridgend embraces
both the Community Safety Partnership and the Bridgend Youth Offending
Team (YOT). The YOT Manager is also directly responsible to myself
as Chief Executive of the Local Authority.
4.2 The Partnership is comprised of:
The Executive/Strategic group:
— is chaired by myself (the Police
Divisional Commander is vice-chair)
— is comprised of senior management
in Partner agencies
— sets strategy and policy
— monitors, reviews and evaluates the
performance of the Partnership
The Operational Group which:
— is chaired by the Divisional Commander
— determines strategy co-ordination
and funding contributions
— formulates bidding strategies
— determines interventions and matters
of co-ordination
— undertakes the evaluation and monitoring
of task group activity and the performance management of strategic
objectives.
5. STAFFING SUPPORT
5.1 The Partnership is supported by the
following "key workers", funded by the Partnership:
— A Partnership Co-ordinator
— An Anti-Social Behaviour Reduction
Co-ordinator
— A Domestic Abuse Co-ordinator
— A Young Person's Anti-Social Behaviour
Support Worker
— A Victim/Offender Mediation Worker
6. FUNDING SOURCES
6.1 The Partnership is funded via the following
funding streams:
— Basic Command Fund (BCU)
— Safer Communities Fund (SCF)
— Building Safer Communities Fund (BSF)
6.2 The Bridgend YOT is funded through both
Youth Justice Board grant and contributions from Partner agencies.
The key partners are the Local Authority, Police, Probation and
Health.
6.3 CCTV has a high prominence in the County
Borough of Bridgend, an aspect that is dealt with later. The acquisition
of CCTV equipment is a combination of Home Office grant and Local
Authority activity (including some Town & Community Councils).
The revenue costs of CCTV falls totally on the Local Authority.
6.4 Partnership office:
— It is the intention of the Partnership
to secure office accommodation. Intendedly this will be in the
town centre of Bridgend.
— The aspiration is to include within
a singular location not simply the presence of the Partnership
personnel but also those of other agencies working closely to
the objectives of the Partnership. Hopefully these will include
colleagues in the Children & Young People's Partnership, Police,
and possibly personnel from the National Probation Service and
South Wales Fire and Rescue Service. Discussions are well advanced
in these respects and it is earnestly hoped that accommodation
can be secured in the early part of the New Year.
— It is envisaged that such premises
will both enhance and project the image of the Partnership within
the locality. It will also assist and enhance the development
of Partnership working.
7. PROGRESS AND
SOME ACHIEVEMENTS
7.1 Crime Reduction
Local authority and police have co-terminus
boundaries in the 39 wards that make up Bridgend County Borough.
For policing purposes the county is further divided into three
sectors these are.
— Bridgend—Consists of large
estates and town centre.
— Maesteg—Valley communities/isolated/higher
deprivation.
— Porthcawl—Transient population/older
population.
Crime & Disorder Performance figures for
Bridgend County to the end of November 2004 are in the top echelons
nationally in terms of performance and culture. A comparison of
performance for the same period 2003-04 compared to 2004-05 indicates
that overall crime is set to drop by 14.5%.
— Reductions of 9.9% for Violence against
the person—these are offences like assaults/ABH/ GBH.
— Overall violent crime down by 8.3%
— Burglaries of peoples homes down
by a massive 40.6%
— Burglaries of other premises down
by 29.1%
— Theft of motor vehicles down by 25.4%
— Theft from motor vehicles down by
6.9%
— Overall Vehicle Crime down by 13.8%
— Theft offences down by 9.1%
— Fraud & Forgery Offences down
by 23.4%
— Criminal damage down by 15.7%
With regards to sexual offences, figures show
an increase of 33.3%. This is due the fact that mainly all of
these types of offences are detected crimes. The same must be
said of a 71.8% rise in respect of Drug Trafficking offences,
which again are by the very nature of the offence all detected
crimes exhibiting good levels of performance in detecting and
prosecuting such offences.
7.2 Initiatives
The Partnership is fully of the view that the
sustainability of crime reduction in Bridgend can only be achieved
through effective Partnership working. This is illustrated by
a number of effective interventions/initiatives which the Partnership
has taken forward with colleague agencies.
— The Schools Co-Programme—This
is now fully implemented into the All-Wales Schools Initiative.
It facilitates three full-time dedicated Police Officers delivering
important messages within the school environment on drugs awareness,
personal safety and crime prevention.
— "Get Active"—This
is delivered through the Council's Youth Service. It targets disengaged
young people between the ages of 11—25 initially from the
areas of Llynfi, Ogmore and Garw valleys and areas of Pyle, Kenfig
Hill and Cornelly. Additionally the "Streets Sports Programme"
will begin shortly to operate in the areas of Wildmill, Brackla
and Cefn Glas placing particular emphasis on targeting young people
with disability or special educational needs.
— Communities First Policing Team—This
is one of the first of its kind and has relocated specifically
to work operationally from Bettws Primary School.
— Community Policing—Resource
commitment has been afforded to the establishment of both Community
Police Officers and Partnership funded Police Community Support
Officers. Policing in the community is seen to be an important
visible message in combating crime and disorder. At Junction 36
on the M4 is sited the McArthur Glen Retail Outlet Centre and
Sainsbury's supermarket. The Outlet Centre draws millions of visitor
numbers in the course of each year. Sadly high crime levels have
followed. A Community Police Station has been established in the
Sainsbury supermarket affording an on-going Police presence at
the trading centre. This has provenly reduced crime figures and
is a visible demonstration of Police and Partnership support to
sustain the local business community.
— Youth Works—Wildmill housing
estate, Bridgend. This housing estate was experiencing high levels
of crime and complaints of anti-social behaviour. Understandably
these were significantly affecting the general quality of life
on the estate. The project was set up and aimed to tackle the
cost of these problems and to engage young people in a constructive
environment. The scheme was led by the Bridgend YOT and local
housing association supported by voluntary groups and the presence
of Police Community Support Officers. Since the project commenced
youth annoyance has been reduced by 48% over the period 2002-03.
— "Positive Futures" Youth
Services—This is a national sports based social inclusion
programme managed within the Home Office Drug Strategy Directorate.
It includes a range of agencies encompassing Council, Communities
First, Groundwork, Youth Works. The voluntary sector and sports
club lead in this project and engage young people between the
ages of 10-16 who are at risk of offending and drug use.
— Youth Disco—This is an intervention
which takes place in the "Fluids Nightclub" in Maesteg
and "Sax Nightclub" in Bridgend. It engages large numbers
of young people. They are supervised by Police, club staff, youth
workers and trading standards. It allows up to 1,200 young people
between the ages of 14-17 to engage in a nightclub environment
during set hours in an alcohol free environment. The drinks dispensing
areas are covered up as are all alcohol related advertisements.
A police patrol takes place outside the premises to ensure that
parents are able to park directly outside and to pick up at a
designated point.
— CCTV—There are currently 154
cameras operating in the County Borough. This includes 40 cameras
covering main town centres of Bridgend, Maesteg, Porthcawl, Pencoed.
Over 60 cameras covering Town centre car parks and park and ride
centres. There are a 16 static cameras installed at the Ogmore
Vale Comprehensive school which react to a movement sensor to
provide out of school hours security.
The new Bridgend Bus Station has 24 cameras
installed, some moveable and some static. The service provided
by the CCTV Unit is extended to cover the three emergency SOS
help button points which allow direct communication to an Operative.
Cameras record 24 hours a day seven days a week
equivalent to over one million hours of recorded footage each
year. There are currently 85 monitors, 66 full screen and 17 quads
(four pictures on screen) plus rotating pictures on some screens
for cameras such as Ogmore Vale Comprehensive. Two monitors link
directly into the Police HQ.
The unit has eight full time operatives, two
part time and a pool of casual workers. There are two Operatives
on each shift with a third Operative on Friday, Saturday and Sunday
night. Operators work a 12-hour shift pattern. Monitors are also
being installed at Morien House where officers will be able to
monitor the flow of traffic in the borough. The Unit is in constant
contact with a number of Bridgend stores and nightclubs through
the Storenet and Nitenet radio system. Maesteg system will go
live in the New Year. The Unit has now been equipped with the
Police Airwave radio which allow operatives to communicate directly
with the police in an emergency.
Last year the Unit recorded over 3,000 incidents,
including 1,200 Public Order Offences and 50 serious incidents.
8. MAJOR OBJECTIVES
8.1 My evidence so far relates to the broad
range of activity undertaken by the Partnership. I would now wish
to turn to some specific issues and which I consider to be major
objectives and challenges for the Partnership in the immediate
future.
8.2 Anti-Social Behaviour—Undoubtedly
this will be a major challenge for the Partnership. Although much
activity has been undertaken in this area more will need to be
done. It is considered however that the solutions, if existing,
must certainly be commensurate to the challenges which are faced.
Additionally, those solutions must be sustainable and not simply
short-termist and partial. There is also a social argument as
to a need to have mutual understanding of what is considered to
be acceptable or unacceptable behaviour. This in itself is an
essential prerequisite to establishing a society of mutual co-existence
amongst all age groups. ASBOs are therefore an important tool
to be used where appropriate but not simply as a first line of
engagement by virtue of which young people could end up being
criminalised. In furtherance of these sentiments the Partnership
has adopted a four-stage approach of intervention before moving
to secure ASBOs through the courts, viz:
— Stage 1 letters (800 issued since
April 2004).
— Stage 2 letters (109 issued since
April 2004) together with follow-up visits.
— Stage 3 letters (26 issued) and those
individuals referred to a problem solving group, out of which
five are being monitored on an on-going basis by the Partnership
and 21 referred to youth agencies for diversionary intervention.
— Two criminal ASBOs have been issued
by Bridgend Magistrates' Court on application.
— Key individuals are being monitored
to establish whether other ASBO applications should be made.
The Partnership therefore at present has high
levels of youth annoyance intervention but as yet a low number
of actual ASBOs. Recently this has been commented upon favourably
by the Chairman of the Youth Justice Board.
8.3 Priority Prolific Offenders Scheme—Government
and the Partnership both recognise that a large number of crimes
are committed by a small number of criminals. To target these
individuals is, therefore, a Partnership priority. The three stages
to the scheme are:
— Rehabilitate and resettle
The Partnership has already identified key individuals
within the scheme and will be furthering the principles of the
scheme accordingly.
8.4 Multi Agency Public Protection Arrangements
Group (MAPPA)—The Partnership is represented on the above
group via the presence of the Partnership Co-ordinator who reports
back to the Partnership on MAPPA activity. This group is a multi
agency group brought together for both assessing and managing
the risk posed by sexual or potentially violent offenders in our
community. The Partnership will continue to support the work of
MAPPA and its objectives.
8.5 Related strategies—It is crucial
that the work of the Partnership and its published Crime Reduction
Strategy interfaces with other strategies with common or similar
objectives.
8.6 The multi agency Community Strategy
for the County Borough of Bridgend is now in the process of being
published. This is led by the Council engaging with material partner
agencies in response to the statutory requirements contained within
the Local Government Act 2000. Effectively this will determine
the form of society which all partner agencies wish to achieve
within the County Borough over the ensuing 10-12 year period.
In these respects issues of Community Safety and Wellbeing will
be high on the agenda.
8.7 In particular the Council will be driving
issues of Community Safety into matters of town centre and community
regeneration to ensure that it has a high level of presence. It
is essential, therefore, that the work of the Partnership and
the Crime and Disorder Strategy effectively supports and links
in with not simply the Community Strategy and also with the Health
Social Care and Wellbeing Strategy and the Substance Misuse Strategy
to name a few.
9. OBSTACLES
TO BETTER
AND MORE
EFFECTIVE WORKING
9.1 Notwithstanding the endeavours and some
successes which have been achieved by the Partnership it is considered
that there is room for more effective working and greater achievement.
It is both considered and suggested therefore that there are matters
of consideration which can be applied at higher levels of authority
and which can assist in these endeavours. Some of the principal
issues referred to are:
9.2 Funding Arrangements—These have
already been described. It is suggested, however, that they can
be more simplified and which would assist greatly in terms of
forward planning. In addition to simplification, declarations
as to future levels of resourcing would also be appreciated. In
Bridgend there are many issues which replicate problems which
are being experienced on a national basis. However, there are
also matters of local circumstance which can be best addressed
through local solutions, albeit with national resources and empowerment.
The grant funding arrangements appear very much to reflect national
priorities but which are restricted in their application to local
circumstance. Whilst accepting inherently the need to performance
manage and measure outcomes greater elasticity would be appreciated
in applying resource streams to local projects. Additionally there
are vexing issues as to matters of revenue and capital funding
and the transposition of monies between those separate funding
streams.
9.3 The legal status of Partnerships
(CSPs) —It is considered that there is an inadequate
statutory definition concerning the legal status of CSPs and of
which Bridgend is one. Increasingly grant and revenue funding
resource streams are being directed to Partnerships. However,
the locus in quo and legal capacities of Partnerships need to
be more fully defined. The current position in a single partner,
usually the Local Authority, dealing with issues of contracting
and employment, eg holding the contracts of employment for Partnership
personnel as referred to and holding the lease of office accommodation
when acquired. It is suggested that empowerment in the absence
of legal capacity is unsustainable and needs to be addressed.
9.4 Partnership Working—I feel
confident in saying that Partnership working and the endeavours
of Partners in Bridgend are in a high order. However, that does
not mean that they cannot be furthered. The key partners within
the legislation are Local Authority, Health, Police and Probation.
Local Authority and Health are devolved functions, Police and
Probation are not. The Fire Service which has an increasingly
important part to play in this agenda is moving to devolved status.
As Partnership chair and also within an All-Wales context I feel
conscious of the disparity of joint working which can arise within
this matrix of devolved and non-devolved statutory responsibilities.
It is, therefore, respectfully suggested that there could be room
for better, more effective and joined-up agenda setting and resource
direction between Government agencies, both devolved and non-devolved.
Effectively what is required is national support to resolve local
problems.
9.5 Bridgend Youth Offending Team—Bridgend
YOT is considered to be a good performer. The YOT work with approximately
between 120 and 150 young offenders at one time. Obviously this
fluctuates. It also works with parents and victims within the
interventions. It has maintained a good standard on a quarterly
basis, mostly coming second in Wales, first in South Wales and
in the top 20% UK wide.
The YOT takes restorative justice seriously
and has seen that involving the victim does indeed impact on the
success of the programme. For example April 2002-March 2003 there
was a 71% successful completion rate for Referral Orders. 50%
of the Referral Order interventions at that time involved the
victim. April 2003-March 2004 there was only a 57% successful
completion rate but there was only 32% victim involvement as YOT
had lost its Victim Offender Mediation Worker to Cardiff who paid
more and guaranteed a full time post. On average between 35 and
40 hours of supervised reparation within BCBC takes place each
week.
However, and with that being said, it is considered
that both in Bridgend and in the Principality more effective working
can be undertaken with the following matters being addressed:
— Funding arrangements—As
stated this is a combination of Youth Justice Board grant and
Partnership contribution. In the latter respect and whilst the
YJB has issued guidance on the aspect of equitable Partnership
contributions there is no prescription in that area. Accordingly
in Bridgend the Council has to bear any losses and shortfalls
on the annual round as a consequence of Partner contributions
falling short of that which is necessary to break even. This is
not conducive to good Partnership working and inhibits forward
planning programmes due to financial uncertainties.
— Accommodation—In Bridgend
there is a lack of suitable accommodation for the provision of
16-18 year olds. This has meant recently that the Bridgend YOT
has had to place young persons in bed and breakfast accommodation.
Potentially this causes disruption to the lifestyle of such young
people and possibly increases the risk of offending. It also increases
the financial cost to the Council itself as either Children's
Services or the YOT has to incur these costs.
— Children and Adolescent Mental
Health Services (CAMHS) —There are many young people
within the criminal justice system who are mentally ill. Sadly
this diagnosis only arises once a young person is within the criminal
justice system having offended. It is suggested that there is
a need to accelerate the development of CAMHS with some immediacy
to deal with this worrying prospect.
10. CONCLUSION
10.1 Intendedly this evidence has been given
to assist in an understanding of the work of Safer Bridgend, some
of its achievements and the challenges which it faces. I do, however,
feel that there is a wider message which can be shared around
effective working on an All-Wales basis in the area of Crime and
Disorder. Notwithstanding the fact, as stated, that there remains
devolved and non-devolved functions in terms of Partners, I do
consider that there is an immense prospect of better and more
effective working on an All-Wales basis.
10.2 Wales institutionally has a compact
structural base. This is comprised of, inter alia:
— Four Probation areas, and
— Welsh Assembly Government
I earnestly believe, therefore, that there is
a prospect of developing a "Pan-Wales" agenda on Crime
and Disorder issues and which could bring the work of the Community
Safety Partnerships into a better and more effective environment.
10.3 In my position as lead Chief Executive
in Wales on Community Safety issues, I was instrumental in setting
up an All-Wales Crime and Disorder Forum. This met on several
occasions in 2002-2003 and was attended by senior management of
the above-mentioned agencies, eg Chief Executives, Chief Constables
etc. This enabled discussions to take place on strategic issues
on an All-Wales basis and which the then Crime Reduction Director
in Wales felt was an extremely opportune and authoritative environment
in which to engage. Some of the subjects discussed on those occasions
included:
— Secure accommodation for young offenders
in Wales
These were strategic, important issues which
facilitated an All-Wales dynamic and dialogue to engage them.
Unfortunately, due to a lack of resourcing the work of the group
has not continued. I am, however,
opening a dialogue with Welsh Assembly Government
to hopefully reactivate this strategic forum. I have indicated
that I will be more than happy to continue to lead in this area
if some resourcing can be found to support its development.
I Keri Lewis O.St.J. B.A. (Econ) Solicitor
Chief Executive, Bridgend County Borough Council
Chairperson, Bridgend Community Safety Partnership
15 December 2004
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