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LIQUOR LICENSING AND PUBLIC DISORDER: REVIEW OF LITERATURE ON THE IMPACT OF LICENSING AND OTHER CONTROLS / AUDIT OF LOCAL INITIATIVES

Information gathering and dissemination

3.91 The use of information gathering and dissemination was also a key aspect of this type of work, and around two thirds (64%) of initiatives in this overall category involved the use of information / intelligence gathering and dissemination to address alcohol-related crime and disorder. This was often linked to the type of targeting discussed above, with police officers becoming more aware of the specific instances of crime in particular areas or among particular groups. In many cases, these initiatives were straightforward, intelligence-led policing, which is a growing part of the work of all forces.

3.92 In terms of more specific work of this type, the initiatives described here included 23 Pubwatch schemes in many different parts of Scotland. These were described in the literature review as involving the use of information-sharing between licensed premises in order to identify the movement of potential troublemakers and to prevent disorder.

3.93 In discussion with the SBPA, it was noted that members across the country get involved in such work at a local level, alongside the police. A similar point was made by the British Institute of Innkeeping which (although not running any specific initiatives in Scotland) noted that members are encouraged to run their pubs in a socially responsible, way and to join schemes and initiatives which promote best practice, including Pubwatch.

3.94 In general, the initiatives which respondents identified in this category were often found to be part of wider initiatives. One example of this was identified where a Pubwatch scheme comprising 14 members was supplemented by an initiative by the local police division to provide regular visits to licensees by plain clothes officers, who would give advice and support. A number of examples were also identified of Pubwatch schemes which worked in conjunction with either a local CCTV system or through a local radio or pager network.

3.95 A small number of initiatives (7) were identified which focused upon making it easier to report crime, sometimes for specific groups. One initiative, for example, focused on lesbian, gay, bisexual and transgender people in one city and encouraged the reporting of homophobic crime. Two examples were also identified of licensees in "high risk" areas being provided with personal radios, in order that they could contact the police directly to report incidents as these developed. A further example was found where an initiative involved the provision of a wristband alarm to women at risk of what was perceived to be alcohol-related domestic abuse, enabling them to summon the police quickly and easily. Other forces in Scotland also provide alarms to women experiencing domestic abuse, and this may be seen to link to some aspects of alcohol-related crime (although it should be stressed that it is not suggested that alcohol is the cause of domestic abuse).

3.96 It is interesting to note that only 4 examples of the use and implementation of CCTV were specifically identified, and only as a component part of a wider initiative. This is perhaps indicative of the extent to which CCTV has now become an integral part of mainstream crime prevention and detection in Scotland. Although some areas may see this as having a role to play, it was not generally identified as a specific initiative to tackle alcohol-related crime and disorder.

3.97 Finally, in relation to the use of information / intelligence, a small number of examples were identified of police forces which had prepared posters highlighting the potential alcohol-related offences (together with penalties) which typically occur in and around licensed premises. This overlaps with some of the point of sale information described later.

Controls on location of drinking

3.98 A much smaller proportion of initiatives in this category (13%) involved some form of control over the location of drinking. As noted earlier, a small number of responses (7) highlighted street drinking as their target. In each of these cases, local byelaws had been implemented as a means of prohibiting this. In total, 12 initiatives were identified which included either the current use, or consideration of the use of byelaws in the future for this purpose.

3.99 As with CCTV, very few respondents mentioned specific initiatives in relation to sporting events. Again, this is most likely because the relevant legislation has now been in force for a number of years and is, in effect, regarded as part of mainstream policing.

3.100 One example was noted, however, of a specific initiative undertaken by one police force in relation to informing licensed clubs, in the area of a newly-promoted premier league football team, of their responsibilities in relation to the enforcement of their membership rules specifically on match days. One force indicated that they had also implemented a policy of voluntary closure of off-licenses and beer gardens in the vicinity of football grounds both before and after matches.

3.101 A further leisure-related initiative was identified whereby a police force had specifically targeted disorder by young people in the vicinity of an ice skating rink. Young people in the area were dispersed and any alcohol confiscated.

Drink driving

3.102 Similarly, a small proportion (11%) of these initiatives involved tackling drink driving, although it should be noted that ACPOS responded to note that all of the police forces in Scotland are involved in tackling drink driving, making this a country-wide initiative (helping to explain the small actual number). The SBPA also noted that tackling drink driving is an area of work in which they are involved.

3.103 Specific initiatives which were identified at the time of the research were of two types. The first involved drink driving campaigns, with the national Scotland-wide festive road safety campaign noted specifically here. This involves all Scottish police forces and includes high profile intelligence-led patrols, targeting drink driving, targeting prominent crash locations and promoting "Crimestoppers". In addition, one area identified a specific initiative in the summer of 2001 to detect drink driving offenders, especially tourists. This respondent noted that, during a 4 day period, 103 drivers were stopped and 9 offences detected. Other work involved the identification of 8 local designated driver schemes, where the identified driver was provided with complementary soft drinks for the period.

3.104 In the context of general initiatives to address drink driving, the SBPA also drew attention to "Wheelwatch". This involved the development of a good practice guide for pubs, as well as the provision of advice relating to issues such as alternative drinks for drivers, the identification of ways of enabling drivers to get home safely and other aspects of responsible sales practice as a means of promoting road safety.

3.105 It should be noted here that much of the work to address drink driving involves preventive work which has not been identified here, other than through the national campaign, as the focus is primarily upon regulation and control.

Perceptions of success

3.106 In terms of perceptions of the success of these types of work, 66 initiatives of this type (62%) were seen to have been successful. In around a third of cases (32%), respondents did not indicate whether or not the initiatives were seen to be successful (e.g. where it was too early to identify this). Only 7 believed that the initiatives were not considered to be successful.

3.107 By types of work, it was found that:

• 61% of initiatives to target specific groups or areas were considered successful
• 65% of initiatives using intelligence and information were considered successful
• 64% of initiatives involving controls upon the location of drinking were considered successful
• 58% of initiatives to tackle drink driving were considered successful

3.108 These figures indicate that work was seen to be successful in the majority of cases, and the experiences of respondents indicated that each of these types of work could, in some instances, be a successful way of tackling alcohol-related crime and disorder. The very small number of initiatives perceived as unsuccessful indicates that almost all of those, which were at a stage at which they could identify the impact, considered that this had been positive. There was no identifiable type of initiative perceived as particularly successful or unsuccessful, with all types largely mirroring the overall picture of success or otherwise.

3.109 Some of the additional observations relating to reasons for success of specific types of work are outlined below.

Targeting groups / areas

3.110 As was the case in the first category, few formal evaluations of initiatives had been undertaken, with only two specifying this type of work. One of the police forces noted that, in relation to this, that:

"an independent evaluation of such initiatives [intensive policing / targeting] to identify which ones work best in which situation would be helpful".

3.111 In relation to "clampdown" type initiatives, for the most part there was little evidence provided of tangible measures of success. In a small number of cases, particularly those linked to violent crime, it was indicated that more time was needed before the impact of the initiatives was properly felt.

3.112 There was, however, a formal evaluation carried out of the multi-agency project identified earlier which was carried out in a housing area of a large town. The evaluation considered all aspects of the work, and noted that the law enforcement element (as was the case with the other work) had been valuable. During the period of the work (June - August 2001), the evaluation report noted that 140 people had been stopped and searched, 23 charged with consumption of alcohol in a public place and 4 people over 18 charged with buying alcohol for under 18s. Although no comparative figures were provided, the work was considered to have been successful.

3.113 In addition, the respondent providing details of the Spotlight initiative noted that there had been an overall drop in reported violent crime of almost 8% compared to the same period in the previous year. All categories of serious violent crime had decreased and this was seen to have been successful. In addition, during the year long initiative, over 5000 knives or weapons had been seized. It was also noted, however, that there remained a problem that the:

"underlying culture of weapon carrying and alcohol misuse will take longer term plans to influence".

3.114 The respondent reporting the Safer Scotland Violence campaign also noted that violent crime in Scotland fell by almost 8% in the last three months of 2000 (the period of the campaign) and that this, too, was considered as a mark of success. More generally, however, two positive impacts were reported in relation to targeted initiatives. The first was a perceived increase in the number of offenders detected, and the second was an increase in public awareness of the issue. One police force, for example, reported that targeting a specific shopping area had led to:

"a noticeable drop in the amount of calls from the public about the behaviour of youths in the areas covered".

3.115 A further example was given of an area in which a period of intensive policing had led to a reduction in the number of youths congregating in a hot spot area, and a reduction in the number of calls about their behaviour. High visibility policing in another area in the vicinity of a nightclub at dispersal times, coupled with police visits to food outlets, taxi drivers and licensees, had led to a shorter timespan during which young people were in the town centre after closing time and less "drunken / anti-social" behaviour.

3.116 Generally, it was often suggested that such high visibility policing led to a:

"significant drop in incidents of rowdy behaviour with young people less inclined to become involved in it, due to police presence and policy of one warning only being robustly applied".

3.117 Other police respondents, however, suggested that a lack of resources and staff shortages could undermine the effectiveness of this type of initiative (although they were considered to be "well worth running"). It was also seen to be important that there was appropriate action taken to supplement high visibility policing, as one respondent noted that an initiative had been unsuccessful since people had become aware of:

"news of no formal action being taken and withdrawal of alcohol counselling. Numbers have increased".

3.118 Many of these initiatives, however, identified a public perception that the extent of the targeted problem at the end of the work was less than before the initiative was undertaken. Evidence included feedback from local residents and licensees about the extent of, for example, noise-related disorder. One respondent also provided an example of an off-sales license holder who had been reported for selling alcohol to young people who were under age.

3.119 In some cases, additional examples were provided of intangible benefits, for example in terms of perceived improvements in the relationships between the police and either local residents or licensees.

Proof of age

3.120 There was little comment made in relation to the success of local proof of age schemes although one respondent, as noted earlier, suggested that cards were more likely to be used where they did not only focus upon proof of age, but provided young people with other benefits too. In those cases where proof of age cards with additional benefits (such as, for example, discount schemes) were provided, high take up rates of these were reported.

3.121 In addition, a small number of respondents identified that a national proof of age scheme would be beneficial, an issue which was raised previously in the literature review and also emerged in the written consultation for the Plan for Action.

Intelligence gathering

3.122 There was also little formal evaluative information regarding the development of initiatives relating to information and intelligence gathering/sharing. There was again, however, a large amount of anecdotal evidence offered. One police respondent suggested that a Pubwatch early warning scheme:

"has been instrumental in deterring disorderly behaviour on licensed premises"

although the lack of statutory recognition of such schemes was noted.

3.123 One police division reported a small survey which had been carried out on the impact of a Pubwatch scheme on a particular street. A year to year comparison had been undertaken which showed a large reduction in disorder since the introduction of the scheme, which, it was suggested, had increased safety, reduced violent crime and helped to identify trouble makers. A further police force noted a reduction in crimes of violence in premises involved in a scheme in their area, and it was also suggested that there was less "aggro" at the door.

3.124 Another respondent pointed to the involvement of licensees as evidence of the success of such schemes, as:

"they believe that Pubwatch has had a significant effect on the behaviour and attitude of customers in their premises".

3.125 A further point made by one respondent was that the implementation of Pubwatch schemes in small towns in rural areas could have a very significant impact upon alcohol-related crime and disorder, as it effectively prevented known troublemakers from having any means of socialising outside of their homes.

3.126 One constraint upon Pubwatch which was noted by some police, however, was the reluctance to disclose the particulars of the "culprits" because of fears related to the Data Protection and Human Rights Acts. One respondent suggested, for example, that Pubwatch schemes could be improved by:

"formal recognition, clarification of police involvement in respect of data protection and human rights issues".

3.127 It was also identified that one of the keys to success in relation to these schemes was the widespread participation of licensees in a local area. For example:

"if one breaks the link in this chain, then it provides an outlet for offenders to socialise".

3.128 A number of respondents identified that a particular success of Pubwatch schemes had been the fact that the local pub managers now talked with each other regularly about shared issues and problems, and were able to discuss these with a nominated police officer. For example, as one respondent suggested:

"we now have 14 pub managers who talk to each other regularly and are able to talk to a police officer who is known and trusted by them".

3.129 In terms of the use of CCTV, one respondent noted that this had led to a significant reduction in vandalism and anti-social behaviour in the area, as well as providing public reassurance. A number of "spin off" benefits of CCTV were also identified by one police force. It was noted that the use of CCTV made it much easier to establish the development of alcohol-related violent incidents over time. This was perceived to have two benefits. The first related to ensuring that the correct persons were charged and appropriate charges made. More widely, this force also identified that it had used CCTV footage as part of the process of educating licensees, servers and door staff about ways in which the development of alcohol-related incidents could be averted at an early stage. One respondent suggested that mobile CCTV may be more cost-effective and beneficial for large rural areas.

Locations / drink driving

3.130 The same pattern of lack of formal evidence emerged in relation to the initiatives reported to address locations of drinking and drink driving. There was no evidence provided of the formal evaluation of initiatives to address street drinking, but again police information was useful and anecdotal evidence was provided. One respondent noted, in this context, the difficulties in monitoring and measuring the impact of such work.

3.131 In terms of the use of byelaws, it was noted by one Licensing Board that these can:

"remove drunken rowdy persons from streets and prevent unlawful behaviour at an early stage".

3.132 A further respondent suggested, however, that:

"the effectiveness of these byelaws varies in relation to the nature and extent of problems being experienced and it is acknowledged that byelaws alone are not a panacea for eliminating anti-social behaviour". Nevertheless, they are an extremely useful tool and a valuable addition to any long term strategy".

3.133 The same respondent noted that the prohibition of street drinking had helped to reduce violence involving the use of glassware outside of licensed premises. One police respondent noted the difficulty of eliminating disorder linked to street drinking, however, suggesting that there remained an ongoing problem in that area, despite work to address this.

3.134 In relation to drink driving, the impact of the festive campaign, in terms of the number of convictions, had not been assessed by the point at which this research was carried out. It was suggested, however, that there was heightened public awareness of the issue. There had been one formal evaluation of driver training undertaken as part of a drink/ driving initiative. This indicated that 100% of participants felt that they had a clearer view of the road safety issues involved, and that there had been a significant decline in conviction rates.

General issues

3.135 The importance of joint working was again seen to be important in initiatives which fell into this category. In the 7 cases where initiatives aimed at specific groups, geographical areas and types of crime were not considered to be successful, four issues emerged:

• Initiatives trying to address too many issues within too short a time
• Lack of sufficient funding
• Lack of impact on offending behaviour
• Lack of public support for the initiative, with the police and shop owners seen as "over reacting"

Generally, however, there was a positive view of the impact of targeted initiatives upon alcohol-related crime and disorder.

INITIATIVES RELATING TO THE ENVIRONMENT / CONTEXT OF ALCOHOL CONSUMPTION

3.136 The literature review identified the third category as comprising the use of measures to regulate the context or environment of alcohol consumption. This was highlighted as an area on which there had been a growing focus, and over a quarter of the initiatives which were found in Scotland included work relating to this type of objective. These measures were found to include:

• Staff training
• Point of sale information and health warnings
• Changes to the physical environment
• Control of the promotion of alcohol
• The materials used (e.g. toughened glass / control of bottles)

3.137 A total of 57 examples were identified of initiatives which undertook this type of work, comprising 28% of all of the initiatives undertaken. It was found, as has been the case in the other categories, that the initiatives identified in Scotland were largely consistent with the types of work which were identified in the literature review. The types of work which were identified here are detailed in Table 9.

Table 9. Types of work

3.138 Table 9 identifies clearly that the main focus of work relating to the drinking environment has been upon staff training. As was the case in the other initiatives described, much of this work was combined with other work within the other categories.

Target behaviours

3.139 The initiatives in this category identified a range of types of behaviour which would be addressed by the work (see Table 10).

Table 10. Target behaviours

3.140 The perceived links between the drinking environment and issues such as violence / aggression, binge drinking and under age drinking (which were identified in the literature review) were clear from the targets of these initiatives. In addition, many respondents clearly shared the view that there was an opportunity for developments in staff training and improvements to the design of licensed premises to impact upon such problems, and this has been translated into the development of initiatives of this type in Scotland.

3.141 The reasons for the development of these initiatives were again varied, and included:

• Identified public concern
• Public consultation
• Discussions with licensees
• Community Safety Partnerships
• Local implementation of national initiatives

Specific examples

3.142 As in the previous categories, some more specific examples of the work which was carried out are given below.

Staff training

3.143 Of the staff training identified, this was most commonly for servers / license holders but also, in several cases, for door stewards. Server and licensee training schemes were identified across Scotland, with many respondents drawing attention to the use of Servewise (and the earlier Server Intervention Programmes) in their local area. In these cases, examples were given of training being provided to local trainers by a Servewise Co-ordinator, to allow them to subsequently provide this to staff and licensees. The response from Alcohol Focus Scotland noted that courses for on-licenses and off-licenses are provided by 35 Servewise centres (which include colleges of further education, training organisations and the licensed trade). All of the trainers are licensed and trained by Alcohol Focus Scotland before delivering the training in their own areas. The SBPA respondent also noted that the Association encourages staff training amongst members as an aspect of good practice.

3.144 A small number of local door steward registration schemes were identified, where training provision was linked to this. These schemes, in turn (as noted earlier), were sometimes linked to the provision of extensions to opening hours. An example of targeted training to door stewards for one-off events was also provided in one area. Local training was provided to organisations (community associations and agencies) running community events. This involved a four hour course which covered issues such as alcohol and drugs, basic first aid, safety and "people handling".

3.145 One Licensing Board provided details by letter of their policy on acceptance as a fit and proper person to be a licensee, with the introduction of this policy following discussions with a range of organisations with an interest in this issue. The policy document suggested that it would be used in assessing applicants, and specified (amongst other requirements) a need for the applicant to have undergone training on the management and control of licensed premises, or to do so within three months of the grant of the license.

3.146 Another Licensing Board provided information by letter about a policy to be introduced at the start of 2002 to make training mandatory for all licensees. Following the introduction of the policy, applicants will require to provide a certificate to demonstrate attendance at a recognised and appropriate training course.

3.147 An earlier part of this chapter has discussed the use of staff training as part of the imposition of conditions upon granting licenses. A small number of cases were identified where staff training was also included in wider environment-related initiatives such as:

• The development of good practice guidance
• Initiatives aimed specifically at a group of licensees, such as minority ethnic licensees (one piece of work, for example sought to identify and address issues affecting this group)
• Initiatives designed to promote more general "responsible retailing" (which clearly overlaps, to some extent with work such as the control of promotions)

3.148 One specific example was identified of training for license holders which was promoted jointly by a college and trade association. A further instance was identified of training being provided to off-license staff in businesses operating a voluntary minimum alcohol purchase age of 21.

3.149 Generally, these initiatives involved a straightforward staff training process to improve staff understanding of the relevant issues and to equip them with the skills necessary to deal with situations (including alcohol-related crime and disorder) which they might encounter in their work.

Attractive outlets / design and layout

3.150 A total of 16 initiatives were identified which involved specific work relating to the design and layout of licensed premises. In most cases this involved raising awareness amongst licensees and staff of the ways in which the environment and the layout could impact upon reducing the risk of disorder. Staff then implemented these changes as far as possible.

3.151 Two specific examples were identified of initiatives taken by police forces to provide proactive advice to license holders and / or architects. These initiatives involved a number of licensed premises across areas. A further initiative involved a joint approach by a police force and a nightclub operator in order to develop new premises as a model of best practice in using architectural design as a means of minimising the likelihood of disorder both inside and outside. The nightclub was focusing on the physical design and management of the premises, as well as other factors. Yet another initiative involved a police Architectural Liaison Officer providing "influence and expertise" on the design of buildings at the planning stage. The service was provided free to all architects.

3.152 A specific initiative which impacted upon the promotion of a more attractive overall environment was also identified. This focused upon the removal of graffiti and the effects of vandalism in an area. Instances of problems were collated by the Community Safety Co-ordinator in the area, and referred to the appropriate organisation for action.

3.153 One Licensing Board noted that, when consideration was given to regular extensions to permitted hours, they requested a management statement about:

"the availability of alternatives to alcohol, food provision, training for bar staff, provision for underage persons, no smoking areas, smoke precipitators or extractors and what stewarding is to be available for each event, the amount of male and female stewarding and where they are to be located in the premises".

All of these factors were seen to provide a means of controlling the nature of the drinking environment.

Use of specific materials

3.154 Ten initiatives highlighted the use of specific materials. In most cases, this related to the use of toughened glass in licensed premises. In a number of cases, this was linked to voluntary restrictions on the types of alcohol container which could be sold for off-sales through pubs.

3.155 One example was provided of a Licensing Board which had introduced a policy whereby premises were obliged to use toughened glass as a condition of their license. It was suggested that (as noted earlier) this had reduced the likelihood of serious injury where glassware was used in an assault. Another respondent noted by letter that non-glass drinking vessels must be available on request for children. Another example was identified of a voluntary restriction accepted by landlords in one area in relation to not serving any drinks in bottles within one hour of closing time. It was indicated that this initiative was linked to work by stewards within these premises taking steps to identify whether any glass containers were being removed by patrons.

Control of promotions

3.156 A very small number of specific initiatives (4) were aimed specifically at the control of promotions (although these covered a large number of licensed premises). Such work generally involved the provision of advice and good practice information to licensees to allow self-regulation. The SBPA also noted that it was involved in the provision of information to all of its members in relation to responsible practices, with the development of a good practice guide on promotions.

3.157 As noted earlier, one Licensing Board also indicated that it made it clear to licensees that "happy hours" are:

"the epitome of drinking for drinking's sake and contrary to the philosophy of civilised drinking".

Another also noted that they had expressed their concerns in relation to discounted alcohol and have had these views drawn to license holders' attention.

3.158 One respondent suggested that:

"in [area] an acceptable level of drink promotion in licensed premises currently exists. Where singular extraordinary promotions can be linked to problems with disorder, a letter highlighting police concerns is generally submitted to the licensee".

3.159 Two Licensing Boards noted by letter that when children's certificates were granted, among the conditions were that there would be no "happy hour" or similar promotions in operation during the hours when the children's certificate was in force. One example was identified in a local area of the ongoing development of a code of practice for licensees. This code of practice had arisen from a joint initiative by the Licensing Board and trade, and was expected to include provisions relating to both pricing policies and drinks promotions.

Point of sale information

3.160 Five initiatives were identified which were aimed at the provision of point of sale information. In one of these cases, this involved the provision of information on beer mats across a local area. In another, this involved the provision of offences notices and guidelines by the police (with posters and notices circulated to all license holders) with the intention that these should be displayed at licensed premises. One area circulated "Behave or Be Banned" posters to licensees for display.

3.161 In the third and fourth cases, the provision of information for display was provided as part of a wider initiative which involved law enforcement, community involvement and educational work alongside this. In these cases, licensees were given window and till stickers, and posters, with the "no sales to under-18s" message. In one of the initiatives, adults who bought alcohol were also given a flyer to remind them of the law in relation to purchasing alcohol for under-18s.

3.162 It is recognised that the use of point of sale information overlaps with some elements of education / awareness raising work, rather than specifically involving control and regulation, and it is likely that this may be the reason for the relatively low number of initiatives of this type which were highlighted.

Other work

3.163 One Licensing Board noted by letter that they had developed a set of byelaws which stipulate that no sectarian or racist singing, or playing of racist or sectarian music (live or recorded), will take place on licensed premises. The byelaws also stipulate that no literature or objects of a sectarian nature are to be displayed in any part of the licensed premises which are accessible to or can be seen by members of the public.

Perceptions of success

3.164 In terms of perceptions of the success of these types of work, 35 (62%) of initiatives of this type were seen to have been successful. The remainder did not respond to this question (for example, where an initiative was still underway), while none in this category believed the initiative to have been unsuccessful.

3.165 By types of work, it was found that:

• 63% of staff training initiatives were considered successful
• 81% of design / layout initiatives were considered successful
• 60% of initiatives involving the use of particular materials were considered successful
• Two of the four initiatives relating to promotions were considered successful (while the others were at a relatively early stage)
• The initiatives relating to point of sale information were considered successful

3.166 A relatively high proportion of design / layout initiatives stated positively that they had been successful but the small numbers, and the fact that some of those of other types were still ongoing, make it impossible to suggest that these were more successful than other forms of work. It should be reiterated that none of the initiatives in this category were considered unsuccessful, giving a very high level of success amongst those initiatives which were in a position to identify this.

3.167 Few comments were made relating to observations of the reasons for success (or comments on examples of good practice) for initiatives of this type, but some of the issues raised are outlined below.

Staff training

3.168 Although there was limited evidence of formal evaluations of any of the overall initiatives in this category, it was indicated that some of the staff training (for example, individual workshops, seminars or courses) had generally indicated positive outcomes. The results of these evaluations were described as having provided positive feedback and it was noted that there was a perception that many licensees considered the training to be useful. Examples of positive feedback from both the licensed trade and the police were provided. In addition, examples were given of an increase in searches being carried out by door stewards and generally higher levels of awareness of staff responsibilities and involvement.

3.169 More specific information was provided in relation to Servewise, which had been evaluated very positively at the pilot stage by the University of Paisley. In addition, it was reported that ongoing internal evaluation of Servewise has also proved positive.

3.170 The issue which was raised most frequently was in relation to participation in both strands of training (servers / licensees and door stewards). Although, in general terms, all respondents who were able to offer a view indicated that the initiatives had been successful, there was nonetheless a concern that the impact, in some cases, was lessened by the fact that training was, in effect, largely voluntary. In this context, it was noted that many Licensing Boards did not insist on training (although examples of the ways in which some of the Boards have done so were provided earlier).

3.171 It has been suggested that the consequence of the (largely) voluntary participation has been that take up has not always been as high as had been anticipated or as would have been preferred. One respondent noted, for example, that:

"some areas do have less success though, if participants (potential) don't respond … particularly if they are from premises known to have more problems".

The SBPA respondent also noted that one of the key challenges for the future is to secure the participation in training of individual retailers, whose time is limited and upon whom there are already seen to be considerable legislative demands.

3.172 As noted previously, the issue of securing staff participation in initiatives where this was not a condition of their license was raised frequently. In this context, a number of respondents indicated that, in their view, training (particularly for door stewards, but also for new licensees) should be mandatory and always a condition of the granting of a license. Added to this, there should be a requirement in law for training to national standards, with, for example, the suggestion that there should be:

"legislative change to make an element of training compulsory as part of meeting the fit and proper test".

3.173 This issue was raised, more generally, by one Board in relation to successful local work, with the need for:

"formal endorsement…. under new licensing legislation".

3.174 One Licensing Board also pointed to the need for training for license holders to be updated on a regular basis, and another for local training to be accredited. Alcohol Focus Scotland also pointed to the need to have training provision as a requirement, but for only properly vetted courses to be accepted.

3.175 The need for resources to co-ordinate trainers and to undertake marketing of the provision was also noted. One respondent also pointed to the need for diversity training for licensees and staff.

Attractive environment / design and layout

3.176 Design initiatives were generally seen to have had an impact upon alcohol-related crime and disorder. The use of the police Architectural Liaison Officer, for example, was seen to have been an effective means of promoting such developments, with this approach noted as:

"proven to reduce crime and influence behaviour",

although no statistical evidence was provided to support this perception.

3.177 Specific comments were also made relating to the initiative which focused upon graffiti removal. During the first 6 months of the pilot project, it was found that vandalism had been reduced by 42%. Reported vandalism in the area was down by 21% in the first year. The only suggested improvement to this initiative was that there could be increased commitment to the removal of burned out vehicles.

Control of promotions

3.178 There was little information provided in relation to the success of work to regulate promotions. Only one respondent commented upon this, where it was noted that there had been an attempt to introduce a voluntary code to address this issue, but many of the licensees in the areas had not been interested in participating in this.

Point of sale information

3.179 One of the projects using point of sale information had completed a formal evaluation of the whole project. In the course of that evaluation, the views of licensees were sought both in relation to the use of the information and the effectiveness of the work. The survey found a high level of use of the material by licensees, the majority of whom considered that this had been useful in deterring sales of alcohol to under 18s. There was also evidence of retailers passing information to others, and the evaluation report concluded that all groups involved in the project welcomed this and wanted to see it continuing.

Use of materials

3.180 The use of toughened glass was generally viewed positively when used along with other measures. One police force, for example, noted a reduction in their area in serious injuries from bottles (although actual figures were not provided). In another area, the police respondent reported that:

"in the policing year 1999-2000 there were 19 serious assaults in the city centre where bottles / glasses were used. This fell to 5 for the year 2000-2001".

3.181 Where premises no longer sold alcohol in bottles one hour before the conclusion of permitted hours, it was noted that this had:

"reduced the number of incidents of glass bottles being smuggled outside premises".

3.182 A concern was, however, highlighted by one police force about the current lack of British Standard for toughened glass, with the suggestion that this may potentially undermine initiatives of this kind. One police respondent pointed to the need to ensure that more publicans use toughened glass, along with the need for national pressure to ensure that producers use toughened glass for bottles. It is also worth noting, however, that a crime pattern analysis undertaken by one force suggested that broken glass may account for as little as 10% of the injuries presented at a local Accident and Emergency department following alcohol-related disorder (with many relating, for example, to the use of other weapons, such as belt buckles etc.).

3.183 Although, therefore, the use of such materials was seen as an appropriate initiative, the importance of using this in combination with other measures was evident and, as one police officer suggested:

"this is not a panacea".

This view was consistent with the issues raised in the literature review.

General

3.184 In terms of general comments, it was noted by one police force that their policy on sponsorship precluded cash contributions being made to police initiatives by trade organisations and private interests, and limited their involvement in some work. This meant that this force had to seek (and had been successful in securing) a range of "in kind" inputs, such as distribution of materials, input of staff time and items such as t-shirts etc. from trade and industry representatives.

3.185 Again, however, as with other areas, the importance of joint / partnership working was stressed in relation to increasing the success of initiatives to develop or improve the drinking environment. The SBPA, for example, stressed that staff become involved in discussion and implementation of many initiatives of this type and the value of co-operation in securing success was emphasised.

OTHER WORK

3.186 Although the focus of this research was on initiatives relating to regulation and control of alcohol and the drinking environment, it was noted earlier that many respondents reported other types of work which were aimed specifically at reducing alcohol related crime and disorder. All of the work reported did focus upon crime and disorder, rather than comprising more general preventive work. Although this was not central to the focus of this report, a brief summary of the initiatives in this category may, nonetheless, be of interest. These "other" initiatives generally involved preventive work and service provision, and examples included:

• Public education
• School based education and awareness raising in a range of forms, including primary and secondary schools
• Arrangement of conferences, seminars and other awareness raising events
• Counselling
• Street and outreach work
• Peer education
• Groupwork programmes
• Provision of low cost leisure alternatives or promotion of healthy lifestyle options
• Service provision to people with alcohol-related problems
• Developments in good practice in assessment
• Designated places
• Awareness-raising
• Information production and provision in a range of forms including posters, CDs videos and leaflets
• The use of diversion from prosecution by the courts
• The use of pre-court diversion by the police
• Support to specific groups of offenders
• Appointment of specialist staff

3.187 In addition, a number of respondents identified that large scale preventive work (such as the Scottish Executive TV advert "Lily the Pink" and a series of radio advertisements promoted by Strathclyde Police as part of the Spotlight Campaign) could have an additional impact on alcohol-related crime and disorder, although they did not focus directly upon this.

3.188 A total of 61 initiatives comprised only "other" work. The remaining 26 initiatives in this category provided an additional element to initiatives being carried out in one of the three relevant categories described previously. Examples of the ways in which these combined with regulation and control included:

• Public education used alongside a "clampdown" on specific behaviour" to encourage understanding of the issues and to contribute to the overall effort to reduce the problem identified
• Visits to schools used alongside specific initiatives targeting, for example, street drinking and alcohol-related disorder amongst young people
• Production of leaflets and posters to accompany intensive policing and raise wider awareness of the issues

3.189 From this, it can be seen that these "other" initiatives generally involved preventive work or the provision of services to people with alcohol problems. Two initiatives were identified, however, which involved the direct provision of transport. In one case, this involved the provision of subsidised transport to young people to allow them to maximise their use of non alcohol-based leisure facilities. In the other, this involved the purchase by a nightclub operator of dedicated transport (minibuses) to carry patrons home.

3.190 The value of these forms of work was also stressed, with some providing details of evaluation work which had been carried out. In the context of this report, however, the inclusion of these initiatives serves to emphasise the importance of conducting a range of different types of work in combination to address alcohol-related crime and disorder.

OVERVIEW

3.191 This chapter has outlined some of the current and recent initiatives in Scotland to tackle alcohol-related crime and disorder. It is clear that these reflect the areas covered in the literature review, with the largest proportion of work undertaken focusing upon law enforcement, and regulation of availability and consumption of alcohol for specific groups, or in particular areas.

3.192 Taken together, the information from the literature review and the data from initiatives in Scotland provide an indication of some of the work of this type which can be considered to be effective in tackling alcohol-related crime and disorder. The final chapter summarises the implications of these findings.

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