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Chapter One: Introduction
About this Report
1.1 This report presents the findings of a research study of how local antisocial behaviour strategies are being developed and delivered in Scotland, and what impacts these strategies are having within local neighbourhoods. The study was conducted between February 2006 and April 2007 by teams of researchers at Sheffield Hallam and Heriot Watt Universities, supported by an independent expert in the economic evaluation of selected initiatives.
1.2 Tackling antisocial behaviour is a key priority for the Scottish Executive. The Antisocial Behaviour Act etc. (Scotland) 2004 introduced a range of new legal measures and powers for tackling antisocial behaviour. The Act required local authorities and police Chief Constables to develop antisocial behaviour strategies for their areas, which reflected the Scottish Executive's view that interventions to tackle antisocial behaviour should primarily be delivered at local level, supported by a national funding and guidance framework. The ultimate aim of both national and local antisocial behaviour strategies is to have safer communities where fewer people suffer from problems caused by antisocial behaviour ( Scottish Executive Guidance on Accountability Framework and Outcome Agreements, 2005: 2).
1.3 In developing their antisocial behaviour strategies, local authorities were required to identify the local areas where antisocial behaviour was a problem and to target resources at these areas. The impact of antisocial behaviour strategies at a local authority level is subject to monitoring though performance reports which are submitted annually to the Scottish Executive. The aim of this research was to evaluate the impacts of antisocial behaviour strategies at the local neighbourhood level, using a selection of 4 local authorities and 8 case study neighbourhoods.
1.4 Chapter 1 of this report provides the context for the research, including how neighbourhood-level interventions are located within the national policy, funding and delivery framework. It briefly describes the aims and objectives of the research and the research methods used in producing this report. Chapter 2 describes how antisocial behaviour strategies are being developed and delivered at local authority and neighbourhood level. Chapter 3 explores the localised nature and causes of antisocial behaviour, and provides evidence about the extent to which antisocial behaviour strategies have resulted in a reduction in the incidence of recorded antisocial behaviour in the case study neighbourhoods. Chapter 4 analyses the performance of agencies in tackling antisocial behaviour, focusing on interventions and partnership working. This chapter also provides summary findings from the economic evaluation of twelve local initiatives being used to tackle antisocial behaviour. Chapters 5 and 6 examine local residents' perceptions and experiences of antisocial behaviour in their neighbourhoods, and describes their views about the performance of local agencies in tackling the problem. Chapter 7 summarises the key findings of the research and the main lessons arising from it for policymakers and practitioners in Scotland. Chapter 8 is an epilogue which presents an update on the progress in implementing the antisocial behaviour reported by the 4 local authorities since the second half of 2006. The report's annexes provide additional details of the research methods and findings, as well as further sources of good practice and guidance.
Background
1.5 The Scottish Executive is pursuing a national strategy aimed at tackling all forms of antisocial behaviour by bringing about change in people's attitudes and behaviour. The national strategy is focused around 4 themes:
- Protecting and empowering communities
- Preventing antisocial behaviour by working with children and families
- Building safe, secure and attractive communities
- Effective enforcement
The Antisocial Behaviour etc. (Scotland) Act 2004 included a definition of antisocial behaviour and provided a range of new legal measures to tackle the problem, including powers to disperse groups and close premises, electronic monitoring, strengthened existing Antisocial Behaviour Order ( ASBO) provisions and introduced ASBOs for under-16s. In addition a range of environmental powers came into effect in October 2004, including fixed penalty notices for littering and fly tipping, graffiti removal notices and the ban of sales of spray paint to under-16s.
1.6 Section 143 of the 2004 Act provides that a person engages in antisocial behaviour if they:
- Act in a manner that causes or is likely to cause alarm of distress, or
- Pursue a course of conduct that causes or is likely to cause alarm or distress to at least one person not of the same household as them
The Act further clarifies that:
- "conduct" includes speech
- "a course of conduct" must involve conduct on at least 2 occasions
- "likely to cause" has the effect that someone other than a victim of the antisocial behaviour (for example professional witnesses) can give evidence of its occurrence
It is widely recognised that, in practice, antisocial behaviour covers a wide range of levels and types of conduct from low level nuisance to serious criminal activity. What actually constitutes antisocial behaviour is also subject to different interpretations, as some individuals may experience distress or alarm at conduct that others regard as normal or legitimate.
1.7 The Scottish Executive believes that the implementation of the national strategy is most effectively delivered at the local authority level. Part 1 of the 2004 Act placed a statutory duty upon each local authority in Scotland and the relevant Police Chief Constable to prepare a strategy for tackling antisocial behaviour in the local authority area. These strategies were finalised in 2005.
1.8 The Scottish Executive committed £95m to support the delivery of the national antisocial behaviour strategy between 2004 - 2006, comprising £30m for community wardens, £35m for youth justice services and £20.4m for local authorities to facilitate the delivery of local antisocial behaviour strategies. A further £67.5m has been allocated for 2006-2008. Since 2005 this funding has been delivered through Antisocial Behaviour Outcome Agreements which give local authorities flexibility in determining local priorities and services but require them to monitor progress through agreed performance indicators and to report on these annually to the Scottish Executive. The success of national and local antisocial behaviour strategies will be determined by the extent to which:
- Incidents of antisocial behaviour have reduced
- People's perceptions of antisocial behaviour as a problem have reduced
- The performance of agencies in tackling antisocial behaviour has improved
- People's perceptions of the performance of agencies have improved
Delivering Antisocial Behaviour Strategies at the Neighbourhood Level
1.9 The Scottish Executive has stated that:
Action to tackle antisocial behaviour must respond to local needs and priorities, and must take into account differences between communities in local authority areas. It is only local agencies, working together in a concerted and coordinated way with local people that can tackle antisocial behaviour effectively (Scottish Executive Guidance on Antisocial Behaviour Strategies, 2004: 3).
In the preparation of their antisocial behaviour strategies, local authorities were required to identify the nature and extent of antisocial behaviour in local areas and to utilise this analysis to target resources at the hard pressed communities experiencing the most extensive problems. Most of the additional Scottish Executive funding has been targeted at deprived neighbourhoods in Scotland. Local authorities were also required to undertake consultation with those communities where antisocial behaviour was a problem during the development of their antisocial behaviour strategies.
1.10 The Scottish Executive acknowledges that it would not expect to see a significant reduction in recorded antisocial behaviour or peoples' perceptions of antisocial behaviour at national or local authority level in less than 3 years. It does believe that it is realistic to see improvements in the actual and perceived performance of agencies during this period. However, the Scottish Executive also argued that it should be possible to see a reduction in actual and perceived antisocial behaviour problems in particular neighbourhoods over a shorter time frame ( Scottish Executive Guidance on Accountability Framework and Outcome Agreements, 2005: 4). The Executive argued this to be the case because local authorities and their partners, though their antisocial behaviour strategies, should have already identified local areas with problems and should be working closely with local communities to tackle antisocial behaviour. The Executive also stated that these local areas were likely to already have community wardens, and in some local authorities these areas would also benefit from targeted Community Regeneration Fund resources. The aim of this research and report was to establish the extent to which such improvements have actually occurred in neighbourhoods in selected Scottish local authorities.
Aims
1.11 The aim of the research was to provide an evaluation of the implementation and impact of local antisocial behaviour strategies at the neighbourhood level in 4 selected Scottish local authorities.
Objectives
1.12 The objectives of the research were to:
- Identify how local antisocial behaviour strategies are being developed and delivered at local authority and neighbourhood levels
- To evaluate the impact of local antisocial behaviour strategies at the neighbourhood level with regard to achieving:
- A reduction in the incidence of antisocial behaviour
- An improvement in the performance of a range of relevant agencies in tackling antisocial behaviour
- A public perception that antisocial behaviour as a problem is being reduced
- A public perception that agency performance at tackling antisocial behaviour is improving.
- To evaluate the economic effectiveness of antisocial behaviour strategies and interventions
- To identify good practice examples
- To disseminate key findings, lessons and good practice to the wider policy and practitioner community in Scotland
Methods
1.13 The research utilised a range of quantitative and qualitative data sources and analysis methods. The research sought to ensure that the evaluation drew upon a wide range of perceptions about, and experiences of, antisocial behaviour, including key agency stakeholders at local authority and neighbourhood levels, local residents and the victims and witnesses of antisocial behaviour. A detailed account of the research methods is provided in Annex 1. The research comprised 7 stages, which are described in more detail below.
The Research Stages
1.14 Stage 1 involved a review of relevant literature. This included key policy documentation produced by the Scottish Executive and other national organisations in Scotland, and existing research reports and evaluations relating to antisocial behaviour in Scotland and the other nations of the UK.
1.15 Stage 2 comprised case studies at a local authority level of the 4 selected Scottish local authorities. These were: City of Edinburgh Council, Fife Council, North Lanarkshire Council and Scottish Borders Council. Each of these case studies involved:
- A review of relevant policy documents, reports and research evaluations
- Semi-structured interviews with key stakeholders, including Antisocial Behaviour Partnership coordinators, local authority Community Safety managers, senior police officers, senior officers in local authority Housing Services departments, representatives of the Procurator Fiscal Service; and representatives of the Children's Hearing System.
- An analysis of crime figures and command and control data, as provided by the relevant Police force
1.16 Stage 3 involved the selection of case study neighbourhoods. Two neighbourhoods were selected in each case study local authority area. The neighbourhoods were selected to provide a spectrum of neighbourhood contexts, including different types of antisocial behaviour problems and a range of agency interventions being utilised to tackle antisocial behaviour. The neighbourhoods were identified through analysis of Scottish Neighbourhood Statistics, interviews with local authority practitioners and scoping visits.
1.17 The case study neighbourhoods were: Broomhouse and Muirhouse (City of Edinburgh); Abbeyview, Dunfermline and Methil (Fife); Carfin and Jerviston and Whinhall, Airdrie (North Lanarkshire) and Burnfoot, Hawick and Langlee, Galashiels (Scottish Borders). A more detailed description of the neighbourhoods, including maps and of the selection process is provided in Annex 1.
1.18 Stage 4 of the research involved a doorstep household survey with 200 residents in each of the 8 case study neighbourhoods. Survey interviews were conducted in June 2006 by Management Information Scotland Ltd. Survey respondents were selected randomly from addresses within the case study neighbourhoods. A one hundred percent response rate was achieved. The findings from this survey are analysed in Chapters 5 and 6 of this report and a full account of the survey methods and additional survey findings are provided in Annex 3. A copy of the survey is provided in Annex 5.
1.19 Stage 5 comprised case studies of the 8 selected neighbourhoods. The case studies involved: analysis of relevant policy documents and reports; interviews with local stakeholders including housing and police officers, youth workers and neighbourhood wardens and focus groups with adults and young people.
1.20 Stage 6 involved an economic evaluation of 12 antisocial behaviour initiatives operating in the case study local authorities. Community warden and mediation services schemes were evaluated in all 4 local authorities. Evaluations were also conducted of the: Early Intervention Families Project (City of Edinburgh); Safer Neighbourhoods Team (Fife); Night Noise Service (North Lanarkshire); and Freephone Antisocial Behaviour Helpline (Scottish Borders). A summary of the key findings of the economic evaluation is presented in Chapter 4 of this report and a more detailed account of the economic evaluation is provided in Annex 4.
1.21 Stage 7 comprised semi-structured telephone interviews with victims and witnesses of antisocial behaviour. Interviewees were identified from participants in the household survey who had experienced antisocial behaviour and who had indicated a willingness to take part in further stages of the research. A total of 41 individuals were interviewed through this process. However, these were not drawn equally from the case study neighbourhoods or local authorities. A further 5 interviews were generated by contacting participants in the 2005 Scottish Household Survey. The findings from these interviews are presented in Chapter 6 of this report.
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