Wagga Wagga City Council Alcohol Management Strategy 2011- 2015
Table of Contents MAYORS FORWARD ............................................................................................................ 3 EXECUTIVE SUMMARY ........................................................................................................ 4 CONTEXT- BASE EVIDENCE COMPARISON ..................................................................... 8 METHODOLOGY ................................................................................................................. 16 RATIONALE ......................................................................................................................... 21 MONITORING & EVALUATION OF IMPACT OF STRATEGIES ........................................ 28 ACTION STRATEGIES ........................................................................................................ 29 DISCUSSION PAPERS ........................................................................................................ 46
Advocacy & Collaboration……………………………………………………………… Community Education…………………………………………………………………... Primary Care ........................................................................................................ Community Infrastructure………………………………………………………………. Regulation & Enforcement……………………………………………………………... Community Safety………………………………………………………………………. Marketing & Communication…………………………………………………………… Diversified & Vibrant Late Night Economy……………………………………………. CCTV ………………………………………………………………………………….....
46 51 58 63 66 70 76 84 88
APPENDIX A. RESOLUTIONS OF COUNCIL, RELEVANT REPORTS & ALCOHOL FREE ZONES................................................................................................................................ 100
Council Report - CCTV - June 200…………………………………………………… Council Report - July 2008 Alcohol Free Zone Expansion………………………… Council Report - July 2008 Baylis Street Lighting............................................... Council Report - November 2008 Alcohol Management Strategy………………... Council Report - February 2009 CCTV……………………………………………….. Council Report - April 2009 CCTV Recission Motion………………………………..
100 112 115 116 120 125
ADDITIONAL REFERENCES ............................................................................................ 135
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Mayors Forward Dear Community Member
Many towns and cities across Australia are struggling with the increasing impact of alcohol on the health and well being of their citizens, and are attempting to respond in ways that communities can embrace. Wagga Wagga City Council is proud to respond in a positive and proactive manner with the development and release of an integrated and holistic plan to address the issues associated with alcohol misuse within our own community. The aim of the Wagga Wagga City Council Alcohol Management Plan is to encourage our community in the development of a responsible drinking culture and working together to reduce alcohol related harms. This document outlines strategies toward that aim and includes advocacy and collaboration, increased education and rehabilitation, responsible and effective management of the supply of alcohol; harm minimisation programs and services; enhanced infrastructure options, regulation and enforcement as well as planning for a diversified night time economy. In the spirit of unity and empowerment, community consultation is considered a vital component of the Strategy and Action Plan and was integral to its development and success. I thank the Wagga Wagga community for their constructive comment, advice and endorsement of the Strategy, and congratulate them on their commitment to innovative and positive action.
Wayne Geale OAM Mayor of the City of Wagga Wagga
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Executive Summary Community expectations of local Councils continues to increase and as such there is a better need for effective planning to make optimum use of resources in order to deliver a wider range of services. As part of Council’s Integrated Reporting Framework, Council’s Strategic Plan requires Council to set key directions and priorities and develop a multilevel approach to achieving the outcomes that the community needs. A report was provided to Council in November 2008 and Council resolved to endorse the development of the Wagga Wagga Alcohol Management Strategy in partnership with the Australian Drug Foundation (ADF) as well as membership as a Foundation Council to the Cities for Safe and Healthy Communities Program. A further report to Council in May 2009 resolved to create a new steering committee with a wider mandate after the sunset of the Wagga Safe Taskforce to steer and develop this strategy as more co‐ordinated and integrated response to the management of alcohol use and misuse across the whole of the Local Government Area. This Strategy provided a unique opportunity for Council to partner with the Australian Drug Foundation (ADF) and ICLEI Oceania (International Councils for Local Environmental Initiatives) to develop a leadership model that could be used across the NSW local Government sector.
Introduction Fear of crime and the perception of being unsafe in the community can have a detrimental effect on both the individual’s quality of life and overall community cohesion. If people are afraid to go out, public spaces become less utilised, which can lead to an increase in crime and antisocial behaviour, which in turn makes them less safe for the general community. Whilst perceptions of crime are often out of proportion with the actual rates of crime, it is important that people feel safe as well as being safe. This Strategy is largely a response to the Community and business owners who have continually requested a more co‐ordinated and integrated response to the management of alcohol use and misuse in the community; to the enhancement of services already in place; and to the planning of future services. Service agencies have also expressed a desire for a more cohesive approach. The aim of this strategy is to provide a significant step forward for major generational change, and to better understand and work towards holistic prevention strategies that can inform and influence Council’s new integrated planning and reporting process and a community wide response to harm minimisation. The Strategy is written in two parts with the first section encapsulating background information outlining nine Strategic Goals addressing the main issues as a result of community and stakeholder consultation. The second section is a detailed Action Plan in which the Nine Strategic Goals are allocated key objectives, actions, agency responsibility, timelines, outcomes and measurements. This Action Plan will provide the Wagga Wagga community and service agencies with a template to measure outcomes against the Strategic goals. 4
Background Local Government and crime prevention planning The Children (Protection and Parental Responsibility) Act 1997 (“the Act”) provides for the Attorney General to support Councils leading crime prevention activity in NSW. Under Part 4 of the Act, Local Government is identified as the lead agency for identifying and implementing local crime prevention strategies in NSW.
Councils Role Community expectations of local councils continues to increase and as such there is a better need for effective planning to make optimum use of resources in order to deliver a wider range of services. The Council’s Strategic Plan requires Council to set key directions and priorities and develop a multilevel approach to achieving the outcomes that the community wants. Through its Community Strategic Plan, Council can influence and inform land use planning, natural resource management, environmental design and neighbourhood development. As a Council it is our ability, in partnership with others, to meet these responses that will ensure both an effective use of resources and a healthy and sustainable future for our communities.1
Crime Prevention Framework In 2008 the NSW government developed a new, first of its kind, Crime Prevention Framework aimed at strengthening and coordinating the approach to both state and local level situational crime prevention initiatives that also work towards meeting the crime reduction targets of the NSW State Plan.2 This approach concentrates best effort on a few key priorities and associated strategies allowing a significant reduction in both the size and requirements of successful implementation, introducing a more sustainable approach to crime prevention which can still be endorsed as a Safer Community Compacts ensuring access to funding.3 Crime prevention faces a perpetual struggle to keep up with changing opportunities for crime and adaptable offenders, to avoid obsolescence; however, the plan has to become adaptive itself4.
The Wagga Wagga Community Safety and Crime Prevention Plan 2007 - 2009 Wagga Wagga City Council’s first Community and Safety Crime Prevention Plan (2000-2003) was endorsed as a Safer Community Compact by the Attorney General of New South Wales as an integrated approach to crime prevention in December 2000. This allowed Council to raise funds and create priorities around rising crime 5
data especially in relation to interpersonal violence with specific regard to assaults in the main CBD area and an overall negative perception of crime.
The Second Review Council’s second Community Safety and Crime Prevention Plan 2008 - 2011 endorsed in May 2008, was aimed at a co-ordinated community approach to developing community safety through strategically implemented crime prevention programs across the Local Government Area. The review of the first plan identified that nine strategies were too ambitious. Best effort would be achieved through a reduction in the number of strategies in order to achieve clear progress. This also reflected the recommendations of the new NSW framework; thus the strategies have a key focus on reducing family and other violence and reducing theft from motor vehicles in the Local Government Area (LGA) and targeted communities, age cohorts, and community cohorts. As a result, Council’s current Community Safety and Crime Prevention Plan outlines the significant work the community seeks to achieve in the area of interpersonal violence, theft from motor vehicle and the re-engaging of support programs at the local community level and for the purpose of sustainability recommends participation by community partners to ensure wide ownership and sustainable impact. This approach builds on the findings of the Wagga Wagga Social Plan which states that “the community needs to be a partner in the development of a responsible culture and values”.5
Wagga Safe Taskforce The Wagga Safe Taskforce was a sunset committee set up to explore issues around the central business district in 2008. This committee was dissolved in May 2009, with a new committee set up to reflect broader issues across the local government area to directly link a whole-of-city community approach to alcohol related issues through the development of an Alcohol Management Strategy A number of areas were addressed and reviewed as part of the Wagga wagga Safe Taskforce and can be seen in Appendix A.
Scope of the Strategy and Limitations of the Research The Wagga Wagga City Council Alcohol Management Strategy Steering Committee acknowledge that a number of issues raised during the process of preparation and consultation, although considered integral to a definitive response to alcohol misuse, are not within the current capacity of this Plan. Some of these issues include the increasing use of other drugs by young people and alcohol related family violence. The increasing use of other drugs by young people is concerning all sectors of the community and although agencies are responding it is essential that sustainable 6
responses and monitoring of this problem is undertaken in an urgent and effective manner. Further development of Youth Services and the creation of collaborative partnerships or models that will strengthen the capacity of our current youth services to provide a wider range of activities and respond to youth issues in a more sustainable and flexible manner would be beneficial. Family Violence is an international problem and Wagga Wagga’s situation is reflective of this. The links between alcohol use and interpersonal violence as a catalyst are widely acknowledged and more needs to be achieved in relation to increased community awareness of its impact as well as those socio-economic factors that can be improved through opportunities to ensure that all sectors of our community benefit from economic stability. Finally it is acknowledged that collaboration between community groups and service agencies is one of the most effective means of enhancing positive outcomes for identified problems.
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Context This section provides some background to help support the Alcohol Management Strategy of Wagga Wagga. Specifically, it presents data that seeks to answer the question, ‘What does the misuse of alcohol look like in this community’? This will provide a rationale for the Alcohol Management Strategy and give a clear picture of the particular issues in Wagga Wagga that will be addressed by the Strategy. The data in this paper shows that Wagga Wagga has experienced an increase in: alcohol related incidents (as reported by local police), liquor license offences, and drink drive crashes. The comparison of Wagga Wagga local data to state data also demonstrates that per capita, Wagga Wagga has:
a higher rate of alcohol attributable hospital presentations a higher rate of alcohol related domestic violence and non-domestic violence assaults a higher rate of alcohol related offensive behaviour incidents three times the number of liquor offences a higher rate of drink drive crashes.
The data referred to in this document is drawn from the NSW Bureau of Crime Statistics and Research (BOCSAR), local Police alcohol related crime statistics, RTA Crashlink data, and Health data (including emergency hospital presentations) provided to Wagga Wagga City Council. The local data reported in this paper have been included on the basis that it is comparable with state or national data. Where appropriate, we have taken data from a period of three years to note any trends in data. It should be noted, however, that these often infer associations between variables and are not necessarily statistically significant changes. They do, however, highlight the likely alcohol-related issues that may need to be addressed through the Strategy.
Drinking in Australia Of all licit and illicit drugs, alcohol is the most commonly consumed and the most widely accepted within Australian society. While heroin might continue to be the drug more Australians associate with ‘the drug problem’, one in three identify alcohol consumed in excess as the substance of most serious concern6. In 2009, the per capita consumption of pure alcohol for Australia was 10.08 litres – a figure that has only slightly decreased over the last few years7. The 2007 National Drug Strategy Household Survey: detailed findings8 (NDSHS 2007) shows that:
most Australians over the age of 14 (82.9 per cent) drank at least one alcoholic drink in the 12 months prior to the survey 8
licensed premises are the most common drinking venue for 20-29 year olds, followed closely by at home or at friends’ homes; younger drinkers (14-19 year olds) tend to drink mostly at home or at friends’ homes.
Harms and risks from drinking Risks of harm from alcohol in a single drinking occasion or day are defined the following way in this report:
low risk - up to 6 drinks for males, 4 drinks for females risky - 7-10 drinks for males, 5-6 drinks for females high risk - 11 drinks or more for males, 7 drinks or more for females.
NDSHS 2007 reports that 60.8 per cent of Australians over 14 drink at levels at low risk of harm in the short or long term, while 8.6 per cent drink at levels considered risky or high risk of harm in the short or long term. The data also shows that:
one in ten are drinking alcohol at levels considered to lead to long term harm one in five are drinking alcohol once a month or more at levels considered to lead to short term harm.
For young Australians (15-24 year olds), alcohol is a major contributing cause of death or injury, particularly for those living in non-metropolitan areas9. In 2007, one in five Australians (29.6 per cent) surveyed for NDSHS 2007 experienced an incident where they were the victim of alcohol-related harm such as:
verbal abuse physical abuse being put in fear.
The highest rate of such incidents was for 20-29 year olds (45.3 per cent), with elevated rates also recorded for 14-19 year olds (33.4 per cent) and 30-39 year olds (32.6 per cent). The relationship between alcohol and violence is strongly supported by evidence, and several factors have been identified which can predict or characterise alcoholrelated violence10. These include, but are not limited to:
being young, single and male for young people, living in rural areas for young males, being in pubs, clubs or out in entertainment precincts alcohol-related assaults commonly occurring between 9pm and 3am on Friday and Saturday nights seasonal changes, calendar events and significant sporting events.
These factors hold relevance for Wagga Wagga as for other Australian towns, cities and regions, and contribute to the alcohol-related issues to which each area must respond.
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Hospitalisations Between 1996 and 2005, it is estimated that 32,696 Australians died from alcoholattributed injury and/or disease stemming from risky or high risk drinking. In the same period, an estimated 813,072 Australians were hospitalised for similar reasons11. In the 2006-07 and 2007-08 period, more recent data12 shows that Wagga Wagga has a significantly higher number of alcohol attributable hospital presentations compared to the New South Wales average. In these two financial year periods, there was an average of just over 45,900 hospitalisations per year that could be attributed to the harmful effect of alcohol, which equates to a rate of around 646 per 100,000 persons. Wagga Wagga had an average of 432 alcohol-related hospitalisations per year, which equates to 751 per 100,000.
Alcohol related crime statistics Compared to broader New South Wales data, it can be shown that in certain areas Wagga Wagga is experiencing significant problems with alcohol related crime. The NSW Bureau of Crime Statistics and Research (BOCSAR) gathers alcoholspecific statistics on the following to provide a snapshot of alcohol related crime:
assaults on NSW police; non-domestic violent assaults;
domestic violent assaults; and offensive behaviour.
The following data is chiefly taken from the 2005-2009 data set13 (‘BOCSAR’) with additional data taken from NSW Police Force data14 (‘NSW Police’).
General alcohol related data for Wagga Wagga In 2009, there were 6,508 alcohol related incidents recorded by NSW Police for the Wagga Wagga LAC (NSW Police). This represents a 10.6 per cent increase in incidents from 2008. The NSW Police data indicates that these incidents tend to occur:
predominantly on weekends with a peak on Saturday nights between the hours of 9pm and 3am involving males from the age of eighteen through their twenties, thirties and forties.
Assaults on NSW police In 2009, 18 out of the 22 assaults on NSW police recorded for Wagga Wagga were related to alcohol (BOCSAR). The rate is comparable to but still higher than wholeof-New South Wales data. 10
Non-domestic violence assaults For alcohol related non-domestic violent assaults however, Wagga Wagga shows a higher rate than that recorded for the whole of New South Wales, with a 5.6 per cent increase in assaults between 2005 and 2009 (BOCSAR).
Domestic violence assaults An increased trend is also reflected in alcohol related assaults relating to incidents of domestic violence (BOCSAR). Wagga Wagga had 153 incidents in 2009 with the majority of assaults occurring overall in residential areas. To contextualise this, the statistic translates to 243.2 alcohol related domestic violence incidents per 100,000 head of population – compared to 160.3 for the whole of New South Wales. A trending increase of 8.6 per cent of such incidents has been recorded for Wagga Wagga.
ASSAULT - ALCOHOL RELATED - BY PREMISE TYPE 300 250
LICENSED PREMISE
200
OUTDOOR/PUBLIC PLACE
150
RESIDENTIAL
100 50 0 2008
2009
2010 (projected)
Source: NSW Police Force
2008 BOCSAR data shows that, in general, alcohol related assaults in Wagga Wagga are highest in the 12am-6am period on Friday and Saturday nights, with the highest rate of incidents occurring in the centre of town15. For the past two years, around 100 assaults have occurred in licenced premises, and around 150 have occurred in public places (NSW Police).
Offensive behaviour Alcohol related offensive behaviour is on the increase generally, with New South Wales showing a 9.3 per cent increase in such incidents from 2005 to 2009 (9.3 per cent increase for New South Wales) (BOCSAR). From the graph below, it is clear that alcohol related offensive behaviour was the most common crime incident recorded. 11
Percentage of crime incidents that were alcoholrelated in 2009 100% 90% 80% 70% 60% 50% 40% 30% 20% 10% 0%
Wagga Wagga New South Wales
Assaults on police
Nondomestic violent assaults
Domestic violent assaults
Offensive behaviour incidents
 Source: BOCSAR
Wagga Wagga had 220 offensive behaviour incidents in 2009 and 197 of these involved alcohol. There were 313.2 incidents per 100,000 population in Wagga Wagga compared to 165.5 for New South Wales (see graph below).
Alcohol-related incidents per 100,000 population in 2009 450 400 350 300 250 200 150 100 50 0
Wagga Wagga New South Wales
Assaults on police
Nondomestic violent assaults
Domestic violent assaults
Offensive behaviour incidents
Source: BOCSAR
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Malicious damage A significant drop in malicious damage has been projected by the NSW Police Force for 2010 but no supporting data was provided to the Foundation to explain this projection (see graph below).
MALICIOUS DAMAGE - BY SUBURB
700 600 500 400 300 200 100 0
2008 2009
GA WAG
GA W AG
EY P A RK TU R V
AND TO LL
ON TA TT
GA W A GG
N OR
TH W AG
NT A U S T IN
D
M OU
LL O Y
RT
K
AL
A LB E LA K E
R IN G K OO
D PA R F IE L GL EN
ST H IL L FO RE
L LA E S TE
S AND RK E L
EAST
B OU
W AG
O NT A S HM
GA W A GG A
2010 (projected)
Source: NSW Police Force While Ashmont, Kooringal and Tolland have higher than average incidents of malicious damage (shown above), the bulk of incidents occur in Wagga Wagga’s CBD with the top ten streets shown below.
MALICIOUS DAMAGE WAGGA WAGGA CBD - TOP 10 STREETS 60 50 40 30 20 10 0
2008 2009
TARCUTTA ST
GURWOOD ST
FOX ST
FORSYTH ST
MORGAN ST
KINCAID ST
LAKE ALBERT RD
EDWARD ST
FITZMAURICE ST
BAYLIS ST
2010 (projected)
Source: NSW Police Force
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Street offences Street offences encompass incidents such as drinking alcohol in alcohol-free zones, consumption of alcohol by a minor, offensive behaviour and language, and obstruction. Offensive behaviour is the most common street offence in Wagga Wagga (NSW Police).
Liquor offences BOCSAR also records data on liquor offences which comprise:
consumption of alcohol in a public place by a minor; consumption of alcohol in an alcohol-free zone; supply of alcohol to a juvenile; Liquor Act offenses by a minor, customer, employee or licencee; and Registered Club offenses by a minor, customer, employee, secretary or club.
It can be seen that in 2009, Wagga Wagga experienced over three times the number of liquor offences per 100,000 population compared to the whole of New South Wales, and over three times that for Sydney Statistical Division (see graph below).
Liquor offences per 100,000 population in 2009 1000 900 800 700 600 500 400 300 200 100 0
912.5
254.2
Wagga Wagga
NSW
197.1
Sydney statistical division
Source: BOCSAR
Furthermore, the number of incidents has on the whole increased since 2005 (see graph below).
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Liquor licence offences for Wagga Wagga 2005-2009 900 800 700 600 500 400 300 200 100 0
777 574
518
181
195
2005
2006
2007
2008
2009
Source: BOCSAR
Traffic offences and road statistics Drink drive statistics16 Between 2004 and 2008, alcohol was a contributing factor in 21.4 per cent of all fatal crashes (n=28) and 7.4 per cent (n=53) of all casualty crashes in Wagga Wagga. Drink drive crashes are higher in Wagga Wagga (7.4 per cent) than in the whole of New South Wales (4.1 per cent) and there has been a steady increase in incidents during this five-year period. As with other alcohol related incidents reviewed in this paper, drink drive crashes in Wagga Wagga are most likely to: involve males - 55.5 per cent of all drink drive crashes involve males between 17 and 25 years old occur leading into and on weekends (54.7 per cent) with a peak on Saturdays occur in the evening and early morning hours
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Methodology Selection of Methodology Council used both qualitative and quantitative research to develop the Alcohol Management Strategy 2011 – 2015. The project provides the ideal opportunity for Wagga Wagga City Council to work in partnership both across the organisation, with external agencies and the community to build a harm minimisation approach to alcohol related issues within the local government area. In addition, the Council’s approach to the development of the Alcohol Management Strategy is unique. Once the draft strategy was complete, ongoing feedback was sought from the Steering Committee in order to gain stakeholder ‘buy in’ and in which stakeholders take responsibility for their corresponding actions. Although Wagga Wagga City Council has developed the Strategy, this is not just an action plan for Council alone and its success largely depends on a community wide approach to addressing alcohol related issues in the Local Government Area. This planning process will create a model which can be utilised by other local government areas. The process for development of Wagga Wagga City Council Alcohol Management Strategy 2011 – 2015 was as follows:
1.0 Formation of Reference Groups
1.1 External Reference Group The Wagga Wagga Alcohol Management Steering Committee was set up by council resolution in May 2009 as an external committee to guide the development of the Wagga Wagga City Council Alcohol Management Strategy. The group comprised of representation from key stakeholders including: • • • • • • •
The NSW Office of Liquor Gaming and Racing (OLGR) NSW Police The Road Transport Authority (RTA) Community Drug Action Team (CDAT) NSW Health Greater Southern Area Health Service Life Education Inc Wagga Liquor Accord
The initial meeting with the Alcohol Management external Steering Committee gave Council the opportunity to: • • • •
Present the Project Brief Discuss the purpose of the Steering Committee Explain how this strategy links in with the National Alcohol Strategy 2006 – 2011 Communicate the proposed timeline 16
2.2 Internal Reference Group Council’s internal steering committee were also presented the project brief and consulted throughout the development of the strategy. This included representatives from the following departments: • • • • • • • • • •
Corporate Review Team Social Planning Public Health Asset Planning Parks & Recreation Services Regulatory Services Service Planning Development Control Marketing, Communications & Media Finance
3.0 Target Groups The following target groups have been identified due to their specific needs and finding the most effective outcomes in addressing these: • • • •
Young People (under 18 years) Young Adults (18 – 30 years) Adults (30 years and over) Aboriginal & Torres Strait Islanders
4.0 Consultation Strategy The focus of the consultation was to elicit community feedback on ‘What does the misuse of alcohol look like in this community’. This was conducted through the following methods: • •
• • •
A structured questionnaire - disseminated through various mediums throughout the community (Appendix 1) Facilitated focus groups and workshops were conducted using three key questions: 1. What are your main alcohol related concerns in Wagga Wagga? 2. What strategies should be implemented? 3. Who is responsible? Informal consultation at community events Individual interviews and verbal submissions Council website
Wagga Wagga City Council ensured all stakeholders had the opportunity to provide input during the consultation period. This was conducted as follows: •
Forming the Alcohol Management Steering Committee to raise awareness within the industry sectors 17
• • • • • • • • •
Identifying key stakeholder groups within the community Briefing sessions for the Council’s e-Team Present a consultation schedule to the internal and external working group A workshop for elected Councillors Media and Communications including: web and local newspapers Raising community awareness through the community leaders and local business Provide various mediums of consultation in order to obtain high levels of community contribution and reduce barriers to participation Presentation of draft strategy to Alcohol Management Steering Committee Presentation of the draft strategy to Councillors and Wagga Wagga City Council Directors
5.0 Consultation Participants Council conducted an extensive consultation process which occurred between March 2010 – September 2010. The following stakeholder groups participated in this process: The Road Transport Authority
Charles Sturt University
NSW Health
TAFE NSW – Riverina Institute
Community Drug Action Team
Prayer in the Park
Wagga Liquor Accord
Sport Clubs & Associations
Australian Hoteliers Association
Licensed Clubs
Headspace
Community groups & individuals
NSW Police
Councillors
Ministry for Transport Busabout Wagga Radio Cabs Marra Marra Aboriginal Advisory Committee
6.0 Strategic Objectives & Action Plan Development From the community consultation all feedback and responses were collated where seven main goals were emerged: • • • • •
Advocacy & Collaboration Community Education Primary Care Community Infrastructure Regulation & Enforcement 18
• • • •
Community Safety Marketing & Communications Diversified & Vibrant Late Night Economy Monitoring & Evaluation
From these goals key strategies, actions and stakeholders were identified and developed based on community consultation, evidenced based research and best practice. These were refined after a second round of consultation with the external Steering Committee and internally with identified Wagga Wagga City Council Staff. A rationale has also been provided to assist in understanding why these strategic objectives were chosen. A lead agency has been identified for each strategic objective and a priority as high, medium or low allocated. Other Council Strategies and plans have also been referenced.
7. Key Outputs Key outputs and documents produced as a result of the development for the Alcohol Management Strategy is as follows: • • • • • • • •
Mayor’s Foreword Introduction Context – Evidence Based Comparison (Local, State & National) Methodology Rationale Strategic Objectives/Action Plan Discussion Papers References
A key output of the Alcohol Management Strategy 2011 – 2015 is the Context of Alcohol in Wagga Wagga Local Government Area. This provides a comparison of alcohol misuse in the Wagga Wagga Local Government Area to state and national data. Collated by the Australian Drug Foundation this document provides research from: • • • • • •
Australian Bureau of Statistics (ABS) Bureau of Crime Statistics and Research (BOCSAR) NSW Police RTA Crashlink Data NSW Health Other relevant social issues research
Social Issue Papers were developed from the following sources to give context to the selected strategies. This provides evidence based research, community consultation recommendations and best practice to support the selected strategies. • •
Relevant evidenced based research Community Consultation 19
• • •
Alcohol in Wagga LGA Questionnaire Local and international alcohol harm minimisation practises Relevant local, state and national data/plans
8.0 Endorsement Letters of support for the Alcohol Management Strategy have been supplied by the following organisations: • • • • • • •
Australian Drug Foundation ICLEI NSW Police Liquor Accord CDAT NSW Health Ministry of Transport
It has also been endorsed by the Alcohol Management Steering Committee and has been placed before Council on public exhibition.
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Rationale Key Themes This Alcohol Management Strategy seeks to address the reduction of alcohol related harms in the Wagga Wagga Local Government Area, the following goals have been developed to create a safe enjoyable evening environment, create a diverse night time economy, reduce the level of disorderly conduct and restore public perception of a safe city. The following Key Result Areas have been developed from community and stakeholder consultation and present short, medium and long term priorities as an action strategy.
Goal 1: Advocacy & Collaboration Rationale Strengthening partnerships improves integration and coordination of resources while providing more diverse and informed stakeholder groups Initiative 1.1 Strengthen partnerships between agencies and service providers A strong message to come out of the surveys and workshops was the desire for an enhanced police presence on the streets late at night. Whilst Council does not have any direct control over this State Government service, it can assist the Local Area Command in lobbying for a suitable level of resources to meet the needs of the community. Increased police presence and visibility acts as a deterrent for crime and the community have a greater perception of safety Initiative 1.2 Community to lobby local member for more Police resources Alcohol Free Zones must have an expiry date with a review process undertaken prior to establishment. On the spot fines issued by Police to offenders would act as a greater deterrent, especially for those who are transported into the CBD with alcohol Initiative 1.3 Lobby local member to seek changes from the Attorney general to impose penalties for alcohol free zones A corporate approach towards alcohol management is embedded in all aspects of company policy and operations to minimise harm Initiative 1.4 Wagga Wagga City Council to lead and provide a corporate approach to alcohol harm minimisation and best practice
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Goal 2: Community Education & Support Services Rationale It is vital for the community to know what education programs and services are out there but also how and where to access them Initiative 2.1 Facilitate and promote access to agencies providing alcohol related education and support services Supervision and supplemented training through the Safer Bars Program would provide staff with more confidence and enhance Responsible Service of Alcohol (RSA) Initiative 2.2 Continued delivery of training for Bar and Security Staff Strong partnerships between the Road Safety Officer, Roads and Traffic Authority (RTA) and Police ensure programs and enforcement if effective at a local level Initiative 2.3 Provide coordinated and effective state and local Drink Driving education programs The sustainability and effectiveness of targeted education programs such as Good Sports and Putting Youth in the Picture rely on ongoing community support, funding and commitment to other harm minimisation strategies to effect behavioural change Initiative 2.4 Continued commitment to targeted education programs
Goal 3: Primary Care Alcohol related assaults and domestic violence are highest in residential areas. It is vital to continue delivering outreach services in the areas of greatest need. Initiative 3.1 Continue to address alcohol related abuse and violence in proximity to suburban areas
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Goal 4: Community Infrastructure Rationale The night time economy provides a different environment for pedestrians than that during the day. It is vital that harm is minimised to pedestrians through the use of safe, practical and accessible infrastructure Initiative 4.1 Encourage safe movement of pedestrians Maximising the effective use of transport within Wagga Wagga LGA is a vital issue to the community and can only be addressed through an integrated and coordinated approach from multiple stakeholders Initiative 4.2 Improved and coordinated approach to peak hour transport Council can assist and add value to other enforcement agencies, particularly in ensuring a adequate Crime Prevention Through Environmental Design (CPTED) assessment is made of all licensed premises and late night food outlets development application including detecting breaches of DA conditions A review of CPTED policies and processes will be carried out to ensure a consistent approach is undertaken during the assessment process as well as a review of the DA application process to consider wider implications including safety of patrons, best practise and development of the night time economy Initiative 4.3 Improved development application process
Goal 5: Regulation & Enforcement Rationale The effectiveness of Responsible Service of Alcohol and Random Breath Testing is enhanced through enforcement Initiative 5.2 Increase and continue evening and major event enforcement activities Alcohol free zones and Alcohol prohibited areas require enforcement to be effective. The issuing of penalties by police has the potential to enhance effectiveness of Alcohol free zones Initiative 5.3 Increase effectiveness of Alcohol Free Zones and Alcohol Prohibited Areas
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‘User Pays’ provides event organisers and licensed venues to pay for increased police presence. The success of this strategy largely depends on police resources and negotiation between concerned stakeholders Initiative 5.4 Investigate ‘user-pays’ option for police enforcement around special events and late night traders
Goal 6: Community Safety Rationale Lockout of 1.30am is a voluntary agreement between late night licensed venues and minimises harm by providing a monitored and secure environment. It also provides a window for people coming from other events to experience Wagga’s late night economy Initiative 6.1 Maintain effective use of lockout Alcohol related assaults can be minimised through the use of current and effective strategies being used in the industry Initiative 6.2 Prevent or minimise alcohol related assault to patrons or the public Rationale Utilising best practise management tools around alcohol management minimises harm to patrons and provides for a more attractive late night environment Initiative 6.3 Best practice around alcohol service for late night venues Implementing strategies to reduce binge drinking and intoxication reduces harm to patrons Initiative 6.4 Minimise risky levels of alcohol consumption through restricted access
Goal 7: Marketing & Communication Rationale In order to gain maximum exposure to the target audience, appropriate media and channels of communication must be utilised 24
Initiative 7.1 Promote education tools and services widely and through effective mediums for target groups Greater visibility, promotion and advertising would enhance any future late night transport project Initiative 7.2 Greater visibility and promotion of available transport options It is important that alcohol promotions be used in conjunction with RSA as they have the clear potential to promote risky alcohol consumption. Initiative 7.3 Act within alcohol promotion guidelines in conjunction with RSA Greater positive promotion in the media is required for the community to be alerted to the steps stakeholders are working towards in regards to alcohol harm minimisation. Initiative 7.4 Engage media to promote positive strategies and policies used by stakeholders
Goal 8: Diversified & Vibrant Late Night Economy Rationale Encouraging diversity of late night activities and events provides target groups with alternative options, produces a more vibrant late night experience and makes Wagga Wagga LGA an attractive place for the local community and tourists Initiative 8.1 Encourage diversity of late night activities, events and services To provide the community and specific target groups with an increased number of late night options, it is important to consider access implications such as cost and access to transport Initiative 8.2 Increase access to late night activities, events and services Late night businesses and trading venues are the foundation to the night time economy. However the hours they trade and when they close have implications on police resources, transport and community safety
25
Initiative 8.3 Ensure the effectiveness of current trading hours in providing a vibrant, entertaining and safe night time economy Further engagement and consultation with youth groups would assist in addressing their needs for night time activities and services and bridge the gap in improving existing services and night time offerings Initiative 8.4 Encourage youth groups to further engage and consult with relevant organisations and agencies in creating night time activities
Goal 9: Monitoring and Evaluation Rationale Capture and monitor the costs of alcohol related harms across Council to better understand the costs to ratepayers and residents Initiative 9.1 Implement the ICLEI Toolkit to record and capture data Review relevant sources of data for quantitative evaluation of effectiveness of strategies Initiative 9.2 Request relevant BOSCAR information and agency information
Evaluate programming from a qualitative perspective in relation to effectiveness of strategies Initiative 9.3 Continue consultation with community about the effectiveness of the strategy
Improve strategic planning processes by Council in relation to harm minimisation Initiative 9.4 Develop a template for identification of associated plans Evaluate overall strategy effectiveness Initiative 9.5 Report on evaluation methodology to Steering Committee and Liquor Accord 26
Community Engagement Council will continue to work with stakeholders to help advocate for the better coordination of services that work at night to target sections of the community that might be at risk, whether it be alcohol or drug affected people, young people, homeless people, people suffering acute mental health disorders or victims of crime. Council will also continue to participate in research and the implementation of initiatives that seek to reduce the risks of alcohol related harm across the community as well as utilise the use of place making and place activation with local communities to assist in reducing alcohol related harm and increase the level of perceptions of a safe city. Initiative Advocate for a coordinated approach to the delivery of services at night time in the inner city Initiative Identify initiatives to reduce the risk of harm to all sections of the community at night across the local government area Initiative Encourage and support place making and place activation activities.
27
Monitoring and evaluation of Impact of Strategies Data item and related initiative
Data source
Collection process
Data collection for Wagga Wagga City Council Assault data by precinct location if inside venue or by postcode Time of day of incident
Assaults in the local area
BOSCAR
ICLEI
Offender and victim statistics by age, gender, cultural background postcode, disability status Type of assault
Estimated alcohol management costs to Council
Outlet density per capita
Council
ICLEI toolkit
Data concerning lost labour and productivity, enforcement of local laws, statuory costs, waste management costs and property damage costs due to alcohol
Council, NSW Police, OLGA,
ICLEI will use population data including residential and weekend population to view overall density. The will then be used for a data series for GIS
Estimated weekend additional visitor data prior to the curfews was 10,000 in winter and 20,000 in summer.
Number of businesses: operating on a Friday at 11pm With a liquor license Diverse business mix
ICLEI Oceania
Food businesses Retail businesses Leisure/entertainment services without liquor license
Late night transport accessibility
Council, RTA, ICLEI
ICLEI to collect initial data as a template for Council
28
Action Strategies Goal 1: Advocacy & Collaboration Rationale
1.1
Strengthening partnerships improves integration and coordination of resources while providing more diverse and informed stakeholder groups
Strategic Objective
Strengthen partnerships between agencies and service providers
Priority/
Lead Agency
Actions
Relevant Plans Time Frame
WWCC
•
All Liquor License Outlets
•
Police OLGR
Performance Indicators
•
RTA Licensees
•
Sports Clubs
•
Expand stakeholder membership and commitment to the Liquor Accord Utilise Liquor Accord as the Alcohol Advisory committee (to follow on from the Alcohol Steering Committee) Actively participate in other stakeholder group meetings eg: CDAT, Transport Working Group etc Develop a calendar of key stakeholder group meetings CDAT to join Liquor Accord
• Increase in the number of agencies working together • Improved and more informed communication between agencies • Increased attendance at stakeholder meetings • Produce and distribute Calendar
H
Community Strategic Plan 2008-2018
M
(CSP) CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2
H Social Plan 20092013
University
(SP)
Transport
SP. 1:1, 3:2 L
1.2
Increased police presence and visibility acts as a deterrent for crime and the community have
29
Community to lobby local member for increased Police resources
Whole of Community
• • •
Develop lobbying record Lobby Local Member for more police resources Local branch officials of the Police Association to continue
•
Produce and effectively utilise lobbying record
M
CSP. 1:4:1, 1:4:2, 1:4:3
M CSP. 4:1:2
a greater perception of safety
1.3
1.4
lobbying for resources SP 3.2
• •
On the spot fines issued by police to offenders would act as a greater deterrent, especially for those who are transported into the CBD with alcohol
Lobby local member to seek changes from the Attorney General to impose penalties for alcohol free zones
Whole of Community
A corporate approach to alcohol management is embedded in all aspects of company policy and operations to minimise harm and provide leadership
Council to lead through a corporate approach to best practice alcohol harm minimisation
WWCC
•
Local community groups
•
•
Local businesses
Develop Lobbying record Lobby Local Member for penalties in alcohol free zones Public transport providers to refuse service to people transporting alcohol to CBD
•
Review Alcohol Management policy Implement best practice principles especially around companywide events eg: Christmas party, social club events
• Continue implementation of Alcohol Management Strategy • Decrease organisational alcohol related incidents and risky alcohol consumption • Increase in responsible alcohol consumption
•
Produce and effectively utilise lobbying record Decrease in alcohol related crimes in alcohol free zones
M
CSP. 1:4:1, 1:4:2, 1:4:3
M CSP. 4:1:2 SP. 3:2 H
H
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2
H SP. 3:2
30
Goal 2: Community Education Rationale
2.1
It is vital for the community to know what education programs and services are out there but also how and where to access them
Strategic Objective
Facilitate and promote access to agencies providing alcohol related education and support services
Priority/
Lead Agency
Greater Southern Health WWCC Education providers
Actions
Relevant Plans
Performance Indicators Time Frame
• •
•
Health Service Providers
Mapping and evaluation of support services and education programs Invest in sustainable relationships with key agencies to increase in course, program uptake Utilise the Community Directory and other mediums to increase community awareness of availability of services
•
• •
Complete mapping and evaluation of alcohol education and support services Increase in uptake of programs Increase in number of services appearing in Community Directory and other promotional mediums
Police
H
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2
M Wagga Wagga City Council Youth Support Strategy 2009 - 2013
L
OLGR
Social Plan – Offender Programs 3.1
CDAT SP. 1:1, 3:1,3.2 ADF Employer Municipal Public Health Plan
2.2
Supervision and supplemented training through the Safer Bars Program would
31
Continued delivery of training for Bar and Security Staff
Liquor Accord
•
WWCC
•
Newly trained RSA staff to be supervised by Licencee or Experienced Staff member Source funding and support the implementation of
• •
Increase in number of supervisors or RSA Marshalls on duty Secure funding and implement Safer Bars
H
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2
provide staff with more confidence and enhance RSA
2.3
2.4
Security Contractors
Strong partnerships between the Road Safety Officer, RTA and Police ensure programs and enforcement is effective at a local level
Provide coordinated and effective state and local Drink Driving education programs
The sustainability and effectiveness of targeted education programs such as Good Sports and Putting Youth in the Picture rely on ongoing community support, funding and commitment to other harm minimisation
Continued commitment to targeted education programs
WWCC in partnership with RTA Police
• • •
Service Providers
•
WWCC
•
Sports Clubs Education providers Alcohol Outlets & Licenses premise
program
programs that increase assertiveness training with regards to RSA such as Safer Bars program
•
•
Police •
SP. 3:2
M
Implementation of The Morning After the Night Before campaign Continue RBT RSO to continue building sustainable relationships with key stakeholders to raise awareness of drink driving in the community
•
Continued support and sustainability of the Good Sports Program Supporting the implementation of youth related education by CSU & RAAF eg: Putting Youth In the Picture Develop education and information around responsible service of alcohol and bar etiquette in multiple languages Improve promotion of best practise tools for target groups eg: MyNite Party notification, looking after an intoxicated friend etc Support & facilitate Liquor
•
•
The Morning After the Night Before campaign implementation and evaluation Continue RBT
H
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2 SP. 1:1, 3:2
H H
•
• •
•
Increase in number of sports clubs and Associations accredited Number of peer leaders trained to deliver Putting Youth in the Picture Number of courses run and number of participants Number of hits on websites providing information on alcohol education and support services Produce and distribute
H
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2
H SP. 1:1, 3:2
M
Open Space and Recreation Plan
L
H
Wagga Wagga City Council Youth Support Strategy
32
strategies to effect behavioural change
•
Accord education programs eg: Be Smart Before You Start CDAT to contribute funding for approved projects
•
information around responsible service of alcohol in multiple languages Increased channels of promotion utilised
M
2009-2013
Goal 3: Primary Care Rationale
Alcohol related assaults and domestic violence are highest in residential areas. It is vital to continue delivering outreach services in the areas of greatest need
3.1
Strategic Objective
Lead Agency
Continue to address alcohol related abuse and violence in proximity to suburban areas
Greater Southern Area Health
Priority/ Actions
Relevant Plans
Performance Indicators Time Frame
• •
Rivmed • • •
Map outreach alcohol services Increase integration and coordination of primary care providers to deliver more effective services Deliver outreach alcohol services Deliver outreach domestic violence services Invest in sustainable relationships with key agencies to provide a more effective and efficient service to clients
• • •
Number of clients accessing service Number of referrals Options available to clients
M H
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2
H H H
Social Plan 2009 – 2013 SP. 1:1, 3:2
Municipal Public Health Plan
33
Goal 4: Community Infrastructure Rationale
4.1
The night time economy provides a different environment for pedestrians than that during the day. It is vital that harm is minimised to all pedestrians through the use of safe, practical and accessible infrastructure
Strategic Objective
Encourage safe movement of pedestrians
Priority/ Lead Agency
Actions
Relevant Plans
Performance Indicators Time Frame
WWCC
•
Country Energy
•
Transport Operators
•
Licensees Police
• •
• • •
To complete Street Lighting Strategy Conduct late night movement audit consultation addressing issues inlcuding lighting, access and safety CBD pedestrian intersection and taxi rank lighting completed Map elevated risk and priority areas of the CBD against crime ‘hotspots’ Develop and distribute a Wagga at Night Tourism brochure including information indicating alcohol free zones and alcohol prohibited areas Apply CPTED principles when improving or developing infrastructure Review of late night public transport pickup points Implement Public Toilets Strategy
• • • •
• • •
Street Lighting strategy completed Complete late night movement audit Evaluate street lighting strategy Continued utilisation of improved and innovative lighting strategies Produce and distribute information about Wagga at Night Continued utilisation of CPTED principles Complete review of public transport pickup points
Complete
CSP. 1:4:1, 1:4:2, 1:4:3
H CSP. 4:1:2 H Street Lighting Strategy H
M
Designing out Crime - Housing Renewal Action Plan
H
CBD Access – Social Plan 2.3
H
SP. 3:2 Pedestrian Access Mobility Plan 2010 Wagga Wagga City Council LEP & DCP 2010 Wagga Wagga City Council Footpath Plan Central Area Traffic Plan
34
Maximising the effective use of transport within Wagga Wagga LGA is a vital issue to the community and can only be addressed through an integrated and coordinated approach from multiple stakeholders
4.2
Improved and coordinated approach to peak hour transport
Transport Working Group (Facilitated by Ministry of Transport)
• •
Taxi Operators Public and Courtesy bus providers
• •
RTA
Events Register to be distributed to all transport providers Re-examine night bus service including: providing security for drivers, promotion through third party and drop off for patrons at their front door Develop Wagga Wagga LGA Night Transport Plan Event DAs to incorporate transport into planning process
•
Develop policy around the development application process to consider social impacts Encourage applications from alcohol free late night traders Encourage applications from licensed venues to diversify their business eg: installing children’s play equipment
•
• • •
Develop and distribute Events Register amongst relevant stakeholders Distribution of wallet cards detailing transport options Complete reexamination of night bus service Produce and implement Wagga Wagga LGA night transport project
M
Review and update DA process Increase in application from alcohol free late night businesses Increase in applications from licensed venues diversifying their business
M
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2
H SP. 3:2 H
M
Central Area Traffic Plan
WWCC Police
Improve the DA application process to consider wider implications including safety of patrons, best practise and development of the night time economy
4.3
35
Improved development application process
WWCC
•
Local business • •
• •
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2
M SP. 3:2 Wagga Wagga City Council DCP 2010 M
Goal 5: Regulation & Enforcement Rationale
5.1
Effectiveness of strategies such as RSA and RBT is enhanced through enforcement
Strategic Objective
Increase and continue evening and major event enforcement activities
Priority/ Lead Agency
Actions
Performance Indicators
Relevant Plans Time Frame
Police
•
OLGR
•
RTA
• •
Licensing Police to continue spot checks Increase in police visibility and presence Continued use of RBT Continue enforcement of RSA
• • • •
Number of enforcement operations conducted Scale of enforcement operations conducted Number of RSA Marshalls at licensed venues Number of random breath tests conducted
H
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2
H SP. 3:2 H
H
5.2
Alcohol free zones and Alcohol prohibited areas require enforcement to be effective. The issuing of penalties by police has the potential to enhance effectiveness of Alcohol free zones (see
Increase effectiveness of Alcohol Free Zones and Alcohol Prohibited Areas
Police
•
WWCC •
Continued enforcement of alcohol free zones requirements Monitor and continue to modify alcohol free zones and alcohol prohibited areas in accordance with CPTED principles and social impacts
• •
Number of alcohol related incidents in alcohol free zones Continued monitoring and modification of alcohol free zones
M
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2
H SP. 3:2
Alcohol Free Zone Policy
36
strategy 1.3)
‘ User Pays’ provides event organisers and licensed venues to pay for increased police presence. The success of this strategy largely depends on police resources and negotiation between concerned stakeholders
5.3
•
Investigate ‘userpays’ option for police enforcement around special events and late night traders
Investigate feasibility and capacity for ‘user-pays’ program
•
Complete investigation and feasibility study for ‘user-pays’ program
M
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2 SP. 3:2
Goal 6: Community Safety Rationale
6.1
Lockout of 1.30am is a voluntary agreement between late night licensed venues and
37
Strategic Objective
Maintain effective use of lockout
Priority/ Lead Agency
Actions
Relevant Plans
Performance Indicators Time Frame
Liquor Accord Community
•
Maintain 1.30am lockout for Wagga Wagga LGA
• •
1.30am lockout adhered to Comparison of crime indicators
H
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2 SP. 3:2
minimises harm by providing a monitored and secure environment. It also provides a window for people coming from other events to experience Wagga’s late night economy
6.2
6.3
Alcohol related injuries can be minimised through the use of current and effective strategies being used in the industry
Prevent or minimise alcohol related assault to patrons or the public
Utilising best practise management tools around alcohol management minimises harm to patrons and provides for a more attractive late night
Best practice around late night venues that serve alcohol
Licensee
•
OLGR WWCC
•
Police
Licensees
• •
Support the licensing laws around glass restrictions for venues identified by OLGR Work towards best practise strategies around reducing the impact of glass related injuries for both staff and patrons
•
Provide free low salt food options throughout the night Support Liquor Accord to champion best practice around harm minimization strategies for late night venues
•
Increase in the use of polycarbonate
M
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2 SP. 3:2
• •
Free low salt food provided Liquor Accord to research harm minimization strategies
M
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2
H SP. 3:2
38
environment
Implementing strategies to reduce binge drinking and intoxication reduces harm to patrons
6.4
Minimise risks associated with alcohol consumption through controlled serving practises
Licensees
• • • •
• •
No shots after a certain time Limit number of drinks per person after certain time Restrict the availability of some alcohol eg: high strength shots Licensees and bar staff to be more alert to those customers who have preloaded before entering the premises No high volume RTDs Alcohol free periods
•
•
Number of licensed premises that use strategies to limit access to alcohol after a certain time Number of alcohol related incidents
H
CSP. 1:4:1, 1:4:2, 1:4:3
H CSP. 4:1:2 SP. 3:2 H
H
H H
Goal 7: Marketing & Communication Rationale
In order to gain
39
Strategic Objective
Promote
Priority/ Lead Agency
Actions
Performance Indicators
Relevant Plans Time Frame
•
Deliver drink driving
•
Drink Driving
CSP. 1:4:1, 1:4:2,
7.1
maximum exposure to the target audience, appropriate media and channels of communication must be utilised
education tools and services widely and through effective mediums for target groups
RTA Council
•
Police •
•
•
education advertising and RBT Campaign Explore funding for promotional merchandise for education programs and services Continue to utilise Community Directory for education and service providers Provide information around gatecrashing parties, underage drinking and other related topics on the youth website Deliver One Punch Can Kill and Party Safe messages
• • •
•
education and RBT campaign delivered Number of disposable breath testing units utilised Secure funding for promotional merchandise Number of service providers appearing in the Community Directory Number of hits on website
H
1:4:3 CSP. 4:1:2 SP. 3:2
M
L
H
7.2
7.3
Greater visibility, promotion and advertising would enhance any future late night transport project
Greater visibility and promotion of available transport options
It is important that alcohol promotions be used in
Act within alcohol promotion guidelines in conjunction with
Transport Working Group
•
Plan and develop a late night transport marketing project
•
Late Night Transport Marketing Plan developed
M
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2
Liquor Accord SP. 3:2
OLGR
•
All licenses premises to promote or advertise responsible consumption of alcohol and drink drive
•
Strategies used to promote messages and reach gained
H
CSP. 1:4:1, 1:4:2, 1:4:3
40
7.4
conjunction with RSA as they have the clear potential to promote risky alcohol consumption
RSA
Greater positive promotion in the media is required for the community to be alerted to the steps stakeholders are working towards in regards to alcohol harm minimisation
Engage media to promote positive strategies and policies used by stakeholders
messages
CSP. 4:1:2 SP. 3:2
Media WWCC
• • •
•
Consultation with relevant Stakeholders Develop media strategy Implement media strategy
• •
Liquor Accord
No of media releases published No of radio/TV interviews No of enquiries regarding Alcohol Management Strategy
M
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2 SP. 3:2
Goal 8: Diversified & Vibrant Late Night Economy Rationale
8.1
Encouraging diversity of late night activities and events provides target groups with
41
Strategic Objective
Encourage diversity of late night activities, events and services
Priority/ Lead Agency
Actions
Performance Indicators
Relevant Plans Time Frame
Community Event Organisers
• •
ICLEI •
Conduct a late night business activity audit Map late night activities, events and services available for target groups Develop and implement a
•
•
Complete mapping of late night activities, events and services within Wagga Wagga LGA Number and diversity of
H
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2
alternative options, produces a more vibrant late night experience and makes Wagga Wagga LGA an attractive place for the local community and tourists
8.2
8.3
•
Late Night Economy Action Plan Facilitate and support agencies implementing alcohol free activities and events
•
•
•
To provide the community and specific target groups with an increased number of late night options, it is important to consider access implications such as cost and access to transport
Increase access to late night activities, events and services
Late night businesses and trading venues are the foundation to
Effectiveness of current trading hours in providing a vibrant, entertaining and
Community Event Organisers
•
•
Support lead agency in providing access to affordable activities for target groups Support lead agency in access to transport for target groups
late night activities, events and services for target groups Economic benefits received by Wagga Wagga LGA Perceived attractiveness of late night economy to the community and tourists Number of alcohol free events and activities
M
SP. 3:2
H
Wagga Wagga City Council Youth Strategy
•
H
Number of people accessing activities, events and services
Wagga Wagga City Council LEP & DCP 2010
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2 SP. 3:2
H
WWCC
•
Police •
Map current trading hours of late night trading businesses and activities for target groups Facilitate and advocate for
•
•
Complete mapping of late night trading businesses and activities Coordination and
H
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2
42
8.4
the night time economy. However the hours they trade and when they close have implications on police resources, transport and community safety
safe night time economy
Further engagement and consultation with youth groups would assist in addressing their needs for night time activities and services and bridge the gap in improving existing services and night time offerings
Encourage youth groups to further engage and consult with organisations and agencies in creating night time activities
Licensees
effective use of staggering closing times
effectiveness of resources eg: transport, police etc
OLGR
SP. 3:2
M
WWCC
•
Education providers Sports Clubs Local youth groups
•
Further consultation with Youth Forum and other youth groups about alcohol related issues and night time activities Strengthen partnerships between youth organisations offering night events or activities
• •
Number and frequency of youth groups consulted Effective use of resources
M
Wagga Wagga City Council LEP & DCP 2010
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2 SP. 3:2
M
Goal 9: Monitoring and Evaluation Rationale
43
Strategic Objective
Priority/ Lead Agency
Actions
Relevant Plans
Performance Indicators Time Frame
9.1
Capture and monitor the costs of alcohol related harms across Council to better understand the costs to ratepayers and residents
Implement the ICLEI toolkit
ICLEI Council
Capture data in relation to lost labour and productivity, enforcement of local laws, statutory costs waste management costs and property damage costs due to alcohol
• •
BOSCAR data Estimated alcohol management costs to Council
H
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2 SP. 3:2
M
L
H
9.2
Review relevant sources of data for quantitative evaluation of effectiveness of strategies
Request relevant Boscar information and agency information
Police Health BOSCAR OLGAR
Request Police/Boscar data six monthly on assaults in the local area Collect updated data on alcohol related driving offences from Police Collect updated data on alcohol related family violence rates Collect updated data on alcohol related ambulance attendances
•
• • • •
Involvement of alcohol including place & type of incident in the following: Assaults in the local area Family violence incident rate Hospital bed days per year from alcohol related incidents Percentage of emergency related presentations in a given time period
M
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2 SP. 3:2
44
9.3
Evaluate programming from a qualitative perspective in relation to effectiveness of strategies
Continue consultation with community about effectiveness of strategy
• Health Police OLGAR
Conduct consultations on an annual basis with community about effectiveness of programs conducted in conjunction with the strategy
•
Ambulance attendances
•
Focus group annually H
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2 SP. 3:2
Liquor Accord CDAT RTA Council
9.4
9.5
Improve strategic planning processes by Council in relation to harm minimisation
Develop a template for identification of associated plans
Evaluate overall strategy effectiveness
Report on evaluation methodology to Steering committee and Liquor Accord
45
• Council
Develop a template for linked plans
•
Number of Strategic plans linked
H
CSP. 1:4:1, 1:4:2, 1:4:3
ICLEI CSP. 4:1:2 SP. 3:2
Council
•
•
Report on qualitative and quantitative evaluations for programs delivered as part of the alcohol management strategy Share evaluation data across Alcohol Steering Committee and Liquor Accord.
• •
Annual program effectiveness is positive Community feedback is reflected in ongoing strategy implementation
M
CSP. 1:4:1, 1:4:2, 1:4:3 CSP. 4:1:2 SP. 3:2
Discussion Papers Advocacy & Collaboration
Strengthen partnerships between agencies and service providers Partnerships and collaboration generally is seen as one of the cornerstones of best practice in efforts to reduce alcohol-related harms (Doherty and Roche 2003) and is considered a crucial component of ‘problem-orientated policing’ (Goldstein 1990; Bullock et al 2006). Wagga Wagga currently has several key stakeholder groups which have interest in alcohol related behaviour and activities. A general move by key stakeholders has been towards being more collaborative, consultative and proactive in their dealings with each other, and with the complex issues associated with alcohol consumption. Strengthening the existing partnerships as well as expanding them further will result in improved integration and coordination of resources to address alcohol related issues. At the same time it is vital to ensure that existing stakeholder groups are not duplicated. Their channels and resources should be used as a mechanism for executing programs, services and information in a manner that can be promoted and supported by community and other interested groups. There are, however, a number of challenges involved in partnership work. Far from being the ‘easy option’, partnerships can be costly in terms of resources, time taken to develop and difficulty with effective management. Therefore, organisational support, continued funding and implementation of integrated, coordinated and complimentary strategies is crucial to the sustainability and success of partnerships. The use of partnerships in all its forms, need more formal support from senior management and State Government in order to reap the potential benefits of partnership work. The City of Wagga Wagga supports a comprehensive approach to addressing alcohol issues. The Community Drug Action Team (CDAT) has been active in Wagga Wagga LGA for ten years. Its representatives from local stakeholder groups and service providers promote improved communication and recognise the partnership required for a successful project development. CDAT forum has provided a key way of exchanging information, ensuring duplication is minimised and local drug and alcohol services and events are widely promoted amongst members. The local Liquor Accord exists as an agreement by licensees and other stakeholders to take certain actions in the local community which aim to improve safety in entertainment areas and reduce alcohol-related anti-social behaviour, offences and violence (OLGR). Building a strong and constructive relationship with the local Liquor Accord goes a long way in addressing many of the alcohol related issues identified by the community. With members including licensed premises, the Police, the RTA and Transport, the Liquor Accord can be a vehicle which implements real change in the community and local drinking culture. The Alcohol Steering Committee was set up in 2009 to steer and develop the Alcohol Management Strategy project. Now that the project has been finalised, there is a 46
need to consider a broader role for a new committee to oversee the Alcohol Management Strategy which will continue to oversee the Alcohol Management Strategy, provide advice on the design and implementation of strategies. This could be a separate committee or an existing working committee with a wide representation, such as the Wagga Wagga Liquor Accord, to take this role.
Lobbying for increased Police resources The results of surveys carried out both nationally and internationally indicate that increased police presence and visibility acts as a deterrent for crime and provides community with a greater assurance of safety. The importance of visible presence is acknowledged by police, local businesses and the community. This presence is particularly important around major events where alcohol is served, in residential areas where there are particularly high levels of alcohol related assaults and domestic violence and in the CBD. Where resources allow, police organisations provide a proactive response – high police visibility in peak periods, managing their rosters to make visible presence a reality. Unfortunately, current police enforcement capacity does not match the high level of need in Wagga Wagga LGA. Late trading precincts create the equivalent of major events every weekend in the CBD. Therefore, there is a need for the whole community to lobby State Government to provide sufficient police resources to manage this situation. The current strategies are driven by two factors – the importance of keeping a visible police presence on the streets and the community safety imperative. The strength of such strategies is determined in part by available resources and other organisational imperatives. Police can exercise a significant degree of mandated flexibility in the decision making whilst on duty. Discretion is considered a significant police tool for dealing with people who are disorderly or drunk, but not a danger to themselves or others. Major studies on fear of crime in Australia found that perceptions of crime levels and consequent fear of becoming a victim of crime has resulted in changing behaviour among several groups, such as women and the elderly. This included avoiding certain places or not going out alone after dark. A remarkable drop (over 60%) in crime in New York during the 1990s was credited by the dramatic change in policing policies of the New York Police Department. They built these policies around the ‘Broken Windows theory of crime’, which argue there is a connection between disorder and crime (Billante, 2003). But at the heart of the revamp were some very practical, specific policies that research internationally has shown are effective:
Deterrence by increased police presence Patrolling crime hotspots Enforcement Police presence, patrolling and enforcement have shown to be particularly effective when alcohol is present. It is also a crucial aspect in building a multi-layered community approach to tackle alcohol related issues.
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Changes to impose penalties for Alcohol Free Zones Alcohol Free Zones aim to reduce alcohol related crime and anti-social behaviour in identified locations in order to create a safer environment for residents, businesses and visitors. Alcohol Free Zones apply to public roads, footpaths or public car parks that have been declared as Alcohol Free Zones in accordance with the Ministerial Guidelines on Alcohol Free Zones 2009. This declaration prohibits the carrying and consumption of alcohol in these places. Alcohol Free Zones are enforced by the Police. At present, there is no penalty or fine in place for offenders but police do have the powers to confiscate or tip out the alcohol. Responding to requests from the residents and Police the city of Wagga Wagga has established Alcohol Free Zones for much of Baylis Street and Fitzmaurice Street. Currently, one of the major implications for the community is people being transported with alcohol (especially glasses or bottles) and being dropped off in the CBD. It has been suggested that effectiveness of Alcohol Free Zone strategy could be aided by; enforcing penalty in the form of on the spot fines and by seeking cooperation from the public transport providers to refuse service to people carrying alcohol to CBD. These would reduce the clean up and improve safety for pedestrians late night. There is a great need for the community to lobby local member to seek penalties being imposed in Alcohol Free Zones. The legislation regarding Alcohol Prohibited Areas stipulates prohibition of carrying and/or consumption of alcohol in a designated reserve or park which is implemented by resolution of Council under Section 632(2)(e) of the Local Government Act 1993. This legislation can not be used to regulate the consumption of alcohol on roads, footpaths and in public car parks as these places can, at certain times, be used for special events such as weddings. Times are signposted and a fine may be issued if alcohol is consumed in these areas outside specified times.
Corporate-wide approach  Alcohol has always been accepted as part of the traditions of celebrations and part of our socialising as the majority of Australians drink in moderation. However, little is known regarding alcohol consumption patterns of Australian workers and the impact these patterns have on workplace safety, workplace productivity and worker wellbeing. Further analysis from previously unexamined aspects of the 2001 National Drug Strategy Household Survey (NDSHS) found high levels of risky drinking in particular occupational groups. Also identified were strong associations between risky levels of drinking and adverse workplace events such as high levels of absenteeism and attending work under the influence of alcohol. There has recently been a paradigm shift in the thinking of alcohol use and the work place. Acknowledged is the role of individual perceptions and beliefs. However, more emphasis is now based on the role of environmental factors. This perspective proposes that individual beliefs, attitudes, and intra-psychic factors, are not the most important determinants of workers’ alcohol consumption patterns. Rather, it is the alcohol-related culture of the wider work organisation which predominately shapes drinking behaviour. (Pidd et al, 2006)
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Policy and best practice measures need to incorporate a broader perspective to reduce alcohol-related harm in the workplace. Interventions that integrate policy, treatment and prevention strategies and target workplace culture to influence behaviour are more likely to be effective in reducing alcohol-related harm. Addressing issues related to the culture of drinking within a working environment may also contribute to the reduction in the uptake of risky patterns of drinking by young Australians who have recently joined the workforce. These are an especially vulnerable group who with an increase in expendable income are subject to strong behaviour-shaping influences such as those found in the workplace. An important finding to emerge from Pidd et al, 2006 was the elevated risk of negative workplace outcomes due to occasional heavy drinking. In the past emphasis has been on identifying the relatively small number of alcohol-dependent workers. The most adverse alcohol-related events in the workplace are likely to stem from numerous workers who only occasionally or intermittently drink heavily, rather than the smaller number of frequent heavy drinkers. There is a range of strategies that workplaces can utilise including: • Developing, implementing & reviewing an alcohol management plan/policy • Providing education and training • Employee assistance programs or Counselling services • Testing • Health promotion programs • Brief interventions Suitability depends on the needs and resources of individual workplaces. If these strategies are embedded in a whole of corporate approach, they are more likely to be effective than a single stand along strategy. Through the community consultation process businesses, corporate organisations and community groups were identified as key stakeholders for implementing solutions to alcohol problems in Wagga Wagga. However, most of these stakeholders are probably unaware that they are putting themselves at risk when not implementing best practice strategies around alcohol consumption at company events such as Christmas parties, sports club home games and social happy hours. Implementing best practice strategies around alcohol consumption is not just relevant to licensed premises. With a whole of corporate approach, WWCC intends to review its existing alcohol management policy and start to embed key strategies into the organisations operations. This will provide internally it to be a safe, productive and healthy workplace but also ensure best practice alcohol management and harm minimisation is promoted through its community events, partnerships and everyday business.
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References AIHW, Australian Institute of Health and Welfare 2001, National Drug Strategy Household Survey: Detailed Findings, Drug Statistics Series No.11, AIHW cat. no. PHE 41, Canberra: AIHW Billante Nicole is a Research Assistant at The Centre for Independent Studies and the author of The Thinning Blue Line (2003) Doherty S & Roche A 2003, Alcohol and licensed premises: best practice in policing. Payneham: National Drug Law Enforcement Research Fund.
Pidd, K, Berry, J, Harrison, J, Roche, A, Driscoll & T, Newson, R. 2006, “Alcohol and work: Patterns of use, workplace culture and safety�.
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Community Education
Facilitate & promote access to agencies providing alcohol related education and support services Education can be a powerful tool in the prevention of alcohol related problems. There are many education campaigns on alcohol directed towards the general community. These come in many forms and from different groups and organisations. There is a growing trend towards Government using social mass media to reach target audiences, including television advertisements, cinema, magazines and newspapers. The Wagga Wagga City Council recognises the importance of community awareness of available education programs and services and also their accessibility. As it will be discussed later in this paper, a number of stakeholders provide education and support services around alcohol and behavior. However, a greater emphasis could be placed on promoting these services and alerting the community to their availability. Many organisations such as local business, licensed premises and Council can support other organisations such as health providers and schools in promoting their services. It is recognised that these organisations do have a limited capacity in delivering alcohol education. For this reason, it is vital that stakeholders work together in order to provide those at risk or the potential of being at risk with education and services over and above the school curriculum. Using online media and promoting information through the Council’s Regenerate website and Community Directory, allows free and confidential access to alcohol related information. Continued delivery of training for bar & security staff There is good evidence that training programs for alcohol sellers and servers can be successful in minimising harm when they are of high quality and combined with strong support from venue management and effective law enforcement. Many programs aim to educate and train sellers and staff at alcohol-serving establishments about standard drink sizes, proper identification checking, recognising inebriation, not over-serving, and dealing (in non-confrontational ways) with individuals who have consumed too much alcohol. Responsible Service of Alcohol (RSA) training in NSW is mandatory for all liquor licensees, sellers and servers in retail licensed venues who are permanent employees (since 31 December 2003) and casual employees (by 30 June 2004). This requirement reflects the importance of ensuring licensees and staff understand their obligations in serving liquor responsibly and the types of strategies that can be implemented to add value to a venue’s operations. The NSW government extended the requirement for mandatory Responsible Service of Alcohol training so that it also applies to security officers, who have crowd control duties at licensed venues, from 1 January 2005. Responsible Service of Alcohol training includes instruction in conflict resolution in situations where persons have been consuming alcohol as well as training in recognising potential conflicts before 51
they occur so the situation can be resolved constructively rather than aggressively. There should be a continuation and enhancement of such training. In the Queensland’s report, March 2010, the suggestion was made to engage RSA Marshall whose role would be to supplement the role of trained RSA staff during peak hours. RSA Marshall or Senior Supervisor would need to have specialised skills, that is, be well-trained in RSA but also in how to handle potentially difficult interactions with patrons. The same recommendation was made for Wagga Wagga as a positive measure towards supporting and guiding newly trained RSA staff in responsible service of alcohol. The lead agencies in Wagga Wagga are also committed to sourcing funding for the Safer Bars program. The program was developed by Centre for Addiction and Mental Health (CAMH) over five years in consultation with bar owners & staff as well as the police, lawyers, community health professionals, civic leaders & liquorlicensing officials. The program was developed to reduce aggression & injury in licensed premises. It helps staff develop techniques for preventing and managing aggression and other alcohol related behavioural problems including: •
Assessing & Reducing Risks of Violence – identify & address environment risks of aggression & other problems
•
Safer Bars Training – a three hour training program, content: techniques for managing problem behaviour & reducing risks of injury & legal problems
•
Do you know the law - a legal pamphlet illustrating the legal risks of allowing aggression in bars & clubs
The Safer Bars program was evaluated using a randomised control design involving 30 licensed premises over a three year period. The results indicated both significant change in knowledge and attitudes of bar staff and management involved in the program, as well as a significant decrease in aggression observed by objective researchers-observers. The research indicated that on the nights of observation moderate-severe physical aggression which occurred in the experimental bars decreased by 28% following the training, while the aggression in control bars increased during the same periods. (Bar Guardian, 2009) Governments can strengthen the role of seller and server training programs by: • making it a licensing requirement that all staff be trained on regular basis; • developing national standards for training programs and accrediting individual programs; • directing law enforcement agencies to monitor breaches of licensing regulations and impose sanctions; • supporting retailers to provide training for their staff (training can be costly due to high staff turnover); • providing incentives or recognition for alcohol establishments that are examples of best practice; • ensuring that all staff involved in alcohol transportation and sales adhere to safety practices. The main emphasis of these efforts is to avoid serving alcohol to minors and intoxicated patrons, thereby reducing the incidence of alcohol-related problems, 52
specifically violence, antisocial behaviour, and alcohol-impaired driving. These programs can also reduce liability for the retailer. Retailers can help reduce harmful drinking by developing self-regulatory codes of responsible practice, increasing manager training, and building ties with the law enforcement to ensure the appropriate oversight of regulations. Provide coordinated & effective state and local Drink Driving education programs Providing coordinated and effective State and local Drink Driving campaigns and education programs is an important strategy to prevent alcohol-related harm. In NSW primary prevention of drink driving, through education and media strategies, is a central component of the drink drive countermeasure program. The Drink Driving advertising campaigns occur within a strategic framework that incorporates mass media, enforcement, public relations and community-based programs. The objectives of media campaigns are to: • • • • • •
reinforce the social unacceptability of drink driving; maintain awareness of RBT and the consequences of being caught; reinforce the risks and consequences of crashing; increase awareness of drink driving issues; influence responsible road safety behaviour in young people; and inform the community about alternatives to drink driving.
At the local level, there have been a number of campaigns related to Drink Driving. A good example is ‘R U Over It?’ - the first campaign in NSW to draw attention to the risk of being charged for driving under the influence of alcohol the morning after a drinking session and used non-traditional media to reach its audience. The project was created by Leeton Shire Council Road Safety and Traffic Officer and developed in conjunction with Greater Southern Area Health Service. A key and innovative component of the project was the use of a hand stamp to ensure the message remained with a drinker until the following morning. The ink was designed to remain until washed off so it would prompt the drinker to consider if they are still over the legal limit the day after drinking. This stamp built upon existing practices used by venues to manage patrons, such as showing ID has been checked or entry has been paid. The message on the stamp included directions to the website, which provides a limit calculator to estimate the time required by the body to digest the amount of alcohol entered by the user. The Road Safety Officer at Wagga Wagga City Council has recently received RTA’s approval to implement a similar program titled ‘The Morning After the Night Before.’ Once implemented, evaluation will be completed by the RTA. Strong Partnership between the Road Safety Officer, RTA and Police has been invaluable in ensuring effectiveness of educational programs and enforcement at a local level. The Road Safety Officer works closely with local Traffic Engineers, Traffic Committee, NSW Police, The RTA and the local community to address road safety issues of the Coolamon, Junee and Wagga Wagga Local Government Areas. The program aims to increase the involvement of local government and local 53
communities in strategies to improve the safety of people on roads. The program relates to behavioural issues with a focus on improving road safety within the local community (Council’s Road Safety Action Plan 2010 – 2011). The aim is to raise awareness of key issues such as drink driving, which contribute to local road crashes, and to develop and implement highly localised projects to address these issues. Continued commitment to targeted education programs In recent years, the NSW Department of Education and Training in partnership with the RTA has provided schools with an end-of-year celebration folder, which contains materials to encourage students to celebrate their end of school year safely. The kit has included RTA resources such as the Cheers without Fears, Mocktail Magic, and the Drink Driving pamphlet. The Australian Drug Foundation (ADF) launched the Good Sports Accreditation Program (GSAP) in rural Victoria in March 2001 and has now expanded it to NSW, Tasmania and Northern Territory. More than 500 sporting clubs have registered in the GSAP. The GSAP assists sporting clubs to ensure best practise around responsible service and therefore reduce the potential for alcohol related harm. Although sporting clubs usually get involved in the GSAP on their own initiative, some local governments have encouraged clubs to join by providing discounts on the use of council land or viewing the clubs’ applications for grants more favourably than those clubs that are not part of the GSAP. Councils have also played a role in helping sporting clubs to promote the program to their members (private communication, 26 February 2002 – Bianca Crosling, GSAP Project Officer, ADF). Good Sports is recognised in the community health sector for its extensive research. The program is evidence-based and evaluation continues on an on-going basis. A unique educational program for young people was revealed during a public lecture hosted by Charles Sturt University (CSU) in Wagga Wagga in July 2010. The ‘Putting Youth in the Picture’ program was created by Queensland lawyer, Mr Adair Donaldson to help local communities deal with issues confronting youth. The program uses a series of confronting movie scenarios to show how young people can become involved in life altering incidents as a result of poor decision making. The issues presented and discussed include sexual assault, a bar-room fight, use of illegal recreational drugs, binge drinking and underage drinking at a party featuring all of these behaviours. LOVE BiTES is also a school-based program for young people founded on evidence which shows that school-based strategies can lessen perpetration and victimisation of relationship violence (Flood et al, 2009). Schools are a positive site from which to run prevention education as they increase the accessibility of programs allowing the material to be integrated within the curriculum and the systems of the school. The National Association for Prevention of Child Abuse and Neglect (NAPCAN) advocates for a whole-of-school approach to the prevention of relationship violence and has included in the LOVE BiTES package lesson plans on gender deconstruction, sexual harassment and bystander strategies that can complement 54
the Personal Development, Health and Physical Education curriculum. This program also lends support to existing violence prevention initiatives that are operating in classrooms. It is also of benefit that schools run welfare departments which combine primary, secondary and tertiary prevention activities therefore providing holistic support to young people. Schools in NSW are also provided with a range of resources to assist teachers to develop teaching and learning programs that meet the educational needs of their students. The following resources support the implementation of drug and alcohol education: •
Healing Time: Stages 2 and 3 drug education resource for Aboriginal students. This resource was developed by the Department of Education and Training and is written from the perspective of an Aboriginal family who live in an urban, multicultural context but is appropriate for all students. Each teacher’s manual includes six lessons, Dreaming stories and a narrative. Araluen’s story (Stage 2) and David’s story (Stage 3) are used to explore the effects of smoking, decision-making, rules and consequences through the eyes of Aboriginal children and their families. Stage 2 has a particular focus on passive smoking and the Smoke-free Environment Act 2000. Stage 3 focuses on the effects of smoking, reasons for not smoking and advocacy skills. The resource also includes activities for teachers, parents and the local community.
•
K–6 Drug Education Resource. This resource was developed by the Department of Education and Training and includes teaching and learning activities about alcohol for Kindergarten to Year 6. Lessons include what alcohol is, why people might choose not to use it and how use may affect behavior. Students also consider the consequences of drinking alcohol and how alcohol is portrayed by the media.
•
REDI – Resilience Education and Drug Information. The REDI resources were developed by the Commonwealth Department of Education, Science and Training. The Big Move is a resource for upper primary students, which contains scenarios to prompt discussions about relationships, change, peer pressure and bullying. It also explores health issues related to tobacco and alcohol use.
•
Peer-led Alcohol Lessons for Students (PALS). The NSW Department of Education and Training, in consultation with the Peer Support Foundation, developed Peer-led Alcohol Lessons for Students (PALS). The resource has been designed to enable schools to implement peer-led alcohol education. Students in Years 7 or 8 are taught by peer leaders in Years 10 or 11. Students learn about alcohol and its potential harms and investigate the influences on young people to use alcohol. They learn about standard drinks and explore risk and the consequences of risky behavior. They practice decision-making and learn how to seek further information about alcohol and where to seek help if they need it.
•
Rethinking Drinking. This resource was funded by the Australian Associated Brewers Incorporated. It targets lower secondary school students. It focuses on alcohol education including information about its effects, standard drinks, and hazardous drinking and parties. The Commonwealth Department of 55
Education, Science and Training has revised Rethinking Drinking. •
Set to Celebrate. This resource developed by the Department of Education and Training, is a drug education resource for Years 11 and 12 students which supports Crossroads: A personal development and health education course for Stage 6. Activities focus on celebrations where alcohol may be present and provide senior students with opportunities to explore issues such as drinkdriving, supply of alcohol, risk-taking behavior and hosting parties.
•
End of year celebration kit. This kit has been developed to assist students to stay safe during Schoolies Week and when participating in other celebratory activities. The kit includes information about drink-driving, driver fatigue and liquor laws in NSW. A HELP Card listing emergency telephone numbers is also included. This initiative involves the Department of Gaming and Racing, the Roads and Traffic Authority and NSW Health.
The NSW Strategy to Reduce Violence Against Women through the Violence Against Women Prevention Unit has developed a number of innovative programs aimed at enhancing the safety of women in and around licensed premises, including the STRAW (Safer Times ‘Round Albury Wodonga) and Pub-safe programs. NSW Health Area Health Services are developing resources on drink spiking at the local level. The Violence against Women Specialist Unit is involved in community based prevention strategies such as spiked drinks campaigns, in partnership with health workers, police, licensed premises and local councils. Given that local Refugee Resettlement program has grown and as a result the number of refugees settling in Wagga Wagga is on the rise it would be worthwhile to develop education and information around responsible service of alcohol and bar etiquette in multiple languages. This would ensure that the information is well received amongst culturally and linguistically diverse (CALD) community members.
References Australian Institute of Health and Welfare 2002, ‘2001 National Drug Strategy Household’
Flood et al, 2009, Respectful Relationships Education www.education.vic.gov.au/healthwellbeing/wellbeing/respectrel.htm
Homel (Ed), Policing for prevention: Reducing crime, public intoxication, and injury. Monsey, N.Y.: Criminal Justice Press. http://www.parliament.qld.gov.au/view/committees/documents/lcarc/reports/Report% 2074.pdf
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Lang, E Stockwell, T Rydon, P & Beel, A C 1998, Can training bar staff in responsible serving practices reduce alcohol-related harm? Drug and Alcohol Review, 17(1), 39-50.
McKnight, A J & Streff, F W 1994, The effect of enforcement upon service of alcohol to intoxicated patrons of bars and restaurants. Accident Analysis and Prevention, 26(1),
Shanahan, P & Hewitt, N 1999, Developmental research for a national alcohol campaign. Canberra: Commonwealth Department of Health and Aged Care.
Shepherd, J 1998 The circumstances and prevention of bar-glass injury (Editorial). Addiction, 93(1), 5-7.
Wiggers, J 2000, Prevalence and acceptability of public health initiatives in licensed premises. Australian and New Zealand Journal of Public Health, 24(3), 320-322.
Wiggers, J Considine, R Hazell, T Haile, M Rees, M & Daly, J 2001, Increasing the practice of health promotion initiatives by licensed premises. Health Education a
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Primary Care
Continue to address alcohol related abuse and violence in proximity to suburban areas Alcohol-related violence is a broad and complex issue that has been identified Nationally and Internationally. The relationship between alcohol and violence is strongly supported by the number of researches cited in Morgan and McAtamney (2009). Rutherford and Zwi (2007) found that men are more at risk of becoming a victim of the public violence, whereas women are more prevalent to be the victims of domestic assaults that occur in private. Even though there is a strong body of evidence, the relationship between alcohol consumption and violence is not straightforward. Most of drinkers, even those drinking excessively do not in fact become violent or engage in other antisocial behaviour. The association between alcohol and violence should therefore be regarded in conjunction with a number of variables, including: pharmacological effects of alcohol on individual’s functioning; personal factors and societal attitudes and values (Morgan and McAtamney, 2009). These factors are of great relevance for the alcohol related abuse and violence in Wagga Wagga Local Government Area. The results from NDSHS 2007 revealed that the Australians 14 years and older were more than twice as likely to be victims of alcohol related violence (29.6%) than victims of violence associated with other drugs (14.6%) (AIHW 2008). Analysing the results in more details, 25.4% of victims of alcohol related violence reported being verbally abused, 13.1% experienced being put in fear and 4.5% reported physical abuse inflicted on them. The report prepared by Australian Drug Foundation quoting BOSCAR statistics concluded that alcohol related offensive behaviour is rising, with NSW reporting 9.3% increase in incidents from 2005 – 2009. Additionally, looking at the statistics for Wagga Wagga (NSW Police) revealed that in 2009 there were 6,508 alcohol related incidents recorded by NSW Police, which indicates 10.6% increase in number of incidents compare to data from 2008 (ADF 2010). The challenge is in the provision of effective and on-going alcohol services and domestic violence services in Wagga Wagga community to prevent and respond to alcohol related violence. Alcohol Related Support Services There will be occasions when it is appropriate for police to accommodate an intoxicated person in a police cell including when the person is violent or aggressive, or when it is impracticable to transport the person to a service because of distance or the service is not available at that time. When an intoxicated person is detained by police, they are provided with medical assessment and treatment if they are injured or appear to have immediate medical needs. These medical services enable a person’s physical and other health needs and risks to be assessed and a management plan developed for all identified risks including 58
provision of drug and alcohol withdrawal regimens. Persons with serious health risks may be transferred to facilities with higher levels of nursing observation. Local police, health workers and community services are working together to link intoxicated persons detained by police with supported accommodation, case management, treatment, rehabilitation and other support services. This is being guided by a formal Intoxicated Persons Protocol between NSW Police, the Department of Community Services and NSW Health which sets out the roles and responsibilities of local services. Many former proclaimed places are now operating as Intoxicated Persons Units within the Department of Community Services’ Supported Assistance and Accommodation Program. They still provide safe shelter, food and a shower for intoxicated persons but are also gradually being realigned to also provide their clients with access to case management, treatment and other support services. Services in inner Sydney are being reconfigured under the Inner City Homelessness Strategic Implementation Plan. The five Intoxicated Persons Units in the inner city are developing a combined Alcohol and Drug Strategy to manage the transition from providing ‘sobering up services’ to coordinated case management, outreach services, day programs and linkages to detoxification and rehabilitation services. Individual services are also being realigned to focus on particular groups of intoxicated persons such as chronic repeat users of services and more casual users. There are also rehabilitation and detoxification services provided in the Wagga Local Government Area: •
•
•
•
O'Connor House Alcohol Detoxification and Rehabilitation Service - a 10-bed alcohol detoxification and motivation unit funded by the NSW Health Department through the Greater Southern Area Health Service. The unit provides care for clients from a wide geographical area of country New South Wales and north-east Victoria. The Peppers Illicit Drug Program - a therapeutic community residential setting for those recovering from drug abuse. Funding has been provided through the National Illicit Drug Program for this essential service. Home Detoxification & Transitional Support Service – is provided by a Registered Nurse trained in Alcohol and Other Drug Services to facilitate detoxification in the most appropriate setting. This service is also funded through Greater Southern Area Health Service. Improved Services for people with Drug & Alcohol problems and Mental Illness (Improved Services) Program operates from O'Connor House. This is funded by the Commonwealth Government.
The causes of chronic street drinking are varied and complex and problems are often deeply entrenched. In tackling the problem of chronic street intoxication the problem of homelessness in many cases must also be addressed. However, in many cases mental health issues add a new dimension which can also make long term housing solutions difficult. Collaborative partnerships are critical in providing the right response to individuals with complex problems. In addition, it has been recognised that there is a need for 59
increased integration and coordination of primary care providers to deliver more effective alcohol services including outreach services in the areas of greatest need. Domestic Violence Services The studies show that in Australia alcohol related violence is a growing problem. Alcohol has a significant impact on violent behaviour in a number of areas. The violence occurring in the public places, domestic violence, including sexual assault and violence in Indigenous communities are of considerable concern. Briscoe and Donnelly (2001a) cited in Morgan and McAtamney (2009) analysed NSW recorded crime data and found that more than one-third of alcohol related assaults (38%) occurred in residential locations. This is consistent with data from NDSHS 2007 which revealed that overall 34.1% of alcohol related physical abuse was reported to have taken place in own home, the figures being much higher for women than for men (58.1% and 21.2%, respectively) (AIHW 2008). In addition, two studies cited in NSW Domestic and Family Violence Action Plan (Kaufman, Kantor and Straus, 1990 and Victorian Government Department of Human Services 2008) have also found evidence in support of the link between alcohol consumption and domestic violence. More specifically, the former found that alcohol was involved in 30-35% of Australasian family violence and latter reported such was the case in 25-50% of family violence incidents. Morgan and McAtamney (2009) referred further to a number of studies which reported the alcohol related violence in Indigenous communities to be a significant issue. For example, Dearden and Payne (2009) found that intimate partner homicides amongst Indigenous people were 13 times more likely to be alcohol related compare to other intimate homicides ( Morgan and McAtamney, 2009). Also the study by Mouzos (2005) cited in NSW Domestic and Family Violence Action Plan 2010, reported that in 2003-2004 76% of Indigenous intimate partner homicides involved alcohol whereas for non-Indigenous Australians the statistics were 33%. Alcohol specific statistics for Wagga Wagga LGA provide evidence of increased number of alcohol related domestic violence incidents. In 2009 there have been 151 incidents, which translates to 243.2 alcohol related domestic violence incidents per 100,000 head of population, in comparison the number for the whole of NSW is 160.3. The local data revealed 8.6% increase in such incidents. (ADF 2010). There are several services in Wagga Wagga LGA providing assistance to victims of domestic violence. These include: •
•
Sisters Housing Enterprises Inc – provides medium term accommodation for women and women with children, client advocacy and support. The service is funded through the supported Accommodation Assistance Program (SAAP) by Community Services. Domestic and Family Violence Intervention Service (DAFVIS) – offers help and support to people who have experienced domestic violence. DAFVIS is funded through NSW Attorney General’s Department. Riverina Medical and Dental Aboriginal Corporation – a non-government organisation which provides a variety of medical services to the Aboriginal community of Wagga Wagga. These include services such as: general practice, family health, dental, eye health, social and emotional well-being, drug and alcohol counselling and Bring Them Home counselling. 60
•
•
• •
•
Wagga Women’s Health Centre Inc - a non-government, community based service which aims to provide a unique, holistic, woman-centred approach to primary health care. The Centre provides counselling, advocacy, pregnancy testing and referral. It is also a drop-in centre for all women, especially those in distress. Wagga Wagga Family Support Services Inc – a non-for-proft community based service that offers a range of family services including: groups for mutual support, parental education, development of self confidence, counselling, information, referral and advocacy. Wagga Wagga Family Support Service Inc auspiced and related services include: Court Advocacy Service (CAS) to assist women, who are victims of domestic violence, at court. Women and Children’s Refuge - offers short term, emergency accommodation for women and children in crisis. Relationships Australia - is a community based non-for-profit organisation offering professional counselling, mediation and education services. Relationships Australia runs Anger Management groups twice a year and also facilitates LOVE BiTES educational workshops. The service is partially funded by the Department of Families, Housing, Community Services and Indigenous Affairs (FaHCSIA) Centacare - a social welfare agency of the Catholic Church in the Diocese of Wagga Wagga and a member of a wider network of Catholic welfare organisations across - Catholic Welfare Australia. Centacare provides a range of services these include Family Services – parenting programs, counselling, rural support; Youth and Community Services – catholic schools counselling and KNECT
Most of assistance, however, focuses on providing sympathetic and victim centered care following the assault and looks at ways of reducing further harm. Apprehended violence orders, law reforms, the provision of refuges, health, accommodation and domestic violence services are interventions implemented after the assault (Australian and New Zealand Journal of Criminology, Preventing Sexual Violence). As pointed throughout the research the challenge is to engage in long-term integrated response to alcohol related domestic violence in our community, which focuses on preventing domestic violence in the first place. Council plays an important role in advocating for localised support services and outreach domestic violence services. Continuous investment in sustainable relationships with key agencies is invaluable in responding better to victims of domestic violence and providing a more effective and efficient service to the community members. References Australian Drug Foundation (2010), Alcohol and Wagga Wagga Local data in the context of state and national data. Australian Drug Foundation and Wagga Wagga City Council. Australian Institute of Health and Welfare (2008), National Drug Strategy Household Survey: detailed findings, Canberra: AIHW http://www.aihw.gov.au/publications/index.cfm/title/10674 61
Local data for Wagga Wagga, Alcohol related crime overview Wagga Wagga LAC prepared by Sgt. S. Goodyer on 20.07.2010. Morgan, A & McAtamney, A (2009). Key issues in alcohol-related violence Canberra: Australian Institute of Criminology. http://www.aic.gov.au/publications/current%20series/rip/1-10/04.aspx NSW Bureau of Crime Statistics and Research, NSW recorded crime statistics 2005 – 2009. http://www.bocsar.nsw.gov.au/Lawlink/bocsar/ll_bocsar.nsf/pages/bocsar_lga_Wagga Wagga NSW Domestic and Family Violence Action Plan (2010), Stop the Violence End the Silence, NSW Department of Premier and Cabinet June 2010. Rutherford, A & Zwi, A.B. (2007). How can the Health Sector respond to violence? NSW Public Health Bulletin, May – Jun: 18(5-6): 73-74
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Community Infrastructure
Encourage safe movement of pedestrians In locations with a high density of visitors and businesses, including licensed venues and other forms of industry such as cinemas, cafes, and stores, the management of pedestrian movements is a challenge. Â In particular, popular licensed venues may attract large patron numbers, with a queue forming on the footpath as a result. Some patrons may be excluded or removed from a licensed premise due to being intoxicated, violent, quarrelsome or disorderly. The late night interaction between patrons, either former, existing or potential, or passers by in these public spaces can lead to incidents of alcoholrelated violence or anti-social behaviour. Therefore it is crucial to consider the movement of pedestrians and infrastructure from not only a business hours perspective but also weekend and late night. From a safety perspective transport pick up points for late night pedestrians should be located on the same side of the road and as close as possible to the late night venue. This ensures security is able to monitor their patrons as they leave the premises. However RSA provides that intoxicated patrons, who have been asked to leave the premises, should remain at least 50 meters away. Therefore it is suggested that transport pickup points should be at least but not much further than 50 meters from licensed premises. Public transport settings are particularly vulnerable and there is a need to promote safety at bus stops, railway stations and other public transport settings by ensuring that all pick up points are located, designed and managed to promote user safety by their high activity location, surveillance from passersby, ensuring good maintenance, lighting and even late night security. In some cases drivers are hesitant to go into areas when there are large numbers of people looking for taxis, particularly where those people are likely to have been intoxicated. Late night when taxis are in high demand, altercations can occur between people over the few taxis that are available. This is unsafe for passengers and drivers. Well sited and designed public transport settings, that are well managed and regularly maintained, create a safe environment for community members. This encourages use of the public transport system, and contributes significantly to vibrant and lively activity centres, and also to environmental sustainability. Travelling on public transport should be a safe and comfortable experience. Safety systems such as lighting, security cameras, emergency help points and security guards should be in place to maximise the personal safety of community members. Improved and coordinated approach to peak hour transport An overwhelming response from the community consultation was the limited transport options available in Wagga Wagga late night. Long taxi queues and people wandering the street to late night take-away outlets are common place not 63
only in Wagga Wagga but other Local Government Areas, especially between 2am and 4am on Saturday and Sunday morning. There is a concern that a lack of transport options entices people to consider drink driving. RTA research found that although a large number of young men considered it unacceptable to drive when over the limit, they still considered it acceptable to drink drive. The Liquor Accord subsidised the ‘Night Rider’ bus service to transport patrons from licensed venues in the CBD to suburban areas. Uptake of this service was unsuccessful and this project is yet to be fully evaluated. A more coordinated and integrated late night transport service is required. Key elements identified in the community consultation as contributing factors to an unsuccessful “Night Rider’ bus service include: • Greater promotion and marketing of night time transportation options • Front door drop off • Smaller buses to different areas requiring shorter timeframes to deliver people to their homes • Security on the bus for patron and driver safety • Pilot evaluation by a third party • People not wanting to take a bus but prefer a taxi Such a project would require the reforming of the “Transport Working Committee” or something similar to ensure that Wagga Wagga LGA Night Transport Plan is coordinated and has the support of required stakeholders.
Improved development application process Local government has an important role in improving amenity and urban design. The areas surrounding licensed premises are often associated with alcohol-related harm and neighbourhood concern (Doherty and Roche, 2003). In April 2001, the NSW Department of Infrastructure, Planning and Natural Resources introduced Crime Prevention Legislative Guidelines to Section 79C of the Environmental Planning and Assessment Act, 1979. These guidelines require consent authorities to ensure that development provides safety and security to users and the community. Crime Prevention through Environmental Design (CPTED) is a crime prevention strategy that focuses on the planning, design and structure of cities and neighbourhoods. It reduces opportunities for crime by using design and place management principles that reduce the likelihood of essential crime ingredients (law, offender, victim or target, opportunity) from intersecting in time and space. Reducing the opportunity for crime has the following advantages for a community: • • • •
Creates an appealing environment where people want to live Contributes to quality of life by reducing the social costs of injury, death and family breakdown Reduces municipal costs for policing and for victim services Reduces insurance requirements.
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Looking more closely at the social impacts that local businesses have on the community is also a key factor. Overcrowding of streets, queues at taxi ranks and late night takeaway venues all contribute to incidents occurring late night in the Wagga CBD. It is vital that safety elements such as the following be considered as part of the Development Application process: • • • •
Locations of late night business – for example are they situated on a main arterial road and the distance from transport pickup points Adequate lighting around potential crime ‘hotspots’ Venue capacity and adequate security Staggered closing hours
Encouraging applications from businesses which provide an alcohol free environment provides diversity in late night activities for example: late night coffee shops, internet cafes etc. Another effective harm minimisation strategy is licensed premises diversifying their business to encourage a more family friendly environment. This provides the licensees with the opportunity to generate their income through bistro style food and coffee which places less focus on income from late night sales of alcohol. References Crime Prevention through Environmental Design Guidelines – April 2002
Doherty S. & Roche A. 2003, Alcohol and licensed premises: best practice in policing. Payneham: National Drug Law Enforcement Research Fund.
NSW Department of Urban Affairs and Planning, 2001
The Integrated Movement Study for City of Wagga Wagga, 2008
Wagga Wagga Street Lighting Strategy, 2008
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Regulation and Enforcement
Increased and continued enforcement activities There is evidence that the programs can work, particularly when backed by strong enforcement measures. However, often the training is disregarded to achieve more profitable operation (Doherty and Roche 2003). This can lead to continued service to intoxicated patrons thus increasing the potential for a range of alcohol-related harms. For licensed premises, where competitive pressures can encourage the continual service of alcohol to intoxicated patrons, the creation and maintenance of a high level of perceived certainty of punishment may be a necessary factor to ensure the success of responsible service of alcohol programs. Saltz and Stanghetta (1997) reviewed the implementation and program effectiveness of the responsible service of alcohol (RSA). Saltz and Stanghetta (1997) argue that lack of enforcement of the liquor laws is one of the reasons why learned RSA skills are not translated into serving practice. For RSA programs to produce changes in behaviour, Saltz and Stanghetta suggested that it is necessary to create the perception amongst bar staff that they will be cited when they serve alcohol to an intoxicated person. The threat of external sanctions may also encourage management to enforce the expectations set out in their house policies and to monitor staff serving practices more closely. A study conducted by Jeffs and Saunders (1983) in England demonstrated that systematic police visits to licensed premises, in which officers talked with barstaff/licensees and checked for the presence of minors or intoxicated patrons, reduced public order offences by one-fifth. McKnight and Streff (1994) in the US also showed that having plain clothed police officers conduct audits of licensed premises and then provide feedback to licensees on their performance, in the way of warnings, written reports or fines, increased service refusal to pseudo-patrons feigning signs of intoxication (from 18% to 54%) and reduced drink-driving offences associated with licensed premises (from 32% to 23%). It is well established that policies that discourage drink-driving can reduce crashes and associated mortality and morbidity (Homel 1990; Edwards et al 1994; Hingson et al.1996). These policies include highly visible law enforcement strategies, such as random breath testing or checkpoint testing; lower blood alcohol concentration laws; additional restrictions (sometimes ‘zero tolerance’ for driving after drinking) for young drivers; and the capacity to remove driving licences. There is also evidence that these strategies are more effective if combined with greater community support for drink-driving law enforcement and other strategies to reduce the level of intoxication of people leaving public drinking venues (Holder 2003). It is in this context that local enforcement of drink-driving laws may be part of a community-based strategy designed to reduce alcohol-related harm.
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There is a growing trend to minimise alcohol-related harm in the community by declaring some areas as alcohol-free zones. The Department of Local Government (NSW) developed ministerial guidelines for the establishment of alcohol-free zones (NSW Department of Local Government, 1995). These guidelines supplement the Local Government Act 1993, under which the drinking of alcohol is prohibited in an alcohol-free zone that has been established by a Council. The Alcohol Free Zone locations are attached as part of Appendix 10. Previous research has clearly demonstrated that alcohol consumption contributes to the cost of law enforcement in Australia. An activity survey was conducted using a representative sample of police Local Area Commands (LACs) throughout New South Wales (NSW) in 2005. The main aims of this activity survey were to estimate the percentage of police officers’ time which is spent dealing with alcohol-related issues and to quantify the salary costs of this time. The Western Region of NSW had the highest percentage of time spent on alcohol-related activities, with almost 15 per cent of their shift time recorded as such. In comparison with rural regions, metropolitan regions had lower percentages recorded, with the Inner Metropolitan Region recording 7.5 per cent of their time worked as alcohol-related. Responding to assault incidents was the most frequently recorded activity type, comprising almost 15 per cent of the total alcohol-related time recorded. This was closely followed by random breath testing, which comprised 14.4 % of the time recorded as being alcohol related.
Increase Effectiveness of Alcohol Free Zones and Alcohol Prohibited Areas ‘Alcohol-free zones promote the use of roads, footpaths and car parks in safety and without interference from irresponsible street drinkers. Any person living or working within an area, the local police or a local community group may ask a council to establish an alcohol-free zone or a council itself may decide to do so. A proposal to establish an alcohol-free zone must in all cases be supported by evidence that the public’s use of those roads or car parks has been compromised by street drinkers (for example, instances of malicious damage to property, littering, offensive behaviour and other crimes). The council must undertake a consultation process to decide if an alcohol-free zone is appropriate.’(NSW Department of Local Government, 1995).
Investigate ‘User Pays’ option NSW Police Force provides most policing services free of charge to the general community but there are times when some services go beyond these responsibilities and clients are charged fees for the benefit of the services or goods provided. These services in turn help organisations meet their business needs and their responsibilities to the community. Recovering this cost from clients makes more police available for duty and helps ensure that normal policing services to the community can also be maintained. Cost recovery services provided by police include policing services at special events; transport escorts; control of traffic for film and television shoots; and a wide variety of information services (NSW Police, 2010).
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There is already increased police presence and enforcement around major events such as Gold Cup. However, some late night licensed venues have suggested a ‘user pays’ option where they pay for extra police presence in and around their venue. Although this strategy appears to show great potential, it would require agreement and payment by all licensed premises in that area with police disbursed to the area of greatest need. The success of such a strategy is also highly dependent on police resources.
References
Doherty, S and Roche, A 2003, Alcohol and Licensed Premises: Best Practice in Policing, A Monograph for Police and Policy Makers, Australasian Centre for Policing Research, Payneham, SA.
Edwards, R Jumper-Thurman, P Plested, B Oetting, E & Swanson, L 2000, Community readiness theory: Practice to research. Journal of Community Psychology, 28, 3, 291-307.
Hingson, R, McGovern, T, Howland, J et al. 1996, “Reducing alcohol-impaired driving in Massachusetts: The Saving Lives Program”, Am J Public health, vol. 86
Holder, H 2003, Strategies for reducing substance abuse problems: What the research tells us. Presented at the NDRI International Research Symposium – Preventing Substance Use, Risky Use and Harms: What is Evidence-Based Policy? Perth, Australia, 24-27
Homel, R 1990, Random breath testing and random stopping programs in Australia, in Drinking and Driving: Advances in Research and Prevention, Eds. R Wilson and R Mann, Guilford Publications, New York
Jeffs, B. W. & Saunders, W. M. 1983, ‘Minimizing alcohol related offences by enforcement of the existing licensing legislation’, British Journal of Addiction, vol. 78 McKnight, A.J. & Streff, F.M. 1994, ‘The effect of enforcement upon service of alcohol to intoxicated and restaurants’, Accident Analysis and patrons of bars patrons of bars Prevention, vol. 26
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Saltz, R. F., & Stanghetta, P. (1997). A community-wide responsible beverage service program in three communities: Early findings. Addiction, 92(Suppl. 2), S237– S249.
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Community Safety
Maintain effective use of lockout Lockout policies involve the setting of a time for a particular licensed venue or group of venues after which new patrons may not be admitted. It was not possible to identify any international studies on lockouts, and in fact Palk notes that the lockout strategy as a crime prevention measure appears to have been utilised only within Australia (Palk 2008). As noted in the report Alcohol and crime: late night liquor trading and the real cost of a big night out in the Adelaide CBD (South Australian Police 2009), it is difficult to assess the effectiveness of lockouts as a discrete strategy, because they are typically deployed in combination with other community and policing approaches. The time of the lockout also appears to play a significant role in determining the effectiveness of lockout policies, particularly in combination with the final closing time. In 2008 a range of ten strategies, including lockouts, were introduced in Newcastle, NSW, in an effort to reduce alcohol-related violence (Jones 2009). The strategies were targeted around 15 licensed premises which were identified as problematic, and in addition to a 1.30am lockout included earlier closing hours for late night venues, increased management planning and compliance, and restrictions on particular types of drinks. The Newcastle intervention was found to be successful with a significant downward trend (29 per cent) in night-time assaults. There was a decrease in assaults linked to the 15 intervention venues in the period compared to other Newcastle licensed venues. Importantly, there was no geographic displacement of assaults to those other venues. While there was some increase in assaults at earlier times, this was not enough to outweigh the overall drop in assaults. In Queensland, the impact of lockouts was evaluated when they were introduced to the Gold Coast (Palk et al 2007), Brisbane City and Fortitude Valley (an entertainment precinct within the city of Brisbane) (Palk 2008). Alcohol- and nonalcohol-related incidents were measured before and after the implementation of a 3am lockout. It was found that there was a significant reduction in alcohol-related offences requiring police action. Specifically, alcohol-related disturbance/ disputes, street disturbances and sexual offences were seen to decrease but there was no decrease in alcohol-related traffic offences. It should also be noted that these effects were limited to specific areas. While the lockouts had positive impacts on offence numbers in the Gold Coast, there was no corresponding effect recorded in Brisbane City or Fortitude Valley. The study also surveyed hotel and nightclub owners/operators and found that initial opposers to the lockout subsequently reported some benefits from the initiative, including increased patron safety and the development of improved business strategies to increase patron numbers. In 2008, licence restrictions on 48 venues, including a 2am lockout, were introduced 70
in New South Wales under direction from the State’s Premier following the publication of a list of the state’s top 100 most problematic licensed premises (Moffatt 2009). The study found that while there was indeed a reduction in assault and glassing incidents related to the 48 targeted venues, there was a general reduction in incidents across all 100 surveyed venues. It was therefore unclear or unlikely that the restrictions could be deemed effective, as there was a possibility that increased publicity and enforcement may have contributed to the general reduction, and not the lockouts alone. The evidence base demonstrating the effectiveness of lockouts as a strategy is contentious, as they are often used in the context of extended trading hours. In this regard, the lockout is targeting an issue that has been in part created by the licensed venues themselves. Furthermore, the time of the lockout in relation to the total opening hours of a venue is likely to be important. It would appear that there is some evidence, especially from the Queensland implementation, that lockouts are effective in reducing alcohol-related harm, but as they are typically implemented in conjunction with other strategies it is difficult to quantify this effectiveness. It is also clear from the evidence base that when applying lockouts, consideration should be made to the opening hours in general for the town or City concerned, and consultation should be extensive with all concerned parties. Based on the local reports and evidence from other cities it is suggested that Wagga Wagga continue its lockout of 1.30am in conjunction with other effective strategies aimed at improving late night community safety. This allows people visiting for events to experience Wagga Wagga’s late night offerings as well as providing a more secure and monitored environment. However it is noted that this will only continue to be effective if closing hours are not extended past 3am.
Prevent or minimise assaults to patrons and the general public Research has shown that bar glasses are often used as weapons in pub violence, predominantly resulting in injuries to the face. Glassware left lying around licensed venues is another important issue in alcohol-related violence because it has been identified as a factor that may promote or facilitate the act of crime and violence (Homel 1997). Regular pick up of glass from the floor area removes the opportunity for it to be used as a weapon. Homel (1997) found that the removal of glass from bar areas reduces the inclination for violence and the seriousness of injuries in venues. Another solution to be considered is utilisation of toughened (annealed) glassware, as the research found it can reduce the number and severity of injuries from bar glasses (Shepherd, Price & Shenfine, 1990; Shepherd, Shapland & Scully, 1990; Shepherd, 1998). Toughened glass is less breakable than traditional glass, less prone to deterioration from wear and tear and if it breaks it shatters into small blunt fragments instead of sharp shards.
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Increasingly, foam cups (polycarbonate glasses) have been used as containers for alcohol at major sporting events. Elimination of canned and bottled drinks has reduced the risk of harms associated with unruly intoxicated behaviours at such events. In Indigenous communities, local regulations have also restricted sale of alcohol in glassware. This was motivated, in part, by the high level of injuries from glass beverage containers, often purchased from licensed venues (Gray, Saggers, Atkinson, Sputore & Bourbon, 2000). Given this findings it is suggested that late night trading venues in Wagga Wagga should adopt the use of polycarbonate. During the Community Consultation a number of stakeholders indicated their concern around RSA. The scenario being an 18 or 19 year old who were newly RSA trained, starting out with their first job in the industry. Stakeholders indicated that increased training and experience over and above RSA were required to give the newly trained person the confidence to refuse service. It is for this reason Wagga Wagga City Council will investigate and source funding for the Safer Bars Program. The Safer Bars program or Bar Guardians was developed to reduce aggression & injury in licensed premises. It helps staff develop techniques for preventing and managing aggression and other alcohol related behavioural problems.
Best practice for late night venues that serve alcohol The availability of drinking water in licensed venues is considered an important strategy not only in the reduction of intoxication and other alcohol-related harms, but also in drug-related harms. Water can slow down the rate of alcohol consumption and minimise the potential of intoxication (Department of Human Services 2003). The reduction of alcohol and or drug-related harms is not only limited to the availability of free water. Low priced non-alcoholic drinks are also a key issue that licensed venues can offer as “peak hospitality organisations encourage licensees to increase the availability of low-alcohol and non-alcoholic drinks and to price such drinks in a way that reflects their lower costs to the licensees� (Drugs and Crime Prevention Committee 2006). Also availability of food is associated with a reduced risk of aggression (Graham et al, 1980), largely because food slows down the absorption of alcohol into the body. It may also be that venues that offer food tend to attract less aggressive individuals (Wedel, Pieters, Pikaar & Ockhuizen, 1991). Environmental management of student drinking venues in the United States has demonstrated the effectiveness of food availability in reducing crime and disorder. The University of Arizona installed and publicised policies to manage its annual homecoming event, which had a history of alcohol-related crime and disorder problems. The policy included a greater availability of food and non-alcoholic drinks. The police received a lower number of calls relating to the event. Given the increasing concern about alcohol-related problem behaviour among Australian youth, including university students (Roche & Inglis, 1999), these practical harm reduction strategies hold considerable merit. Other best practise strategies currently being used in licensed premises around Wagga Wagga showing positive outcomes include: 72
• • • •
Public announcements of service of last drinks Facial recognition CCTV in licensed premises Adequate lighting RSA Marshals present at peak times
During the consultations with Wagga Wagga licensees it has been identified that provision of free low salt food throughout the night would significantly improve best practice strategies that are already in place at alcohol serving venues. Closed circuit television (CCTV) is useful for observing areas that cannot be easily or naturally observed within licensed venues. This acts as a deterrent to misbehaviour, particularly where the public is aware that they are monitored and action may be taken for deviance disclosed via this medium. CCTV can: • increase the accountability of security officers and other staff • assist in identifying offenders • provide evidence of violence occurring in and around the premises • provide evidence of other serious crimes occurring in or involving people at the premises • assist in identifying physical hazards and guide improved venue design.
Controlled serving practises There are many strategies that are currently being utilised by licensed premises to ensure they are meeting their RSA requirements. These include controlled serving practises which minimise risky alcohol consumption including: • • • • •
Alcohol free periods No shots after a certain time Limit number of drinks per person after certain time Restrict the availability of some alcohol eg: high strength shots Licensees and bar staff to be more alert to those customers who have preloaded before entering the premises Restrictions on RTDs
• • As stated previously no single strategy is effective standalone. It is imperative that these are used in conjunction with RSA, best practise for licensed venues and enforcement. It is important for our community to continue to have access to outreach services providing support for victims and offenders of alcohol related interpersonal, domestic and family violence. Crime and violence have a significant impact on health, causing both short term and long term physical and mental health effects on victims and witnesses (City of Wagga Community Social Plan, 2009). Men are most at risk of public violence and 73
women of violence that occurs in private (Rutherford & Zwi, 2007). The Australian component of the 2004 International Crime Victimisation Survey found that only 37% of assaults and threats of assault were reported to police (Challice & Johson, 2004). Domestic assaults account for 35-40% of assaults each year in NSW and a study of trends and patterns in domestic violence assaults showed the peak times they occurred were on Saturdays and Sundays, from October to March with the highest number in January (Challice & Johson, 2004).
References
Gray D, Saggers S, Atkinson D, Sputore BA and Bourbon D 2000. Beating the grog: an evaluation of the Tennant Creek liquor licensing restrictions. Australian and New Zealand Journal of Public Health, 24, (1), pp. 39-44. [RJ307] Homel R 1997, Alcohol and other drugs and crime: public policy as policing, briefing given for “Santa Barbara Fighting Back”, retrieved 9 August 2006 from: www.lawlink.nsw.gov.au/cpd.nsf/pages/presentation4.
Roche AM and Inglis N, 1999. LEAPS: An evaluation of a police enforcement strategy to improve compliance with legislation: Queensland Alcohol and Drug Research and Education Centre (QADREC). Queensland Health and University of Queensland.
Rutherford A, Zwi A, 2007. Preventing violence in New South Wales: Data sources and their adequacy, NSW Public Health Bulletin, 2007 18(5-6): 75 - 82.
Shepherd J 1998, “The circumstances and prevention of bar-glass injury”, Addiction 93,1: 5–7.
Shepherd JP, Price M, Shenfine P. Glass abuse and urban licensed premises. J R Soc Med. 1990 Apr;83(4):b276–277. [PMC free article] [PubMed]
Jones C, Kypri K, Moffatt S, Borzycki C, Price B (2009) The impact of restricted alcohol availability on alcohol-related violence in Newcastle, NSW, Sydney: New South Wales Bureau of Crime Statistics and Research http://www.lawlink.nsw.gov.au/lawlink/bocsar/ll_bocsar.nsf/vwFiles/cjb137.pdf/$fi le/cjb137.pdf
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Palk GRM (2008) The nature and extent of policing alcohol related crime and reducing violence in and around late night entertainment areas [thesis], Brisbane: Queensland University of Technology http://eprints.qut.edu.au/29963/1/Gavan_Palk_Thesis.pdf
Palk, GRM; Davey, J; Freeman, J. (2007) The impact of a lockout policy on levels of alcohol-related incidents in and around licensed premises, Brisbane: Queensland University of Technology http://eprints.qut.edu.au/8338/1/8338.pdf Moffatt S, Mason A, Borzycki C & Weatherburn D (2009) Liquor licensing enforcement and assaults on licensed premises, Sydney: NSW Bureau of Crime Statistics and Research http://www.lawlink.nsw.gov.au/lawlink/bocsar/ll_bocsar.nsf/vwFiles/bb40.pdf/$fil e/bb40.pdf Wedel M, Pieters JE, Pikaar NA, Ockhuizen T, 1991. Application of a threecompartment model to a study of the effects of sex, alcohol dose and concentration, exercise and food consumption on the pharmacokinetics of ethanol in healthy volunteers. TNO Toxicology and Nutrition Institute, Department of Nutrition, Zeist, The Netherlands.
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Marketing and Communication
Promote education tools widely and through effective mediums for target groups One of the best examples of successfully shifting the drinking culture in Australia has been the introduction and enforcement of drink driving legislation, and the accompanying mass media campaigns. While this approach was first perceived to be a radical alcohol policy experiment, it has ultimately become one of Australia’s great public health success stories. Since the introduction, there has been considerable research conducted into the effectiveness of public health and safety campaigns, both within Australia and overseas. The Road and Traffic Authority’s (RTA’s) Drink Driving campaign, ‘Brain drain’ continued a trend of scientific based advertisements to explain road safety issues. The campaign challenged the belief that having a few beers has no impact on driving ability. It followed disturbing accident statistics and recent research into drink driving attitudes. Drink driving appears to be losing its status as a socially acceptable behaviour. However, there is a belief, particularly among young men, that while drunk driving is unacceptable, drink driving is OK. By explaining the effects of alcohol on the brain rather than scaring people the ‘Brain drain’ campaign aims to provide a rational explanation why drink driving is a crime. Another RTA's Drink Driving campaign – ‘The Paranoia’ - breaks from traditional road safety advertising to focus on psychological feelings. This commercial taps into the fear and guilt that drink drivers experience and explores their anxiety, restlessness and fear of getting caught. The campaign focuses on the unpredictability of mobile Random Breath Testing (RBT). A systematic review of evaluations of various mass media campaigns that were aimed at reducing drink driving and alcohol-related road accidents in Australia, New Zealand and North America found that campaigns which were carefully planned, well executed attained adequate audience exposure and were implemented in conjunction with other ongoing prevention activities, such as high-visibility enforcement, have been effective in reducing drink driving and alcohol-related crashes. Australia’s successes in public health and safety-oriented mass media campaigns provide substantial guidance and confidence to pursue similarly constructed campaigns aimed at reshaping Australia’s drinking culture. Recent research for the development of a new national alcohol social marketing initiative concludes that while such youth-focused campaigns can achieve positive results, they operate in a social environment where young people are exposed to a significant amount of contrary messages. The research concludes that the best opportunity for effecting a change in Australia’s drinking culture will be in the targeting of attitudes towards intoxication, or more specifically, the perceived acceptability of intoxicated behaviour. It is recommended that the development of an alcohol social marketing campaign consider a staged approach by: 76
• •
Initially raising the consciousness of drinkers about the health and safety effects of their drinking on those around them Following this by targeting various segments of the population (young males, females, older people, parents) regarding the downside of intoxication (for example, shame, embarrassment and humiliation)
Ensuring that future alcohol social marketing campaigns complement and support other policy interventions and programs will be critical for their success, especially in relation to particular settings where alcohol polices and programs are being implemented. Settings where there are concentrations of young people in early adulthood, such as TAFEs and universities, provide a valuable opportunity for increasing awareness and promoting safer and healthier attitudes and behaviours in relation to alcohol. Research suggests that alcohol education and prevention programs aimed at this population should target them prior to their arrival on campus, utilising web-based communications. There are many online and web based information sites regarding partying and alcohol consumption targeted at underage drinking, young adults and partying and parents of those consuming alcohol in these settings. These include: • • • •
www.headspace.org.au www.Mynite.com.au www.darta.net.au www.adf.org.au
Greater awareness for above mentioned sites and their utilisation should be promoted throughout youth forums and groups, schools and youth service providers. It is naive to think that young people do not come into contact with alcohol before they are 18 years of age. Education through the school curriculum provides a foundation for access to information and services. However, website and online communication allows confidential and free access to information and services which young people can obtain specific to their circumstances. So it is vital that there is greater promotion to ensure young people realise they can access this information. NSW Health assists in the development of communication and marketing campaigns that aim to inform the community of drug and alcohol telephone and internet based information and counselling services. The key campaigns include: •
The 'What Are You Doing To Yourself?' - a responsible drinking campaign tackling binge drinking and anti-social behaviour among teenagers and young adults
•
The CDAT Promotion Campaign aims to raise community awareness of Community Drug Action Teams (CDATs) and the work they do to encourage people to volunteer and participate in local teams
•
The Club Drugs Campaign - Don't let drugs use you - aims to reduce the harms associated with illicit drug use in night club type settings, specifically in emergency and overdose situations 77
The Aboriginal Drug and Alcohol Council (ADAC) in Adelaide, which is the only statewide peak Indigenous substance misuse organisation in Australia, representing 28 Aboriginal community organisations from across South Australia, has developed a number of resources about drugs and alcohol. A series of pamphlets has also been designed by the Kirketon Road Centre specifically for an Indigenous audience, including ones on alcohol and illicit drug use issues. The pamphlets provide information on health issues, advice on how to keep healthy, and what to do in situations of ill-health. They are worded in a culturally appropriate way, are easy-to-understand and are decorated with Indigenous artwork.
Greater visibility and promotion of transport options Late-night public transport initiatives are designed to get people home safely from inner-city entertainment precincts, mostly on Friday and Saturday nights. These services were introduced in a number of Australia’s cities and towns to help improve late night public safety. It is recognised that effective marketing is a key component of courtesy and night-bus services success. The challenge is to introduce innovative services to a young demographic who would not normally be responsive to government messages. The difficulty in getting this message across is exacerbated by the fact that the young demographic could be under the influence at the time the services are being marketed. To respond to this, Brisbane Council designed an innovative campaign targeted at this specific demographic and environment. A wide range of media employed to advertise and promote the NightLink bus service, such as: • • • • • • •
radio street press mobile billboards internet banner advertising convenience (toilet) advertising, transit media bus stop light boxes and hangers onboard services mainstream press (majority metropolitan daily newspapers, as well as series of free community newspaper and magazines) street banners
•
This media was supported by appropriate public relations activities in the nightclub precinct such as: • • •
A NightLink pocket pal (wallet size timetable) was produced and made widely available at entertainment venues and from usual public transport information outlets In-venue promotions – this included NightLink admission stamps, drink coasters, posters, pocket timetables, caps for staff, free advertisements on music video screens and free banner advertisements on venue websites Promotional staff in popular City street locations and inside pubs and clubs distributing information and merchandise 78
The primary audience was 18 to 30 year old people who attend inner-city Brisbane entertainment venues (pubs, bars and nightclubs) after midnight on Friday and Saturday nights. The campaign also needed to raise awareness of the new services among the wider Brisbane community, especially parents, licensed venue operators, hospitality staff and existing passengers using 'normal' services operating in NightLink. Gaining the support and cooperation of licensed venues was particularly instrumental in the success of the campaign. Venues stocked NightLink promotional material free of charge and allowed NightLink staff to conduct promotions onsite. Similar initiative has been undertaken in the Sutherland Shire. There was a great demand for an alternative to drink-walking and drink-driving throughout the shire, so Council established the Shire Shuttle bus to transport community members who needed to return home late at night. The 'Shire Shuttle' was first run in 1996. The support of six licensed venues at that time was integral to the financial success of the service, and the involvement and commitment of licensed premises has remained a mainstay of the service. Currently the bus carries on average 450 people per weekend and operates on a set route, along main transport corridors, with dedicated stops at the sponsoring venues. The service is free to passengers, with the sponsors paying for the bus hire and security service. Patrons are dropped at their request anywhere on the route – the service promotes ‘Getting closer to home safely’. At launch of this new service, postcards were delivered to each household in the shire with info on route and pickup points. Timetable cards were distributed through the sponsoring venues. Funding for promotion was received from the RTA and Sutherland Shire Council. The Night Rider bus service has previously been trialed in Wagga Wagga with little success. It is suggested that although the Night Rider bus service was never formally evaluated, there were several aspects which contributed to its demise. These contributing factors are further discussed in the Issue Paper: Goal 3 Community Infrastructure, strategy 3.2. Greater visibility and marketing reach was potentially one of the contributing factors. Through the consultations with the Transport Working Group and Liquor Accord the need to plan and develop a late night transport marketing project has been identified. It is important to note that any future late night transport project should be supported by a targeted and comprehensive marketing and communications campaign.
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Act within alcohol promotion guideline in conjunction with RSA Increasing restrictions on alcohol advertising have seen the alcohol industry rethink their approach to brand awareness and loyalty. Promotions and marketing are a relatively unregulated way to communicate and profile a brand. These strategies have been proven to potentially impact the purchasing and drinking decisions of not only those of legal drinking age but also youth. A recent American study verified this influence, particularly on underage drinkers, by finding that adolescents who owned at least one alcohol promotional item were three times more likely to report current drinking than those without such items (Hurtz et al 2007). Alcohol promotions within venues have a clear potential to increase alcohol consumption, especially those which affect the price of drinks. An American study on bar-sponsored drink specials found that all-you-can-drink promotions were the most likely to lead to elevated blood alcohol concentration (BAC) levels (Thombs et al 2009). Similarly, an American study on retail sales found that the increased promotion of large-volume packaged alcohol can lead to increased consumption (Bray et al 2007). A comprehensive review of alcohol pricing and promotion found that there was moderate but consistent evidence indicating that point-of-purchase promotions were likely to affect the overall consumption of underage, binge drinkers and regular drinkers (Booth 2008). Two studies investigating the breadth and nature of alcohol promotions within licensed venues were identified: Wollongong Over an eight week period, alcohol promotions were monitored in 25 licensed venues (pubs and clubs) around the central district of Wollongong (Jones & Lynch 2007). A range of promotional activities were identified, including discounted drinks and free drinks, and activities initiated by both venue and/or alcohol manufacturer. While some were actually active in reducing harm; for example, free food or transport; the majority, including extended happy hours or discounted drinks during the duration of a sporting event were likely to lead to excessive drinking. Wales Similarly, 43 licensed venues in three Welsh Cities – Newport, Swansea and Wrexham - were surveyed in November 2009 (Leyshon & Misell 2009). Approximately half (49 per cent) the venues surveyed had some sort of alcoholic drink promotion on offer. In comparison, only five venues (12 per cent) were offering any discount on non-alcoholic drinks. The resulting price of individual drinks within the alcohol promotions was found to be excessively low – to the point where a ‘binge’ amount of alcohol (defined in this study as twice the daily recommended amount) could be consumed for only £3 to £4.
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Impact of alcohol point of sale promotions – related harms A 2001 study examined the impact of alcohol promotions on both binge (in this study, binge drinking was defined as five or more drinks for men, and four or more for women, on a single drinking occasion) and non-binge drinkers (Christie et al 2001). The findings indicated that advertised discount drinks did influence consumers’ attitudes, intentions and alcohol-consumption related expectations for themselves and others. Compared to non-binge drinkers, binge drinkers had higher expectations of increased alcohol consumption. For those regularly consuming alcohol at harmful levels, the promotions were likely to support that continued behaviour. The other finding of concern was that, across all drinkers, the average expectation of alcohol consumption in the context of the promotion was classified as above the bingeing threshold. Thus, the likely outcome of the promotion was alcohol consumption at unsafe levels. Furthermore, during the 1990s there was a structured initiative on alcohol and violence that was rolled out in Surfers Paradise, Queensland. The Surfers Paradise Action Project used a community forum approach to develop and implement a code of practice. Lincoln and Homel (2001), in their review of violence levels pre- and post-implementation, found that promotions such as ‘happy hours’ were one of the factors closely linked to nightclub violence.
Effective Strategies to Manage Alcohol Promotions The only study widely cited evaluating the impact of changing alcohol promotions is a Canadian study from the 1980s (Smart & Adlaf 1986). In Ontario, researchers examined the impact of banning ‘happy hours’. The results showed that there was no significant difference in alcohol consumption or sales after the bans were enforced. While a drop in drink driving charges was noted, there were other concurrent activities (increased media coverage, a police Christmas spot-check campaign) which may have contributed partially or wholly to this trend. Consequently, the impact of banning happy hours in this study cannot be definitively quantified. The study by Christie and colleagues (2001) mentioned earlier had a second component, which was to examine the impact of responsible drinking messages within the context of drink promotions. The inclusion of a responsible drinking message within a fictitious promotion advertisement was seen to relate to a perception of management’s concern about customers’ safety. Again, the binge drinkers reported intentions of higher consumption levels than non-binge drinkers, and while the inclusion of a responsible drinking message did have an impact on the non-binge drinkers, it was found to have no discernable impact on the binge drinkers’ intentions. This may suggest that responsible drinking messages are still an important strategy for at least the non-binge drinkers as it may impact their consumption levels. The evidence base proving the effectiveness of restricting or banning alcohol promotions, both within licensed premises and at retail outlets, is limited, for the most part due to the lack of research on this topic. What is clear is that alcohol promotions do increase consumption, and that price is a clear influence on people’s consumption levels. However, detailed research into the impact of controlling alcohol 81
promotions is still lacking. A final issue to note is that of preloading – where drinkers consume alcohol at home or other locations before going to a licensed venue in order to minimise the cost of drinking. Limiting retail outlet promotions may reduce the availability of cheap alcohol that can be preloaded, but limiting on-premise promotions could have the unintended consequence of increasing the likelihood of preloading. Any restrictions on alcohol promotions must therefore take this issue into account in their local context. The Office of Liquor Gaming and Racing have guidelines for Liquor Promotion within Licensed premises and Outlets. The guidelines do not seek to restrict or prohibit sensible liquor promotions of low risk which can be properly managed. The guidelines are designed to ensure that licensees sell and supply alcohol responsibly. They indicate the kinds of activities or promotions that the Director of Liquor and Gaming would restrict or prohibit. (OLGR, 2010) As part of The Hassle Free Nights Initiative, the Liquor promotion guidelines are currently being reviewed. Communities NSW is conducting a review of the Liquor Promotion Guidelines to ensure they remain useful and relevant. This review is an initiative of the Hassle Free Nights Action Plan.
References
Booth A, Brennan A, Meier PS, O'Reilly DT, Purshouse R, Stockwell T, Sutton A, Taylor KB, Wilkinson A & Wong R. (2008) Alcohol pricing and promotion effects on consumption and harm: part A: systematic reviews, [Sheffield UK]: University of Sheffield http://www.drugsandalcohol.ie/11600/1/DH_091366.pdf
Bray JW, Loomis B & Engelen M (2007) Correlates of in-store promotions for beer: differential effects of market and product characteristics, Journal of Studies on Alcohol and Drugs, 68:2, pp. 220–27
Christie J, Fisher D, Kozup JC, Smith S, Burton S & Creyer EH (2001) Effects of bar sponsored alcohol beverage promotions across binge and nonbinge drinkers, Journal of Public Policy & Marketing 20:2, pp. 240–53
Hurtz, SQ, Henriksen L, Wang Y, Feighery EC & Fortmann S (2007) The relationship between exposure to alcohol advertising in stores, owning alcohol promotional items, and adolescent alcohol use, Alcohol and Alcoholism, 42:2, pp. 143–49
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Jones SC & Lynch M (2007) Non advertising alcohol promotions in licensed premises: Does the code of practice ensure responsible promotion of alcohol? Drug and Alcohol Review, 26:5, Sep., pp 477–86
Leyshon M & Misell A (2009) Counting the cost: Irresponsible alcohol promotions in the night-time economy in Wales, London: Alcohol Concern
http://www.alcoholconcern.org.uk/assets/files/Publications/Counting%20the%20 Cost%20irresponsible%20alcohol%20promotions%20in%20the%20night time%20economy%20in%20Wales%20February%202010.pdf
Lincoln R & Homel R (2001) Alcohol and youthful rites of passage. In P. Williams (ed.) Alcohol, young persons and violence, Canberra: Australian Institute of Criminology
Smart RG & Adlaf EM (1986) Banning happy hours: the impact on drinking and impaired driving charges in Ontario, Canada, Journal of Studies on Alcohol 47, pp. 256-258
Thombs DL, O'Mara R, Dodd VJ, Hou W, Merves ML, Weiler RM, Pokorny SB, Goldberger BA, Reingle J & Werch C (March 2009) A field study of barsponsored drink specials and their associations with patron intoxication, Journal of Studies on Alcohol and Drugs 70:2, pp. 206-214 Â
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Diversified & Vibrant Late Night Economy
Encourage diversity of late night activities and services The evening and night-time economy has for many years been actively promoted as a tool for positive regeneration in towns and cities across Australia and worldwide. It has been acknowledged that the night-time economy can be a significant economic driver and create a substantial number of local jobs. There are some key issues that have to be carefully managed in order to create night-time economies that promote inclusive and vibrant town and City centres capable of making a positive contribution to an urban renaissance. The impact of a flourishing night-time economy have received significant media attention in recent years and reports of an 'out of control' night-time culture fuelled by binge drinking and anti-social behaviour are becoming increasingly common place. The ideal of vibrant, safe and diverse cultural spaces at the heart of urban centres and the night-time economy has not disappeared. Within the night-time economy literature the focus is increasingly now on the need to manage or regulate the nighttime economy by fostering diversified night-time attractions, such as theatres, cinemas and shops which appeal to different gender, age and cultural groups (Chatterton & Hollands, 2002). A small number of Australian local governments have developed night-time economy policies and strategies. Sydney City Council is among those Councils with a more sophisticated and substantive account of its night-time economy, but a divide between cultural planning and crime prevention still characterises its approach. Research was conducted in 2006 which looked into night trading and licensed premises across the City, with a Late Night Trading Development Control Plan drafted in 2007 (City of Sydney, 2008). Up until this point there had been “no planning policy that applied to the entire City of Sydney which include[d] provisions to regulate the operating hours of late night trading premises or how these premises were managed” (City of Sydney, 2007:1). Reports on alcohol-related harm have highlighted the need to develop night-time economies that provide a wider range of facilities and activities for a more diverse section of the population. Many areas currently cater predominantly for people in the 18-30 age group, with families and older people often avoiding their town and city centres during the evening and night-time. Town and city centres are considerably more inclusive during the day, offering activities for a wider range of age groups. Recent UK studies envisage the night-time economy as part of a broader leisure and cultural economy whose goals should be to: • • • • • •
support a diversity of attractions appeal to a diversity of participants establish a balance of uses encourage flexible spaces enhance cultural vitality boost safety and security 84
•
improve the environment.
Wagga Wagga is a cosmopolitan regional City with a selection of restaurants, wineries, shopping centres as well as a Glass Gallery, several theatre groups, and a cinema. It also holds high profile events such as the Jazz Festival, Food and Wine Festival and the Wagga Wagga Gold Cup. However it is suggested that apart from annual events, there are few night time activities or services which provide an alternative to pubs and clubs. There are 111 licensed premises within the Wagga Wagga Local Government Area; this includes 22 major pubs and clubs of which 10 are late traders. Thus it appears that at present late-night entertainment is primarily focused upon the sale and consumption of alcohol and can be considered to cater almost exclusively for young people. It is evident that there is a need to increase the diversity of available activities during the evening and later at night to accomplish a more vibrant late night experience and make Wagga Wagga LGA an attractive place for the local community and tourists. Providing more sustainable activities and services such as New Year fireworks, Ten Pin Bowling, concerts and street theatre will benefit a wider section of the community. Investing in late night operating Community based Youth Centres, recreation outlets, coffee bars and alternative entertainment meeting places, would provide a diverse and more attractive range of options for the local community and those visiting Wagga Wagga. Therefore, the emphasis should be placed on facilitating and supporting agencies implementing alcohol free activities and events. The character of the night-time economy and its attraction to different types of people will differ across metropolitan and regional towns and cities depending on such variables as catchment area, environment, safety, and infrastructure. Mapping current night time services, activities and events for all target groups, evaluation of this and the development and implementation of a Night Time Economy Action Plan would ensure that current community needs are addressed.
Increase access to late night activities, events and services The provision of an adequate, affordable and safe transport system and safe pick up points is vital to the development of a successful night-time economy. As it is common for people visiting a town or city during the evening to consume alcohol the emphasis for late night transport is on public transport rather than car use. Young people are among the greatest users of public transport options in the Wagga Wagga Local Government Area. Developing and enhancing transport services can facilitate young people’s participation in their communities through volunteering, employment, educational, recreational and social activities. This is especially true for young people and those in outer suburbs. It is therefore of great importance that any diversified activity or event targeted towards youth be accessible through adequate transport and cost. Night time activities, services and events should therefore encourage: • •
Accessibility through location to target group or accessible and affordable transport options Movement or transport of target audience in a coordinated and safe manner 85
• Affordability of late night services, activities and events • Inclusion of disadvantaged groups This requires collaboration and coordination from local agencies and service providers to successfully execute such events but also to ensure wider promotion and sustainability of events.
Effectiveness of current trading hours While there is a larger body of research validating the link between extended trading hours and alcohol related harm (Babor et al 2010), there are only limited documented studies examining the impact of reduced opening hours, especially in the past ten years. There are numerous studies conducted that support the link between increased opening hours and increased harms from alcohol (e.g. violence, road accidents). Stockwell and Chikritzhs’(2007) review of the impact of more relaxed trading hours concluded that where increased trading hours occurred, they were associated with increased consumption and related harms such as violence. It is important to remember that restaurants, pubs and clubs make up a large proportion of the night time economy in Wagga Wagga LGA. So it is imperative that three factors are taken into consideration when looking at trading hours: • • •
Impact on the local economy Social impact Impact on other resources
Closing hours for late night venues both licensed premises and take-away food outlets as well as finishing times for special events or functions can impact greatly on the local economy. Current 1.30am lockout provides a window of opportunity for people to go from an event to licensed premises, to continue experiencing Wagga Wagga’s night life. Inevitably late night trading and alcohol are also accompanied by inter-personal, domestic and family violence and safety concerns for drivers and pedestrians. With all of Wagga Wagga’s late night trading licensed venues closed by 3am, the impact on transport and police resources is overwhelming at that time. The consultations with lead agencies concluded that advocating to close these venues earlier, wouldn’t necessarily provide a reduction in alcohol related incidents. Instead facilitating and advocating for effective use of staggering closing times was suggested to be a worthwhile activity in improving community safety. An effective use and coordinated approach to staggering closing times is yet to be mapped and evaluated. This has been recognised as a key consideration in developing Wagga Wagga’s night time economy.
Youth groups’ engagement and input in night time activities Wagga Wagga PCYC offers a variety of programs & activities especially for young people such as: •
Junior Discos
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•
Loud & Proud @ The Saloon (an event for all ages and great opportunity for local teen bands to showcase their talent in front of friends and family in a professional venue) • A variety of other sport based programs However sustainability and resources for such activities and events are limited. Using key groups such as the Youth forum provides a platform for youth service providers and the opportunities for young people to engage, combine resources and address alcohol related issues and night time activities. Further discussion is required around the need for appropriate, safe and successful night time activities, events and services for young people.
References
Babor T., Caetano R., Casswell S., Edwards G., Giesbrecht N., Graham K. et al. Alcohol: No Ordinary Commodity—Research and Public Policy, 2nd edn. Oxford: Oxford University Press; 2010.
Chatterton P and Hollands R, 2002 Theorising Urban Playscapes: Producing, Regulating and Consuming Youthful Nightlife City Spaces. Urban Studies, Vol 39
City of Sydney 2008, City of Sydney Late Night Premises Development Control Plan http://www.sydneymedia.com.au/asset/2/upload/LateNightTradingDCP311207.pdf
Stockwell, T.R. and Chikritzhs, T.N. (eds.) (2007). International Guide for Monitoring Alcohol Consumption and Related Harm, (2). World Health Organisation, Geneva. [In Press] [M67]
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CCTV Council Resolution Wagga Wagga City Council conducted a detailed exploration into CCTV throughout 2008 - 2009 as part of its Crime Prevention planning role. Consequently, Council resolved in April 2009 not to proceed with CCTV after exhaustive research could not provide clear evidence to link with anything other than moderate gains and considerable cost for capital installation, monitoring and continued maintenance. Council at that time resolved to continue to implement projects to address crime through its Community Safety and Crime Prevention Plan 2008 – 2011 and to continue to work closely with the NSW Police, Wagga Wagga Liquor Accord and Australian Hoteliers Association (AHA) to implement strategies to reduce alcohol related crime. This decision corroborates other public sector experience where CCTV has been seen as too capital intensive or ineffective.17 Marrickville Council’s experience, after a recent decision to de-install CCTV, was years of continually rising costs with mediocre results18.These findings also correspond with recent research from the Campbell Collaboration19 indicating a range of components necessary for successful implementation where cost was highlighted as a significant factor20. Council resolutions and relevant reports are detailed as a separate appendix to this strategy. See Appendix A.
The Local Context Local Area Command data indicates that like all large cities and centres, Wagga Wagga’s situation is no different In relation to crime problems. The incidents/behaviours that are of greatest concern within the CBD comprise assaults, property damage, offensive and anti-social activities. The majority of these incidents occur late at night and are associated with people that are intoxicated by excessive amounts of alcohol.
Background For some time now, the basic security requirements of the Australian public have exceeded the capacity of the State to meet them. The combination of more business than the police can handle and the fiscal crisis of the state means that governments are encouraging their publics to assume greater responsibility for their own affairs21. This responsibilisation22 can be witnessed in the increasing private investment in residential alarm systems, motor vehicle engine immobilizers and a burgeoning private security industry23. In June 2008, Council requested a report on the operation and costs associated with installing Closed Circuit Television (CCTV) within the Central Business District (CBD). There has also been media opinion related to CCTV and its potential to resolve violence and anti-social behaviour within the Wagga Wagga CBD.
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The issue of whether or not to consider implementing a CCTV scheme arose from a response to a perception or awareness that crime problems exist in a public place. For many years, consultants, crime prevention specialists, university academics and civil libertarians have researched and debated the impact of public area CCTV on crime and those communities in which it has been installed.
Commonality of Research The research debate has mixed reviews, with opinions divided on the subject. Some areas of research claim that CCTV can reduce crime in an area and even help prevent crime in adjoining areas. Other research suggests that CCTV has no real impact on crime or anti-social behaviour and that, even if it did show some impact, it would only be because crime had been displaced to a neighbouring area. The question of the value of CCTV has also divided governments, business and the general community. Some see the installation of CCTV as a neat, packaged solution to the problem of crime. Others see CCTV as an invasion of privacy or a waste of ratepayers' money. The area of research most commonly agreed upon is that CCTV cameras are most effective in preventing opportunistic crimes such as stealing, particularly motor vehicle theft and stealing from cars. Assaults and alcohol related crimes on the other hand tend to be less easily controlled through the use of CCTV. Although ineffective in preventing these types of crimes, it is important to note that monitored CCTV cameras have successfully co-ordinated swift responses reducing the severity of personal assaults24. In addition, all research corroborates that CCTV does not attempt to address the social causes of crime and has no impact on the factors that contribute to criminality such as education levels, family support, drug and alcohol dependency or unemployment.
Strengths and Weaknesses of CCTV Cameras
The following table is an extract from a paper presented in 2004 and outlines the main strengths and weaknesses associated with CCTV. The table below cites examples based on the experience of police throughout New South Wales25.
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STRENGTHS
WEAKNESSES
Cost of installation and operation can be offset by early detection or prevention of crime
Installation of CCTV can be very expensive and may not be justified: i.e. the cost can be greater than the problem
CCTV can lead to an increase in crime detections and arrests
CCTV can displace crime to other areas
CCTV can have an immediate impact in reducing crime, especially when used in conjunction with police resources
After several years, criminals and the community become indifferent to the presence of CCTV
CCTV can reduce the fear of crime in the community and increase perceptions of safety
CCTV can create unmanageable and unsustainable community expectations that community safety will greatly improve
CCTV can enhance personal safety by allowing early intervention in assaults and self-harm cases
It can be provocative to some sectors of the community in relation to civil and privacy issues
CCTV can provide evidence to assist investigators secure convictions
This advantage tends to diminish the longer the period after the incident
CCTV can assist in securing convictions at court.
CCTV has led to an increase in requests by police for tape enhancing and facial recognition experts, and an associated increase in costs
CCTV is most effective in reducing property crimes and offences against the person
CCTV has little proven impact on antisocial behaviour or on offenders affected by drugs and/or alcohol
CCTV is most effective when there is capacity for rapid response
CCTV is less effective where response cannot be guaranteed, or where long delays can be expected
CCTV images are more likely to lead to identification in smaller, stable populated areas
Identification is difficult in larger cities and/or where there is a large transient population Identifications are becoming an issue with the Director of Public Prosecutions Offenders are using balaclavas, baseball caps and sunglasses or open car boots to disguise their identity
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STRENGTHS
WEAKNESSES
CCTV is most effective when crime and anti-social behaviour are confined to a small area such as a CBD
CCTV is less effective when crime and antisocial behaviour are more widely dispersed
CCTV is most effective when used as one of a mix of crime prevention strategies
CCTV is less effective when used as a 'stand alone' measure, CCTV is not a panacea
Is more effective when monitored by skilled operators
CCTV places a 'duty of care' on the operator by creating an expectation on the part of individuals in the area, that their personal safety is enhanced Where monitoring multiple screens. an operator may miss an incident
Publicity can reinforce the existence and effectiveness of CCTV
Once installed and operating, CCTV can be difficult to remove due to public expectation that will continue
Technology is constantly updating and costs are reducing
Local police can have difficulty accessing CCTV images from some high-tech systems and because of videotape incompatibility Some CCTV systems look more like light fittings than cameras. This reduces it's deterrent effectiveness Pressure can be applied for more CCTV cameras to cover 'black spots' or to satisfy public concerns
Portable CCTV systems are now available, allowing cameras to be rotated through hot spots
Technology is susceptible to breakdowns: CCTV systems being repaired or awaiting repair, or not recording Other areas in the community then want CCTV because an adjoining community has it CCTV cannot be used for general intelligence gathering Many digital CCTV images distort when enlarged.
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STRENGTHS
WEAKNESSES
CCTV images will be able to be sent straight to police vehicles via Mobile Date Terminals (MDT)
In some communities, offenders use young people to 'stooge' test the CCTV system.
Future CCTV technology might include face recognition, alerting to suspicious activity and 3D images
CCTV has no voice capacity. Operators cannot pick up on threatening or intimidating language CCTV cameras are usually set for long scenic views, This captures the incident but provides poor offender identification Some anti-social offences occur because of CCTV. Offenders commit crimes just because cameras are there, or to show off
CCTV can assist police with the investigation into and the resolving of complaints about police misconduct.
Police intelligence officers' workload is increasing due to the number of tapes to be assessed
CCTV Guidelines In response to an increase in CCTV related inquiries and a rise in the actual use of CCTV in public places, the New South Wales Government in 2000 developed a policy framework and a set of underlying principles for the adoption of CCTV. The guidelines were distributed to local government councils, public transport groups and police for implementation. Within the guidelines, nine guiding principles address the issues of privacy, fairness, public confidence and support, managerial efficiency and effectiveness and police involvement in public area CCTV. These principles cover: 1.
The Ownership of the Schemes and Accompanying Responsibilities
It must be clear to the whole community which agency or organisation is the owner of the CCTV system. The owner of the scheme must be appropriately accountable to the community. 2.
Community Consultation
When installing a CCTV system or significantly expanding a current system, consultation should occur with all parties and partners potentially affected by the scheme. This process will help ensure that the system meets local needs and has local support.
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3.
Setting Clear Objectives
Objectives should be established to guide the design, implementation, management and outcomes of the system. These objectives will also allow for effective monitoring and evaluation of the system and, at the same time, ensure that the use is consistent with crime prevention objectives. 4.
Integrated Approached to Crime Prevention
It is widely recognised that any CCTV system should be part of an integrated, multiagency approach to crime prevention and general community safety. CCTV is not a stand-alone solution to crime or community problems. 5.
Police Involvement in Public Area CCTV Schemes
New South Wales Police contributes to the CCTV process by being involved in the assessment and planning, risk analysis and evaluation stages. New South Wales Police does not fund, monitor or operate CCTV systems. 6.
Managing and Operating Schemes
CCTV systems must be operated in a manner which is open and accountable with due regard for privacy and civil liberties of individuals and the community as a whole. 7.
Evaluation
CCTV schemes should incorporate evaluation on a regular basis. This will ensure that the initial objectives are being met. Evaluation methods should be established in the planning stages. 8.
Complaints Handling
To ensure that the CCTV system is publicly accountable, and its operation is transparent and fair to everyone, procedures should be in place to handle complaints about the system. The owner must then have an appropriate procedure to respond to these complaints. 9.
Monitoring and Auditing
An auditing process is required to ensure that the system is accountable. It will also test compliance with relevant legislation, policies and procedures. Steps to Consider Prior to Implementing a CCTV Scheme Local Government is predominately the owner of public place CCTV systems in NSW. Therefore, the NSW Government Guidelines are most relevant to these agencies. The Guidelines provide steps for local government councils or organisations to follow when planning and implementing a CCTV scheme in their area. There are sixteen steps for an organisation to undertake before establishing a CCTV scheme. 1. Identify that there is a crime problem, and that CCTV is an appropriate way to address the problem. 2. Establish a Community Safety Committee. 93
3. Conduct a Crime Assessment to identify more accurately what crime problems are occurring, and exactly where and when they are occurring. 4. Consult with the community, including local businesses and other specific groups, especially on matters relating to privacy. 5. Develop a Crime Prevention or Community Safety Plan, which includes the operation of a CCTV scheme. 6. Set objectives for the CCTV scheme and develop evaluation mechanisms. 7. Determine the roles and responsibilities of the key players, especially the owner of the scheme, local government councils and the police. 8. Develop a Code of Practice to set the standards for, and guide the operation of the scheme. 9. Develop and implement Standard Operating Procedures. 10. Develop and implement ongoing monitoring and auditing mechanisms for the scheme. 11. Determine the technical requirements of the scheme. 12. Develop and implement a complaints system. 13. Develop information strategies to inform the public about the operation of the scheme. 14. Install and trial the CCTV scheme. 15. Evaluate the trial and disseminate the results to relevant parties. 16. Review the trial and its evaluation to determine the need for the continuation of the CCTV scheme.
The Local Government Experience Estimated costs It is not clear why there is an expectation within the guidelines that ratepayers would bear the cost associated with crime prevention or detection as opposed to the NSW Police Service. The figures provided below are only estimates however the issue of who pays is particularly relevant if the majority of the crimes being committed within the CBD are related to a lack of enforcement of the Liquor Act within licensed premises by the relevant authority.
CCTV coverage on CBD crime hotspots The placement of up to 40 wireless CCTV cameras along the complete section of Fitzmaurice Street and Baylis Streets between Crampton Street to Station Place. 40 Cameras Storage 15 Terabytes recording (20 days) Maintenance and monitoring (annually)
$440,000.00 estimated $60,000.00 estimated $120,000.00 $620,000.00 94
Funding sources Research conducted by Council has revealed a range of differing experiences across local government jurisdictions with success varying quite widely. Whilst Councils such as Dubbo have continued to invest since 2002, other Councils such as Manly have decided not to select CCTV as an option post-research (2004) with Councils such as Marrickville Council, actively de-installing CCTV after a considerable period, due to an inability to meet the costs of replacement and ongoing maintenance26. As a crime prevention strategy the funding sources available to council in the past has been chiefly through the National Community Crime Prevention Program through the Attorney General’s department. This funding is presently closed and Council is unclear whether future funding will be available under this program. Previously, grant funding up to $500,000 has been provided through this program providing that it met the partnership approach of funding criteria. Funding was typically non-recurrent for up to three years. Some Council’s have indicated that they have received Attorney General funding for various stages of their CCTV network27. The other area of funding has been Department of Community Services (Communities NSW) Area Assistance Scheme (AAS) which was a regional community development program providing grants to local councils and non government organisations for projects that improve community well being and the functionality of communities. The AAS worked within a whole of Government framework to deliver its outcomes. Whilst there has been discussion at the local State parliamentary level in 2010 about making funding available, these are seen to be ‘election promises’ by State Government opposition in the run up to an election campaign in March 2011 rather than proposed sources of realistic funding.
Local funding options There are several ways CCTV could effectively be implemented and include:
1. Ratepayer Funded - Installation, maintenance and monitoring whereby Council bears all costs and transferred to ratepayer. 2. Licensed Sector Funded - Installation, maintenance and monitoring whereby licensed premises bears all costs in adjacent areas to premises. There is an opportunity for the cost of installation, maintenance and monitoring of CCTV to be borne by licensed premises. This would include the placement of 20 wireless CCTV cameras in close proximity to all hotels along Fitzmaurice Street and Baylis Streets between Crampton Street and Station Place. Cost associated with this option would be proportionate to the above figures across a number of premises. A formalised approach could be developed requiring all licensed premises to improve security measures at the time of Council considering consent for a new licensed premises, or for applications to refurbish, or to expand existing licensed premises, or for applications to alter 95
the trading hours of a licensed premises. Council can prepare an amendment to Wagga Wagga Development Control Plan 2010, Chapter 10 Business Development or Ch 12 Specific Uses and Developments. 3. Business Operator Co-operation – Provision of CCTV by Business Operators There is the option to consider the role of provision of CCTV by business operators. In Wagga Wagga, CCTV cameras have readily been installed within retail premises extensively along Baylis and Fitzmaurice Streets by business owners as a preventative measure in relation to property theft and damage. According to 2007 data, 44 premises within this geographic location had installed CCTV which also included licensed premises. This option could be further developed to compliment the role of Council and Police in crime prevention.
Financial resourcing capability By experience, Councils’ tend to grapple with the continuous pressure placed upon them to extend the CCTV camera network, with systems, that become more of an investigative tool over time, due to the changing nature of crime. As new businesses open up their doors, the street dynamics change, thus the need for changes to the CCTV camera system, with a corresponding business and community expectation for the subsequent expansion to conintually be included in the CCTV geographic network and therefore, continually rising costs. Thus, the social and economic costs in installing CCTV cameras have to be weighed up against the outcomes that are most likely to be achieved. From a measurement perspective, local government has a tendency to rely on the reduction of crime statistics as an indicator rather than true cost/benefit analysis. Research indicates that crime rates are a poor measure of the effectiveness of CCTV because they do not measure outcomes. Importantly, they also mask the successes that CCTV can have with particular types of offences28. There are other options available to local government in the crime prevention role especially in relation to the continued implementation of positive community safety programs that target alcohol related crime in conjunction with other stakeholders such as the Police and the Liquor Accord.
Community Safety and Crime Prevention Plan 2009-2011 CCTV was not identified by Council as a priority or a solution to crime within the Community Safety and Crime Prevention Plan 2009-2011, nor has it been identified as a priority within the Alcohol Management Strategy 2010 – 2014.
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Conclusion Considering the approaches to CCTV in other regional Councils, including Griffith, Orange, Dubbo and Tamworth, the use of CCTV is not a stand-alone measure of crime prevention. Griffith City Council has a steering committee overseeing the installation of CCTV, and is currently developing policies and procedures for monitoring, in conjunction with the police. Similar to current approaches by Wagga Wagga City Council, Orange, Dubbo and Tamworth Councils have community safety and crime prevention plans, which detail the many other approaches to reducing crime in partnership with Government, businesses and community organisations. There is a misconception within the community that CCTV cameras are the panacea against crime and therefore are worth the cost in privacy and economic terms29. In general, research has pointed to a general lack of realism about what can be expected from CCTV, in short, it has been oversold by governments and it is rarely obvious about why it has been seen as the best response to crime. In particular circumstances, government has a particular tendency to put up cameras and expect impressive results30. It has been the experience of Councils in NSW and internationally, that the installation of CCTV has not reduced alcohol related assaults, violence and other street offences. Clearly the sensible considered use of CCTV can play a part in crime prevention, detection and public safety. However, any consideration of the implementation of CCTV would do well to clearly identify the nature of the problem and the range of potential solutions before grabbing at any one ‘fix’ for the problem of crime31.
References
Armitage, Rachael. 2002 CCTV or Not to CCTV? :A review of current research into the effectiveness of CCTV systems in reducing crime.
Australian Institute of Criminology, 2009, Tip sheet 6 Establishing and implementing CCTV in your local area- National Community Crime Prevention Program prepared in partnership with the Australian Institute of Criminology.
Brew, Nigel, 2005. An Overview of the effectiveness of closed circuit television (CCTV) surveillance. Foreign Affairs, Defence and Trade Section 28 October 2005
Davies, Lisa, 2009 Fatal flaw with Sydney Airport CCTV fight footage. The Daily Telegraph, daily edition, March 26,2009. 12.00am. http:// www.news.com.au/dailytelegraphstory/html.
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Dubbo City Council, 2002 - Installed CCTV in 2002 after a number of complaints of anti social behaviour in the CBD area.
Dubbo City Council, 2005. Safety Camera Operational Manual
Farrington, D.P. 2007 The Effects of Closed Circuit Television on Crime: MetaAnalysis of an English National Quasi-Experimental Multi-Site Evaluation.
Gill, M and Spriggs, Angela. 2005. Assessing the impact of CCTV. Home Office Research Study 292, Development and Statistics Directorate. February 2005
Grabosky, P.N, 2003. The Balance of Advantage in Police/Private Interface:Who Pays?Who benefits? Deputy Director Australian Institute of Criminology.
Isnard, Adrienne. 2001 Can Surveillance Cameras be Successful in Preventing Crime and Controlling Anti-Social Behaviours?Report presented at The Character, Impact and Prevention of Crime in Regional Australia Conference, convened by the Australian Institute of Criminology, Townsville, QLD. August 2001
Klepczarek, J. Sgt, 2003.. CCTV or Not to CCTV – That is the Question: But is it the Answer? A Practitioners Point of View. Paper presented by the Crime Prevention Office of the NSW Police Service to the Graffiti and Disorder Conference, Brisbane, convened by the Australian Institute of Criminology in conjunction with the Australian Local Government Association. 18 – 19 August of 2003.
Manly City Council, 1999, Crime Prevention Plan, Manly Council 2000 – 2004
Mid City Security Services, 10 March 2009. Costing for a 6 months trial $429,715 for suppy, miscellaneous equipment and labour costs. And full monitoring at a flat monthly rate of $29,500. 12 cameras with a Geographic location between forsyth and Edward & Bayliss st and Station Street Taxi rank.
NSW Department of Attorney General and Justice, 2007 Policy Statement and Guidelines for the Establishment and Implementation of CCTV in Public Places 2007.
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Police NSW Wagga LAC 2008, Crime Assessment Wagga Wagga CBD Wagga Safe Taskforce 19th August 2008
Samuelson, A. 2008. Excerpts from studies and papers concerned with CCTV and its effectives. Prepared for the Wagga Wagga Safe Taskforce.
Wells, Helene, 2009, CCTV and Crime. Presentation to Wagga Wagga City Council 23 April 2009
Wilson, Paul. 2007 What do the watchers watch?: an Australian case study of CCTV monitoring. Bond University. Faculty of Humanities and Social Sciences.
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Appendix A Resolutions of Council, Relevant Reports and Alcohol Free Zone Details List of Reports Council Report – June 2008 - CCTV Council Report – July 2008 Alcohol Free Zone Expansion Council Report – July 2008 Baylis Street Lighting Council Report – November 2008 Alcohol Management Strategy Council Report – February 2009 CCTV Council Report – April 2009 CCTV Rescission Motion Council Report – December 2010 Alcohol Free Zone Renewal
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Council Report – CCTV – June 2008 Subject: CLOSED CIRCUIT TELEVISION (CCTV) Author: Minehan, Greg Acting Director: Gardiner, Mark Recommendation That Council a
refer the report on CCTV to the Wagga Wagga Safe Taskforce for consideration and input
b.
request the Wagga Wagga Safe Taskforce to give consideration to other crime prevention measures including: • responsible service of alcohol • enforcement of legislation for breaches under the Liquor Act for licensed premises • Increased presence of police or security • Hours of operation for licensed premises • Effectiveness of the “Lockout” for licensed premises
c.
request the NSW Police Service to undertake a detailed crime assessment and provide recent crime statistics for Wagga Wagga
d.
receive a further report outlining the crime assessment
Report Council has requested a report on the operation and costs associated with installing Closed Circuit Television (CCTV) within the Central Business District (CBD). There has also been media opinion related to CCTV and its potential to resolve violence and anti-social behaviour within the Wagga Wagga CBD. The issue of whether or not to consider implementing a CCTV scheme arises from a response to a perception or awareness that crime problems exist in a public place. For many years, consultants, crime prevention specialists, university academics and civil libertarians have researched and debated the impact of public area CCTV on crime and those communities in which it has been installed. The research and debate have so far provided mixed reviews, with opinions divided on the subject. Some claim that CCTV can reduce crime in an area and even help prevent crime in adjoining areas. Others suggest that CCTV has no real impact on crime or anti-social behaviour and that, even if it did show some impact, it would only be because crime had been displaced to a neighbouring area.
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The question of the value of CCTV has also divided governments, business and the general community. Some see the installation of CCTV as a neat, packaged solution to the problem of crime. Others see CCTV as an invasion of privacy or a waste of ratepayers' money. The following table is an extract from a paper presented in 2004 and outlines the main strengths and weaknesses associated with CCTV.
Examples based on the experience of police throughout New South Wales.
STRENGTHS
WEAKNESSES
Cost of installation and operation can be offset by early detection or prevention of crime
Installation of CCTV can be very expensive and may not be justified: i.e. the cost can be greater than the problem
CCTV can lead to an increase in crime detections and arrests
CCTV can displace crime to other areas
CCTV can have an immediate impact in reducing crime, especially when used in conjunction with police resources
After several years, criminals and the community become indifferent to the presence of CCTV
CCTV can reduce the fear of crime in the community and increase perceptions of safety
CCTV can create unmanageable and unsustainable community expectations that community safety will greatly improve
CCTV can enhance personal safety by allowing early intervention in assaults and self-harm cases
It can be provocative to some sectors of the community in relation to civil and privacy issues
CCTV can provide evidence to assist investigators secure convictions
This advantage tends to diminish the longer the period after the incident
CCTV can assist in securing convictions at court.
CCTV has led to an increase in requests by police for tape enhancing and facial recognition experts, and an associated increase in costs
CCTV is most effective in reducing property crimes and offences against the person
CCTV has little proven impact on antisocial behaviour or on offenders affected by drugs and/or alcohol
CCTV is most effective when there is capacity for rapid response
CCTV is less effective where response cannot be guaranteed, or where long delays can be expected
CCTV images are more likely to lead to identification in smaller, stable populated areas
Identification is difficult in larger cities and/or where there is a large transient population
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Identifications are becoming an issue with the Director of Public Prosecutions Offenders are using balaclavas, baseball caps and sunglasses or open car boots to disguise their identity CCTV is most effective when crime and antisocial behaviour are confined to a small area such as a CBD
CCTV is less effective when crime and antisocial behaviour are more widely dispersed
CCTV is most effective when used as one of a mix of crime prevention strategies
CCTV is less effective when used as a 'stand alone' measure, CCTV is not a panacea
Is more effective when monitored by skilled operators
CCTV places a 'duty of care' on the operator by creating an expectation on the part of individuals in the area, that their personal safety is enhanced Where monitoring multiple screens. an operator may miss an incident
Publicity can reinforce the existence and effectiveness of CCTV
Once installed and operating, CCTV can be difficult to remove due to public expectation that will continue
Technology is constantly updating and costs are reducing
Local police can have difficulty accessing CCTV images from some high-tech systems and because of videotape incompatibility Some CCTV systems look more like light fittings than cameras. This reduces it's deterrent effectiveness Pressure can be applied for more CCTV cameras to cover 'black spots' or to satisfy public concerns
Portable CCTV systems are now available, allowing cameras to be rotated through hot spots
Technology is susceptible to breakdowns: CCTV systems being repaired or awaiting repair, or not recording Other areas in the community then want CCTV because an adjoining community has it CCTV cannot be used for general intelligence gathering Many digital CCTV images distort when enlarged.
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CCTV images will be able to be sent straight to police vehicles via Mobile Date Terminals (MDT)
In some communities, offenders use young people to 'stooge' test the CCTV system.
Future CCTV technology might include face recognition, alerting to suspicious activity and 3D images
CCTV has no voice capacity. Operators cannot pick up on threatening or intimidating language CCTV cameras are usually set for long scenic views, This captures the incident but provides poor offender identification Some anti-social offences occur because of CCTV. Offenders commit crimes just because cameras are there, or to show off
CCTV can assist police with the investigation into and the resolving of complaints about police misconduct.
Police intelligence officers' workload is increasing due to the number of tapes to be assessed
Information obtained from paper presented at Graffiti and Disorder conference-Sergeant John Klepczarek August 2004
In response to an increase in CCTV related inquiries and a rise in the actual use of CCTV in public places, the New South Wales Government in 2000 developed a policy framework and a set of underlying principles for the adoption of CCTV. The guidelines were distributed to local government councils, public transport groups and police for implementation. Within the guidelines, nine guiding principles address the issues of privacy, fairness, public confidence and support, managerial efficiency and effectiveness and police involvement in public area CCTV.
These principles cover: 1.
The Ownership of the Schemes and Accompanying Responsibilities
It must be clear to the whole community which agency or organisation is the owner of the CCTV system. The owner of the scheme must be appropriately accountable to the community. 2.
Community Consultation
When installing a CCTV system or significantly expanding a current system, consultation should occur with all parties and partners potentially affected by the scheme. This process will help ensure that the system meets local needs and has local support.
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3.
Setting Clear Objectives
Objectives should be established to guide the design, implementation, management and outcomes of the system. These objectives will also allow for effective monitoring and evaluation of the system and, at the same time, ensure that the use is consistent with crime prevention objectives. 4.
Integrated Approached to Crime Prevention
It is widely recognised that any CCTV system should be part of an integrated, multiagency approach to crime prevention and general community safety. CCTV is not a stand-alone solution to crime or community problems. 5.
Police Involvement in Public Area CCTV Schemes
New South Wales Police contributes to the CCTV process by being involved in the assessment and planning, risk analysis and evaluation stages. New South Wales Police does not fund, monitor or operate CCTV systems. 6.
Managing and Operating Schemes
CCTV systems must be operated in a manner which is open and accountable with due regard for privacy and civil liberties of individuals and the community as a whole. 7.
Evaluation
CCTV schemes should incorporate evaluation on a regular basis. This will ensure that the initial objectives are being met. Evaluation methods should be established in the planning stages. 8.
Complaints Handling
To ensure that the CCTV system is publicly accountable, and its operation is transparent and fair to everyone, procedures should be in place to handle complaints about the system. The owner must then have an appropriate procedure to respond to these complaints. 9.
Monitoring and Auditing
An auditing process is required to ensure that the system is accountable. It will also test compliance with relevant legislation, policies and procedures. Steps to Consider Prior to Implementing a CCTV Scheme Local Government is predominately the owner of public place CCTV systems in NSW. Therefore, the NSW Government Guidelines are most relevant to these agencies. The Guidelines provide steps for local government councils or organisations to follow when planning and implementing a CCTV scheme in their area. There are sixteen steps for an organisation to undertake before establishing a CCTV scheme. •
Identify that there is a crime problem, and that CCTV is an appropriate way to address the problem.
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•
Establish a Community Safety Committee.
•
Conduct a Crime Assessment to identify more accurately what crime problems are occurring, and exactly where and when they are occurring.
•
Consult with the community, including local businesses and other specific groups, especially on matters relating to privacy.
•
Develop a Crime Prevention or Community Safety Plan, which includes the operation of a CCTV scheme.
•
Set objectives for the CCTV scheme and develop evaluation mechanisms.
•
Determine the roles and responsibilities of the key players, especially the owner of the scheme, local government councils and the police.
•
Develop a Code of Practice to set the standards for, and guide the operation of the scheme.
•
Develop and implement Standard Operating Procedures.
•
Develop and implement ongoing monitoring and auditing mechanisms for the scheme.
•
Determine the technical requirements of the scheme.
•
Develop and implement a complaints system.
•
Develop information strategies to inform the public about the operation of the scheme.
•
Install and trial the CCTV scheme.
•
Evaluate the trial and disseminate the results to relevant parties.
•
Review the trial and its evaluation to determine the need for the continuation of the CCTV scheme.
In relation to the first dot point above, it is clear there is a crime problem. The incidents/behaviours that are of greatest concern within the CBD comprise assaults, property damage, offensive and anti-social activities. The majority of these incidents occur late at night and are associated with people that are intoxicated by excessive amounts of alcohol. A key consideration prior to proceeding is whether the installation of CCTV is the appropriate solution to the problem, or whether resources are best directed to addressing the cause. It is evident from some studies that CCTV will not prevent crime and is mostly effective in identifying the culprits. It is also noted that CCTV was
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not identified by Council as a priority or a solution to crime within the recently approved Community Safety and Crime Prevention Plan 2009-2011. Prior to considering the implementation of CCTV a detailed crime assessment is required to be conducted. The assessment should give consideration to:
•
The nature, type and volume of criminal activity occurring within the area under consideration.
•
The legitimate way’s in which various members of the community use the area, including differences across weekends, time of day and seasons.
•
The factors which appear to contribute to the criminal activities.
•
The possibility of displacement (that is merely shifting the crimes) both in terms of crime type and geographical location.
While undertaking this analysis, consideration should be given to the range of other crime prevention measures which may address the identified problems. Such analysis could incorporate:
•
Addressing the issue of responsible service of alcohol.
•
Enforcement of legislation for breaches under the Liquor Act for licensed premises.
•
Increased presence of police or security.
•
Hours of operation for licensed premises.
•
Effectiveness of the “Lockout” for licensed premises.
•
Availability of public transport at critical times.
The process for proceeding is outlined in the flowchart below for Outcomes hierarchy for typical CCTV scheme.
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Outcomes hierarchy for typical CCTV scheme Reduced crime in targeted areas
Public feel safer
Potential offenders perceive risks to outweigh benefits CCTV evidence is used to identify and prosecute
CCTV implemented according to CCTV Guidelines
CCTV guidelines perceived to be appropriate for local CCTV implementation Other complementary local crime prevention initiatives exist or are established eg: lighting, police patrols, emergency phones etc
CCTV identified as one option to make high risk areas safer
Local committee with appropriate mandate and range of stakeholders exist/ is established
High risk locations are identified
(ARTD Management & Research-Evaluation of the NSW Government Policy Statement-CCTV in public places July 2001) 109
Estimated Costs It is not clear why there is an expectation within the guidelines that Councils and the community would bear the cost associated with crime prevention or detection as opposed to the NSW Police Service. The issue of who pays is particularly relevant if the majority of the crimes being committed within the CBD are related to a lack of enforcement of the Liquor Act within licensed premises by the relevant authority. The figures provided below are only estimates and final costs would be dependant on tenders received at the time. There are several ways CCTV could effectively be implemented and include: •
Installation, maintenance and monitoring whereby Council bears all costs
The placement of up to 40 wireless CCTV cameras along the complete section of Fitzmaurice Street and Baylis Streets between Crampton Street to Station Place.
40 Cameras Storage 15 Terabytes recording (20 days) Maintenance and monitoring (annually)
•
$440,000.00 estimated $60,000.00 estimated $120,000.00 estimated
Installation, maintenance and monitoring whereby licensed premises bears all costs in adjacent areas to premises
There is an opportunity for the cost of installation, maintenance and monitoring of CCTV to be borne by licensed premises. This would include the placement of 20 wireless CCTV cameras in close proximity to all hotels along Fitzmaurice Street and Baylis Streets between Crampton Street and Station Place. Cost associated with this option would be proportionate to the above figures across a number of premises. An option to consider as part of Community Safety and Crime Prevention Plan is the role of provision of CCTV by business operators. This option is intended to compliment the role of Council and Police in crime prevention. It is understood that some business operators within the CBD have already installed CCTV around and within their businesses. This option is intended to formalise this approach by requiring all licensed premises to improve security measures at the time of Council considering consent for a new licensed premises, or for applications to refurbish, or to expand existing licensed premises, or for applications to alter the trading hours of a licensed premises. Council can prepare an amendment to WWDCP 2005, Chapter 9, to include a new section: 9.5.23 Provision of CCTV by licensed premises in the CBD: When Council receives a Development Application for a new, refurbishment, expansion, or change to the operating hours, of licensed premises, located in the 110
Wagga CBD, Council will require the applicant to detail appropriate security measures for that premises, including the provision of CCTV to be installed outside the venue. The application must include information about the monitoring and recording from CCTV, as well as signage to indicate to the public that CCTV is in operation, for referral to NSW Police as part of the assessment. This formalisation is intended to ensure that where there is a likelihood of increased patronage of licensed premises, this is complemented by increased security measures. Also, the referral to NSW Police is intended to ensure that images collected from CCTV are suitable to be used for community safety monitoring and/or as evidence if required. The proposed amendment supports the objective of the business zone: to encourage the development and expansion of business activities which will contribute to economic growth and employment opportunities within the City. The DCP objectives are based upon the longer term benefits of planning for the growth of the CBD. Whilst the DCP does recognise the cost of meeting these objectives may conflict with the shorter term economic interests of businesses, the most important objective is to ensure that the CBD retains its identity as being the commercial and retailing focus of the city and the region. It is considered that an initiative that results in enhanced community safety contributes to economic growth of the city. Considering the approaches to CCTV in other regional Councils, including Griffith, Orange, Dubbo and Tamworth, the use of CCTV is not a stand-alone measure of crime prevention. Griffith City Council has a steering committee overseeing the installation of CCTV, and is currently developing policies and procedures for monitoring, in conjunction with the police. Similar to current approaches by Wagga Wagga City Council, Orange, Dubbo and Tamworth Councils have community safety and crime prevention plans, which detail the many other approaches to reducing crime in partnership with Government, businesses and community organisations. Therefore it is appropriate for Council to request partnership from licensed premises operators. In conjunction, the DCP amendment generates the need for guidelines about the use of CCTV, installed and monitored privately, recording public space, in relation to privacy as well as suitability of the images recorded for crime prevention and enforcement. These guidelines would need to be prepared by Council with input from NSW Police. Conclusion To progress the matter further it is recommended that Council refer the report on CCTV to the Wagga Wagga Safe Taskforce for consideration and to allow them to provide input. Furthermore, request the Wagga Wagga Safe Taskforce to give consideration to other crime prevention measures including: •
Responsible service of alcohol.
•
Enforcement of legislation for breaches under the Liquor Act for licensed premises.
•
Increased presence of police or security. 111
•
Hours of operation for licensed premises.
•
Effectiveness of the “Lockout” for licensed premises.
To allow an analysis of whether CCTV is the appropriate solution to the problem it is also recommended Council request the NSW Police Service to undertake a detailed crime assessment and provide recent crime statistics for Wagga Wagga.
Budget N/A Policy Crime Prevention and Safety Plan Impact on Public Utilities Potential for reduction in crime and vandalism Link to Strategic Plan Social Public Health and Safety 13.1.4 infrastructure and services that meet appropriate standards.
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Council Report –Alcohol Free Zone Expansion - July 2008 Subject: ALCOHOL FREE ZONE - EXPANSION Acting Director: Gardiner, Mark Recommendation That Council a declare the area bounded by and including the following streets and laneways (on both sides) an Alcohol Free Zone for the period up to 13 February 2011: Travers Street (between Trail St and Fitzmaurice St) Fitzmaurice Street (between Travers St and Sturt St) Tarcutta Street (between Sturt St and Morrow St) Morrow St (between Tarcutta St and O’Reilly St) O'Reilly St (between Morrow St and Tompson Street) Tompson Street (between O'Reilly St and Berry St) Berry Street (between Tompson St and Morgan St) Morgan Street (between the Skate Park and Fitzmaurice St) Fitzhardinge Street (between Morgan St and Edward Street) Edward Street (between Fitzhardinge St and Peter St) Flinders St (between Edward St and the railway line) Station Place Peter Street (between Edward St and Morrow Street) Morrow Street (between Peter St and Ivan Jack Drive) Ivan Jack Drive (between The Esplanade and Johnson St) Trail Street (between Johnson St and Travers St)
b prohibit the consumption of alcohol in the Victory Memorial Gardens, Wollundry Lagoon Amphitheatre between the hours of 10:00pm and 10:00am c prohibit the consumption of alcohol in the Tony Ireland Park and Skate Park area at Bolton Park at all times
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d endorse that the areas within the proposed zone which are leased to food outlets and which have the necessary permission to serve alcohol be precluded from the Alcohol Free Zone whilst they are open for business e advise the Wagga Wagga Police of the extension and advertise details in the local print media Report A report to Council’s April 2008 meeting detailed a proposal to expand the existing Alcohol Free Zone bounded by Station Place, Baylis Street (including the Wollundry Lagoon Bridge) and Fitzmaurice Street to the intersection of Crampton Street. The expanded alcohol free zone would cover much of the central business district of Wagga Wagga including all of the existing zone. The zone would include the area bounded by and including the following streets and laneways (on both sides):
• • • • • • • • • • • • • • • •
Travers Street (between Trail St and Fitzmaurice St) Fitzmaurice Street (between Travers St and Sturt St) Tarcutta Street (between Sturt St and Morrow St) Morrow St (between Tarcutta St and O’Reilly St) O'Reilly St (between Morrow St and Tompson Street) Tompson Street (between O'Reilly St and Berry St) Berry Street (between Tompson St and Morgan St) Morgan Street (between the Skate Park and Fitzmaurice St) Fitzhardinge Street (between Morgan St and Edward Street) Edward Street (between Fitzhardinge St and Peter St) Flinders St (between Edward St and the railway line) Station Place Peter Street (between Edward St and Morrow Street) Morrow Street (between Peter St and Ivan Jack Drive) Ivan Jack Drive (between The Esplanade and Johnson St) Trail Street (between Johnson St and Travers St)
The prohibition of consumption of alcohol within parks includes the following locations: • •
Victory Memorial Gardens and Wollundry Lagoon Amphitheatre between the hours of 10:00pm and 10:00am Tony Ireland Park and the Skate Park area at Bolton Park at all times
The areas of the footpath within this zone leased to food outlets where they have the necessary permission to serve alcohol will be precluded from the Alcohol Free Zone whilst the premises are open for business. Provision is made in the guidelines for the “Outdoor Eating Policy” to clearly denote the area which is leased. The proposal has 114
been advertised, letters sent to interested parties and submissions sought. No submissions were received. During discussions with the NSW Police Service, they have expressed support for the expansion of the zone, indicating that it is extremely effective in providing the Police with the necessary legislative powers to restrict alcohol consumption and associated crime within the main street. The Wagga Wagga Safe Taskforce have been consulted on the expansion of the Alcohol Free Zone and have indicated support for expanding the zone and prohibition of alcohol within the park areas. Council has the ability to suspend or cancel the zone at any time by public notice.The cost of the necessary signage will be approximately $6,000 and would be met through the existing budget. It is recommended that Council expand the Alcohol Free Zone and also prohibit the consumption of alcohol in the parks identified inclusive to the area shown in the attached map. Budget Estimate Item No. 326-645 Alcohol Free Zone. Carryover amount from Budget 2007-2008 $3,182. Amount estimated in Budget 2008-2009 $3,850. Policy Local Government Act Impact on Public Utilities Potential reduction in vandalism Link to Strategic Plan Public Health and Safety 13.1.4 Infrastructure and services that meet appropriate standards.
Â
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Council Report –Baylis Street Lighting - July 2008 Subject: BAYLIS STREET INTERSECTION LIGHTING Author: Tanner, Lindsay Director: Dunshea, Stephen Recommendation That Council: a
receive and note the report
b
receive a further report detailing the outcomes of current research
Report Over time the vehicle lighting at the intersections along Baylis Street, including the intersections of Morgan, Forsyth, Tompson and Morrow Streets, has become degraded due to the growth of the trees planted at the time of the Baylis Street upgrade in 1999. Council Officers have discussed solutions to this problem with Country Energy and lighting designers, with several potential solutions considered. These solutions have ranged from the installation of ‘smart poles’, which replace the current traffic control device poles and carry lighting and traffic control devices, catenary lighting carried diagonally across the intersection and outreach arms being fitted to the building located at the intersections. Of the options considered, one solution is presented as the most practical and cost effective, being the replacement of the pedestrian light poles located closest to the intersections with new 12 metre poles carrying subsequent street lighting. This solution should provide diagonally opposed 12 metre poles fitted with a luminaire such as a 250W high pressure sodium roadway light at each intersection, thereby alleviating the lack of light at these intersections. Designs are being developed for this proposal to ensure that the replacement at each intersection of the shorter (6 metre) poles is possible and will allow the subsequent replacement of the larger 12 metre pole. Should this solution not provide adequate lighting at the intersections, further research into alternative solutions will be required. Council will receive a further report on the designs and associated costs for a suitable solution as soon as they are available. In addition any further advice received from the design consultant, if available, will be tabled at the July 2008 Council meeting.
Budget N/A Policy N/A
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Impact on Public Utilities N/A Link to Strategic Plan Social Access and Equity 11.1.3 public facilities and services that meet the needs of the community;
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Council Report – Alcohol Management Strategy - November 2008 Subject: WAGGA WAGGA ALCOHOL MANAGEMENT STRATEGY Author: Wilson, Sue Director: Summerhayes, Janice Recommendation That Council a
agree to receive the presentation from the Australian Drug Foundation regarding the development of a Wagga Wagga Alcohol Management Strategy
b
endorse the development of the Wagga Wagga Alcohol Management Strategy in partnership with the Australian Drug Foundation (ADF)
c
endorse Foundation Council membership of the Cities for Safe and Healthy Communities program
Report Council has the opportunity to develop a Wagga Wagga Alcohol Management Strategy in partnership with the Australian Drug Foundation. The Wagga Wagga Alcohol Management Strategy will be a community strategy developed in consultation with the local community and all stakeholders. The actions developed in the Wagga Wagga Alcohol Management Strategy will be evidenced based. The Australian Drug Foundation has the capacity to prepare quality statistical and research based data for this strategy. In addition the actions will be selected by the community from a range of best practice interventions which can be provided from the knowledge base developed by the Australian Drug Foundation. This strategy is not about ‘not drinking’ but rather to support the development of a responsible drinking culture in the local government area. It will undertake a local needs assessment, followed by development and delivery of the strategy. Local ownership of the identified actions will ensure local stakeholder accountability systems are developed. Actions will focus on community health education and service access awareness raising which will lead to a reduction in consumption levels and the associated risky behaviours. Short term outcomes will be monitored closely and there will be a full evaluation of the long term impact on the local government area. The Wagga Wagga Alcohol Management Strategy will meet needs identified in the Community Social Plan 2009-2013 and in the Community Safety and Crime Prevention Plan 2008-2011. It will be a sub-plan linked directly to the Community Social Plan and will be incorporated into the reporting mechanisms for that plan. The Wagga Wagga Alcohol Management Strategy will be developed with a framework which allows opportunities for the community to experience early small but significant successes to provide momentum for further action. The budget requirements for the
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implementation and evaluation of the actions will be identified as part of the strategy development. The development of the Wagga Wagga Alcohol Management Strategy will provide the opportunity to coordinate a number of local actions which have been identified through the Wagga Safe Committee, and also to bring together key stakeholders such as the Liquor Accord, the Good Sports Program, Greater Southern Area Health Service Community Health, Riverina Medical and Dental Aboriginal Corporation (RIVMED), Riverina Division of General Practice and Primary Health Care, NSW RTA, and the work of the local chapter of the Australian Hoteliers Association in a coordinated approach with clearly articulated community support. In addition Council has the opportunity to become a Foundation Council member of the Cities for Safe and Healthy Communities. This initiative is currently in the establishment phase and is intended to support the development of capacity in local government to act on drug and alcohol related community concerns. The initiative is supported by a consortium made up of the National Local Government Drug and Alcohol Advisory Committee (NLGDAAC), Council of Capital City Lord Mayors (CCCLM) and ICLEI Oceania (International Council for Local Environmental Initiatives). ICLEI Oceania has been commissioned to develop and deliver a strategic framework for localised action on drug and alcohol concerns but will also identify a national role for local government in relation to these issues. Foundation membership of Cities for Safe and Healthy Communities will provide Council with three initial outcomes. These are: 1) Foundation Council promotion through being listed on all media promotions and communications in print media, websites and journal articles; 2) Foundation Council recognition with an invitation to attend an official ceremony in alignment with the Australian Local Government Association National General Assembly in Melbourne from 8th to 11th December 2008; 3) Two national workshops to be held in Melbourne, providing an opportunity for councils to network, exchange information, and undertake preliminary development on the data management strategy and best practice manual. Membership of the Cities for Safe and Healthy Communities initiative will provide close synergies with Council’s partnership work with the Australian Drug Foundation, as the consortium involved with that initiative already has a working relationship with the Australian Drug Foundation. The partnership with the Australian Drug Foundation on the development of the Wagga Wagga Alcohol Management Strategy will also enhance the working relationship Council has developed with the Australian Drug Foundation through the successful delivery of the Good Sports Program in the local government area. It is recommended that Council view the presentation from the Australian Drug Foundation which outlines the skills and resources they can bring to a partnership with Council. Following that, it is recommended that Council endorses the development of the Wagga Wagga Alcohol Management Strategy in partnership with the Australian Drug Foundation. To support this planning opportunity it is recommended that Council endorse membership of Cities for Safe and Healthy Communities.
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Budget Grant funding $20,000 – Application to AER Foundation Ltd for the development of the Wagga Wagga Alcohol Management Strategy. Social Planning budget - $15,000 one-off for initial membership fee and establishment costs of the foundation membership of Cities for Safe and Healthy Communities and after this financial year an annual membership fee of $5,000. Policy 4.18 Community Services (Community Development and Social Planning) Impact on Public Utilities N/A Link to Strategic Plan Social 1.4 A safe, healthy and active community
1.4.2 Support and promote the safety, health and wellbeing of the community
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Council Report – CCTV - February 2009 Subject: CLOSED CIRCUIT TELEVISION (CCTV) - SUPPLEMENTARY INFORMATION Author: Gardiner, Mark Director: Summerhayes, Janice Recommendation That Council receive and note report. Report This report is to clarify issues raised by Councillors at the March meeting of the Environment and Community Standing Committee in relation to Closed Circuit Television (CCTV). The purpose of the CCTV report presented to the March Environmental & Community Services Standing Committee was to provide details of the crime assessment and investigation into the effectiveness of CCTV in the role of actively reducing crime. Council had also requested funding options, design options and costing for a trial CCTV from Station Place to Forsyth Street.
Issues raised by Councillors included: •
Location of trial CCTV scheme
The location of the trial was selected by the Wagga Wagga Safe Taskforce at its December 2008 meeting that recommended Council investigate funding options, design options and costing for a trial CCTV from Station Place to Forsyth Street. NSW Police were represented at all of the Wagga Wagga Safe Taskforce meetings and had identified the area for the CCTV trial. Council endorsed the recommendation to provide a costing for a trial CCTV from Station Place to Forsyth Street at its February 2009 meeting. In accordance with Council’s resolution a consultant was requested to provide an assessment of the area of Baylis Street between Station Place and Forsyth Street. The assessment was to provide the locations and number for cameras required to allow the area to be effectively monitored. In determining the placement of CCTV cameras in an area there are influencing factors to be considered such as overshadowing and obstructions. This is particularly the case in Baylis Street where trees and verandahs are dominant features. As outlined in the report presented to the March Environmental & Community Services Standing Committee the assessment determined thirty five (35) cameras would be required to effectively monitor Baylis Street between Station Place and Forsyth Street. Some Councillors indicated they would like to see a revised costing for ten (10) cameras to cover a smaller area, with a shorter period of live monitoring targeted at the highest crime period. This information is provided later in the report.
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• Monitoring NSW Government Policy Statement and Guidelines for the establishment and Implementation of CCTV in Public Places outlines the requirements for monitoring of cameras. It highlights that a Control Centre is to be staffed by either contracted security personnel or local council employees and is to meet the requirements of the Security Industry Act 1997. Under the terms of the Act, all personnel employed in the Control Centre are required to be licensed security operators.
Each prospective Control centre staff member must be trained or be proficient in: • • • • • • • • • •
Use and control of camera management systems Use and control of video recording systems Use and control of video photograph systems Identification and prediction of potential events Familiarity with the local area Knowledge of identified potential trouble spots Police policy and procedures relating to recording of information, exhibit handling and incident reporting Emergency response and procedures Accountability and confidentiality Privacy
It is therefore considered not appropriate to have volunteers involved in monitoring or individual businesses with cameras recording public areas. The NSW Government Policy Statement and Guidelines (section 10) also states “Local councils should be aware of the potential for increased liability which may be incurred when considering the installation of CCTV. By taking on the responsibility of ensuring public safety within the CCTV area the local council may be found liable should a person be injured in some way. This is especially so where camera equipment is not working, or if it is not supervised or is pointing in the wrong direction”.
• Crime Prevention or Crime Detection Council’s role is improving the safety and wellbeing of the community through the implementation of crime prevention strategies. The research into the effectiveness of CCTV indicates it will not deter drunk and disorderly behaviour, and it is unlikely to deter violet assault. Intoxicated persons or angry persons are unlikely to think about CCTV or about the possible consequences of its presence. (Gill and Spriggs 2005). CCTV has become an important tool used by Police in Crime detection, identification and prosecution of offenders.
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The key question for Council is whether or not it considers CCTV will prevent crime and whether the significant expenditure would be better directed to alternative crime prevention strategies. If the intent is crime detection rather than crime prevention then this is not the role of Council. If Council was to consider CCTV on the basis of crime detection then that would need to be highlighted to the community so there is no misconception that CCTV was ensuring public safety. This is particularly relevant given the NSW Guidelines state that by taking on the responsibility of ensuring public safety within the CCTV area the local council may be found liable should a person be injured in some way. •
Civil Liberties
If Council decided to move to the next stage of considering the implementation of a CCTV scheme, this would involve community consultation that would allow for concerns to be raised regarding civil liberties and privacy issues. •
Funding Options
As outlined in the report presented to the March Environmental & Community Services Standing Committee there are several ways in which a CCTV program can be funded, and could include a combination of these options. These options included: o o o o o o
General revenue DCP – Provision of CCTV by licensed premises Community levy Business levy Grants Private / Public Partnership
Cost of revised CCTV scheme Some Councillors indicated they would like to see an estimated cost for a smaller scheme consisting of ten (10) cameras with targeted monitoring for the period of highest incidence of crime. The following estimate includes setting up the required infrastructure for a CCTV System and ongoing costs associated with monitoring, maintenance, and repair to equipment and staff resources in managing the system. This is an indicative cost only and would be dependant on tenders received at the time. From the crime assessment and in discussion with Police it has been determined that an area 100 meters north and south of the Baylis and Morgan Streets intersection has the highest incidence of crime within the CBD. Therefore the 10 Camera’s listed below would give coverage of this area:
1. Light pole west Baylis Street in front of Brown’s building x2 2. Light pole corner Baylis & Morgan Streets S/E corner x3 3. Light pole corner Baylis & Morgan Streets N/W corner x3 123
4. Light pole east Baylis Street front of Marketplace x2 The estimate includes the cost of live monitoring of cameras for the period between 9pm – 6am on Friday and Saturday nights only, which has the highest incidence of crime. Friday and Saturday between 9pm – 6am, accounts for 78% of all assaults within the CBD.
Estimated cost breakdown: Estimate to install and commission the equipment including twelve (12) months monitoring. All prices quoted are exclusive of GST. 1. 2. 3. 4. 5.
Supply of equipment Miscellaneous equipment eg: brackets etc. Labor costs Monitoring * WWCC Staff costs
$102,378.00 $ 1000.00 $ 12,000.00 $ 66,000.00 $ 9,000.00
7. Promotion and signage
$
2,000.00
TOTAL
$192,378.00
Estimated annual recurrent costs: Monitoring * 1. Repairs / Maintenance to equipment 2. Replacement costs of equipment 3. Staff Costs TOTAL
$ 66,000.00 $ $ $
9,000.00 7,000.00 9,000.00
$ 91,000.00
* These costs are based on live monitoring of cameras for the period between 9pm – 6am on Friday and Saturday nights only, which has the highest incidence of crime. All other times would be recorded only. The costs associated with the operation of CCTV will also increase depending on the quantity and frequency in which police request surveillance material for evidence purposes. Revised Crime Assessment With the significant reduction in the number of cameras from 35 to 10, the area monitored is also reduced to 100 meters north and south of the Baylis and Morgan Streets intersection. As such the incidence of crime monitored is also reduced and the following is a summary of the crime statistics related to the revised area surrounding the intersection. 124
Assaults (actual bodily harm, assault common, assault GBH) – Baylis and Morgan Streets intersection • The intersection of Baylis and Morgan Street’s has thirty nine (39) incidents for period 2006 / 2007 & 2008 being 7% of all assaults (597) within CBD • There was 2369 incidents of assault in the Wagga Wagga LGA for 2006, 2007 & 2008. • The intersection of Baylis and Morgan Street’s equates to 1.7% (39) of all assaults within the LGA being 2369 for the 2006 / 2007 & 2008 period Malicious damage – Baylis and Morgan Streets intersection • The intersection of Baylis and Morgan Street’s had eleven (11) incidents of Malicious damage for period 2006 / 2007 & 2008 being 2% of all Malicious damage (573) within CBD. • There was 3993 incidents of Malicious damage in the Wagga Wagga LGA for 2006, 2007 & 2008. • The Intersection of Baylis / Morgan (11 incidents) represents 0.28% of the Malicious damage incidents in the Wagga Wagga LGA for 2006, 2007 & 2008 period. In Summary • Estimate to install and commission the equipment covering an area 100 meters north and south of the Baylis and Morgan Streets intersection including twelve (12) months monitoring is $192,378.00. • Estimated recurrent cost is $91,000 per annum. • The Baylis and Morgan Street intersection equates to 1.7% of all assaults within the LGA. • The Baylis and Morgan Street intersection represents 0.28% of the malicious damage incidents in the Wagga Wagga LGA. • There is significant evidence that CCTV will not prevent alcohol related violence, assaults and other offences. • 91% of assaults during 2008 within the main street had alcohol as an associated factor. Budget NA
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Policy Crime Prevention and Safety Plan 2008 / 2011 Impact on Public Utilities NA Link to Strategic Plan Social 1.4 A safe, healthy and active community 1.4.2 Support and promote the safety, health and wellbeing of the community Â
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Council Rescission Motion – April 2009 Subject: NOTICE OF RESCISSION - RP-2 ENVIRONMENT COMMUNITY STANDING COMMITTEE - CLOSED CIRCUIT TELEVISION
AND
RESOLVED: That Council rescind minute number 09/051, Ordinary Meeting of Council held 30 March 2008 that reads: a
receive and note the report
b
not proceed with the installation of Closed Circuit Television (CCTV) within the Central Business District
c
continue to implement projects to address crime through its Community Safety and Crime Prevention Plan 2008-2011
d
continue to work closely with the NSW Police, Wagga Wagga Liquor Accord and Australian Hoteliers Association (AHA) to implement strategies to reduce alcohol related crime
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Council Report –Alcohol Free Zone Expansion - December 2010 Subject: ALCOHOL FREE ZONE - EXPANSION Acting Director: Gardiner, Mark Recommendation That Council a declare the area bounded by and including the following streets and laneways (on both sides) an Alcohol Free Zone for the period up to 13 February 2015: b c d e f g h i j k l m n o p q
Travers Street (between Trail St and Fitzmaurice St) Fitzmaurice Street (between Travers St and Sturt St) Tarcutta Street (between Sturt St and Morrow St) Morrow St (between Tarcutta St and O’Reilly St) O'Reilly St (between Morrow St and Tompson Street) Tompson Street (between O'Reilly St and Berry St) Berry Street (between Tompson St and Morgan St) Morgan Street (between the Skate Park and Fitzmaurice St) Fitzhardinge Street (between Morgan St and Edward Street) Edward Street (between Fitzhardinge St and Peter St) Flinders St (between Edward St and the railway line) Station Place Peter Street (between Edward St and Morrow Street) Morrow Street (between Peter St and Ivan Jack Drive) Ivan Jack Drive (between The Esplanade and Johnson St) Trail Street (between Johnson St and Travers St)
r prohibit the consumption of alcohol in the Victory Memorial Gardens, Wollundry Lagoon Amphitheatre between the hours of 10:00pm and 10:00am s prohibit the consumption of alcohol in the Tony Ireland Park and Skate Park area at Bolton Park at all times Alcohol Free Zone Areas The Alcohol Free Zone area was renewed at the Ordinary meeting of Council in December 2010. The prohibition of consumption of alcohol within parks is to include the following locations: •
Victory Memorial Gardens, Wollundry Lagoon Amphitheatre between the hours of 10pm and 10am
•
Tony Ireland Park, and the Skate Park area at Bolton Park at all times 128
This zone will be operational for the period up to 14 February 2011 until 13 February 2015. The area of operation of the Alcohol Free Zone includes the area bounded by and including the following streets and laneways (on both sides): • • • • • • • • • • • • • • • •
Travers Street (between Trail St and Fitzmaurice St) Fitzmaurice Street (between Travers St and Sturt St) Tarcutta Street (between Sturt St and Morrow St) Morrow St (between Tarcutta St and O’Reilly St) O'Reilly St (between Morrow St and Tompson Street) Tompson Street (between O'Reilly St and Berry St) Berry Street (between Tompson St and Morgan St) Morgan Street (between the Skate Park and Fitzmaurice St) Fitzhardinge Street (between Morgan St and Edward Street) Edward Street (between Fitzhardinge St and Peter St) Flinders St (between Edward St and the railway line) Station Place Peter Street (between Edward St and Morrow Street) Morrow Street (between Peter St and Ivan Jack Drive) Ivan Jack Drive (between The Esplanade and Johnson St) Trail Street (between Johnson St and Travers St)
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Action Plan of the Wagga Safe Taskforce Committee MEMBERSHIP Cr Kerry Pascoe
Mayor, Wagga Wagga City Council
Lyn Russell
General Manager, Wagga Wagga City Council
Steven Dunshea
Director Asset Services, Wagga Wagga City Council
Mark Gardiner
Acting Director Strategic & Community Services, Wagga Wagga City Council
Janice Summerhayes Manager Community Services, Wagga Wagga City Council Heidi Clarke
Communications Officer, Wagga Wagga City Council
Jess Coleman
Community Princess
Amelia Kate Cook
Miss Wagga Wagga
Ian Smith
Wagga Chamber of Commerce
Dennis Shban
Wagga Liquor Accord
Chris Coleman
ABC Radio
Peter Mahoney
Daily Advertiser
Greg Williams
AHA Wagga
John Herlihy
RAAF
Nicholas Wood
Youth representative
Adam Samuelson
Youth representative
Rod Smith
Crime Manager, Wagga Wagga Local Area Command, NSW Police Service
Frank Goodyear
Local Area Commander, NSW Police Service, Wagga Wagga Local Area Command
1. TERMS OF REFERENCE As part of the terms of reference document the following was included •
A reporting mechanism from the Task Force Committee by minutes and formal report to Council.
•
Linkages between this Committee and the Wagga Wagga City Council Community Social Plan and Crime Prevention and Safety Plan. 130
2. ROLE OF TASKFORCE MEMBERS The Wagga Safe Taskforce was set up for Council to work closely with other organisations in addressing safety for the community including NSW Police Local Area Command, Australian Hoteliers Association, Chamber of Commerce, Liquor Accord, Licensed Hotels, Defence Bases and Charles Sturt University. Additionally other organisations for engagement and input were identified as Taxi Companies, and Transport Companies.
3. ENVIRONMENTAL SCAN (a) What and where are the problems Identified issues from the Task Force included: Assault, lighting, transport, alcohol, violence, taxi ranks, drugs, underage drinking, pubs and clubs, graffiti, vandalism, antisocial behaviour, trading hours, location of food outlets, respect, culture, outdoor pub and club areas.
Evidence base data and feedback included: •
Violence as the main issue;
•
Environmental layout for safety regarding reducing risk of violence within premises, for example no hidden areas, good site lines across the internal area;
•
Outdoor eating areas and their purpose. Clarification was given on purpose of outdoor eating areas along with Council’s intention for approval of such areas;
•
Licensed premises and large numbers of patrons being migrational to premises, with the associated anti-social behaviours;
•
The 1:30am lock out time regarding large numbers of people roaming the streets to get to other premises before this time. Then at 3am intoxicated people leaving premises;
•
The issues of safety moving between premises and also in other areas of the city with underage drinking and movement of groups across the city.
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Statistical evidence from Police was given in raw data form to define problem areas. Statistical evidence relating to alcohol crime, crowd control, malicious damage, assault on Police, license premise crime and drug detection was tabled on a regular basis. The Police emphasised that the issues for the CBD requires a different style of policing to the crimes happening in housing estate areas which centred upon domestic violence and malicious damage. The majority of assaults reported at the residential level are domestic violence. Rod Smith, Crime Manager - NSW Police Service, stated that there is a heavier presence of Police, in the CBD responding to violence, offensive behaviour and reports of malicious damage.
(b) How do we accurately gauge this Three measures were identified:
1. Reported assaults; violence 2. Rate of offensive behaviour 3. Rate of malicious damage In addressing the above measures this action plan was developed as a reporting mechanism for committee members:
CBD Issue
Measure
Action
Responsible serving of alcohol.
•
Reduction in reported assaults Reduction in offensive behaviour rates Reduction in malicious damage rates Reduce high levels of intoxication
Liquor Accord implemented strategies such as enforced RSA, voluntary lockout at 1 am and ‘Barred from one, Barred from all’ Strategies as preventative measures
Reduction in reported assaults Reduction in offensive behaviour rates
Analysis of Wagga Wagga Council controls through Development Application process to support positive late night activity.
• • •
Late night food outlets • •
Operational hours discussed regarding closure times Bins for rubbish collection
• •
Late night licencees (Liquor Accord) Implemented no serving of high level alcohol drinks eg: 30% after midnight and a no-shot rule.
Alternative bin designs
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•
researched for implementation in 2009-10
Security presence.
Lighting levels in the main street. • •
Reduction in reported assaults Reduction in malicious damage rates
$200,000 Lighting replacement strategy implemented. Trial of new main street lighting along stretches of Baylis street completed with Main Street Upgrade completed in March 2009. Council conducted a lighting audit of key intersection lighting levels.
Public Seating is a key location from Police data where offensive behaviour and assaults are occurring.
•
Removal of supermarket shopping trolleys as this is causing a lot of damage and risky behaviour in the main street. Taxi rank location at Station Place
Reduction in reported assaults Reduction in offensive behaviour rates
CPTED analysis conducted along Main Street by Council in regard to street furniture.
•
Reduction in malicious damage rates
Liaison with key supermarket management and research on models of return of trolleys and coin operated options conducted.
•
Reduction in reported assaults Reduction in offensive behaviour rates
$22,000 Improvements to the taxi rank implemented including lighting.
•
•
Grant submitted for additional works. Security implemented at the Station Place Taxi Rank
Trading hours and early closure
•
- Police sited Easter weekend as • an example or earlier trading hours in achieving no CBD issues. •
Bus services and the funding of • late night transport particularly for busy and event based nights. • •
Reduction in reported assaults Reduction in offensive behaviour rates Reduction in malicious damage rates Reduction in reported assaults Reduction in offensive behaviour rates Reduction in
Voluntary lockouts imposed at 1.00 by late night venues.
Research into cost effective and sustainable models conducted with a Night Rider pilot implement in late 2008. Wagga Gold Cup
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Enforcing security at premises.
• •
malicious damage rates
transport addressed between the Mayor, Police and organisers.
Reduction in reported assaults Reduction in offensive behaviour rates
Liquor Accord and Police worked together on enforced security methods and ‘user pay’ systems in peak times.
Outdoor dining areas
•
Reduction in offensive behaviour rates
AlFresco Dining Policy implemented in 2009.
Close circuit television (CCTV).
•
Reduction in malicious damage rates Reduction in offensive behaviour rates
CCTV research conducted and options proposed to Council.
Reduction in reported assaults Reduction in offensive behaviour rates Reduction in malicious damage rates Increased Police powers to these areas to modify behaviour
Alcohol Free Zone extension implemented July 2008 with appropriate signage implemented
•
Council’s Acting Director of • Strategic and Community Services tabled the proposed • extension of the Alcohol Free Zone - this is only applicable for public roads and council car • parks. •
Council considered options in July 2008, Feb 2009 and April 2009 and resolved not to proceed with CCTV.
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Additional References 11
http://www.lgsa.org.au/resources/documents/slg-dlg-planning-a-sustainable-futureoptions-paper_1106.pdf 2 UTS Centre of Local Government Handout 2010. Clancey, Garner. Crime Prevention Plans. 3 Ibid. 4 The Criminal Mind Series – aimed at putting planners in the shoes of the offender to better understand the nature of crime and opportunity identification. 5 Wagga Wagga City Council Community Social Plan 2009 - 2013 6 Australian Institute of Health and Welfare 2008 2007 National Drug Strategy household survey: detailed findings, Canberra: AIHW 7 Australian Bureau of Statistics 2010 Apparent consumption of alcohol, Australia, 2008-09 (Cat No. 4307.0.55.001). Released 27 May, 2010, Canberra: Australian Bureau of Statistics 8 Australian Institute of Health and Welfare 2008 2007 National Drug Strategy household survey: detailed findings, Canberra: AIHW 9 Chikritzhs T & Pascal R 2004 Trends in youth alcohol consumption and related harms in Australian jurisdictions, 1990–2002 (National alcohol indicators, bulletin no.6), Perth: National Drug Research Institute, Curtin University of Technology. 10 Morgan A & McAtamney A 2009 Key issues in alcohol-related violence (Research in practice summary paper no. 4), Canberra: Australian Institute of Criminology 11 Pascal R, Chikritzhs T & Jones P 2009. Trends in estimated alcohol attributable deaths and hospitalisations in Australia, 1996-2005, (National alcohol indicators, bulletin no. 12), Perth: National Drug Research Institute, Curtin University of Technology 12 Population Health Division 2009 The health of the people of New South Wales Report of the Chief Health Officer. Sydney: NSW Department of Health. Available at: www.health.nsw.gov.au/publichealth/chorep/. Accessed 29 August 2010. 13 NSW Bureau of Crime Statistics and Research NSW recorded crime statistics 2005 - 2009 14 Local data for Wagga Wagga Alcohol related crime overview Wagga Wagga LAC prepared by Sgt. S. Goodyer on 20/07/2010 15 Price B 2009 Wagga Wagga local government area crime report 2008, Sydney: NSW Bureau of Crime Statistics and Research 16 RTA Crashlink crash data 17 Marrickville Council has disbanded its CCTV efforts due to rising costs and mediocre results. Albury City Council has recently resolved not to proceed with CCTV due to unclear benefits. 18 Conversation with Marrickville Council in discussion with Environmental and Regulatory Services analysis of CCTV. Media reports March 2010. 19 The Campbell Collaboration is a research agency set up to conduct systems review of international research around topics such as CCTV. 20 Wagga Wagga City Council November 2009 Ordinary Meeting Minutes.This research also corresponds with recent research from the Campbell Collaboration indicated a range of components necessary for successful implementation. Cost was highlighted as a significant factor. Also http://www.campbellcollaboration.org/. Also
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http://www.bra.se/extra/faq/?module_instance=2&action=question_show&id=436&ca tegory_id=9 21 Grabosky, P.N. The Balance of Advantage in Police/Private iNterface:Who Pays?Who benefits? Deputy Director Australian Institute of Criminology. 22
(Garland 1994) Gill, M and Spriggs, Angela. 2005. Assessing the impact of CCTV. Home Office Research Study 292, Development and Statistics Directorate. February 2005
23
24
Ibid. Information obtained from paper presented at Graffiti and Disorder conferenceSergeant John Klepczarek August 2004
25
26
Research conducted by Council officers as part of CCTV enquiries and Alcohol Management Strategy development. 27 Albury City Council Report 22 May 2008. CCTV Cameras and the Strategic Overview of Community Safety Initiatives 20/90/0005Albury City Council, Director of Community and Recreation. 28 Home office 2005. (Gill and Spriggs 2005) 29 30
Albury City Council Report, 22 May 2008 Home Office 2005.
31
Klepczarek, J. Sgt. CCTV or Not to CCTV – That is the Question: But is it the Answer? A Practitioners Point of View. Paper presented by the Crime Prevention Office of the NSW Police Service to the Graffiti and Disorder Conference, Brisbane, convened by the Australian Institute of Criminology in conjunction with the Australian Local Government Association. 18 – 19 August of 2003.
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Contact Details Website: www.wagga.nsw.gov.au Email: council@wagga.nsw.gov.au Phone: 1300 292 442
Cover photo of works by Samantha Cuffe Aubergine Femme and Grey Green Femme 2009