Steve Carr (Cardiff Council) & Adam Edwards (Cardiff University)

1. ‘Dragonisation’?Governing Anti-Social Behaviour in Post-Devolution Wales Steve Carr (Cardiff Council) & Adam Edwards (Cardiff University)

2. ‘Dragonisation’? • The policy context • Rights and entitlements not risk containment • Building a high-trust polity • Use of ASBOs as a last resort • Rhetoric and practice: evidence for policy divergence

3. The Policy Context: • Wales wholly governed from Westminster from 1536 until devolution in 1999; • Post-devolution split competence for community safety • Westminster retains control over policing and criminal justice; • Welsh Assembly Government has legal responsibility for social justice, social services, health and education • Crime and disorder reduction: an acid test of devolution • Home Office: Basic Command Unit Fund; CRASB Fund; • WAG: Safer Communities Fund; Substance Misuse Action Plan Fund

4. Distinguishing the English from Welsh Policy Context for ‘Youth Annoyance’ Source: Adapted from Case, S. et al (2005) ‘Extending Entitlement: A Welsh Policy for Children’, Welsh Journal of Law and Policy, 4/2: 187-202., pp. 189-190.

5. Building a ‘High-Trust’ Polity:Extending Entitlement in Wales • Every young person in Wales aged 11-25 has a basic entitlement to: • Education, training and work experience- tailored to their needs • Basic skills which open doors to a full life and promote social inclusion • A wide and varied range of opportunities to participate in volunteering and active citizenship • High quality, responsive, and accessible services and facilities • Independent, specialist careers advice and guidance and student support and counselling services • Personal support and advice-where and when needed and in appropriate formats – with clear ground rules on confidentiality • Advice on health, housing benefits and other issues provided in accessible and welcoming settings • Recreational and social opportunities in a safe and accessible environment • Sporting, artistic, musical and outdoor experiences to develop talent, broaden horizons and promote rounded perspective including both national and international contexts • The right to be consulted, to participate in decision-making and to be heard, on all matters which concern them or have an impact on their lives • In an environment where there is: • A positive focus on achievement overall and what young people have to contribute; • A focus on building young people’s capacity to become independent, make choices, and participate in the democratic process; and • Celebration of young people’s successes. Source: WAG/YJB (2004) All Wales Youth Offending Strategy, Cardiff, Welsh Assembly Government, p. 16.

6. ASBOs as a Last Resort “Anti-social behaviour is a serious issue and that is why the Assembly supports the use of anti-social behaviour orders, or ASBOs - but only as a last resort …” … “I am pleased that, in many cases, the use of acceptable behaviour contracts (or ABCs) as a preventative measure has obviated the need for issuing anti-social behaviour orders…” …“In Wales, ABCs are now being widely used to curb nuisance behaviour before it gets out of control,” – Edwina Hart AM, Minister for Social Justice, 17.02.05 Source: http://www.walesresilience.org/news/archivepress/socialpress/socialpress2005/709608/?lang=en

7. ASBOs as a Last Resort “We agree that ASBOs should be issued as a last resort and welcome the Welsh forces’ proportionate and appropriate approach to anti-social behaviour. We further recommend that the Government consider the approach taken by Wales in addressing anti-social behaviour and, where appropriate, disseminate that best practice across England and Wales.” House of Commons Welsh Affairs Committee - The Police Service, Crime & Anti Social Behaviour in Wales(March 2005)

8. Rhetoric and Practice: Evidence for Policy Divergence England: ASBO first…ask questions later Wales: ASBO last…ask questions first

9. BUT… England: LSPs, LAAs, APACS, Connexions etc., = shared KPIs and substantial resources Wales: LSBs, LDAs, no APACS, small nation and insufficient resources to meet the ‘entitlement’ aspiration

10. AND… England & Wales: Lack of maturity and sophistication in our approach to ‘problem solving’ is at the heart of our failure to get a grip of our Section 17 responsibility and properly deal with ASB

11. Scan Assess Analysis Respond The SARA process = NIM

12. Problem Problem-Solving or Problem Containment? Features ofLocation Features ofOffender Features ofVictim

13. “Tough on crime, tough on the causes of crime” Tony Blair, Shadow Home Secretary (February 1993) Situational prevention Reducing reoffending Enforcement Early intervention "I want young people to be able to fulfil their potential but that means intervening as soon as possible to prevent offending and to ensure that unacceptable behaviour is tackled effectively." Jacqui Smith, Home Secretary (September 2008)

14. Offender Offender Problem-Solving…a Section 17 Responsibility? PREVENTION! PREVENTION! How did we allow the offender to become part of the problem? How did we allow the offender to become part of the problem?

15. Victim Problem-Solving…a Section 17 Responsibility? PREVENTION! How did we allow the victim to become part of the problem?

16. Location Problem-Solving…a Section 17 Responsibility? PREVENTION! How did we allow the location to become part of the problem?

17. Offender Problem-Solving…a Section 17 Responsibility? REDUCTION! How can we stop the offender continuing to be part of the problem?

18. Victim Problem-Solving…a Section 17 Responsibility? REDUCTION! How can we stop the victim continuing to be part of the problem?

19. Location Problem-Solving…a Section 17 Responsibility? REDUCTION! How can we stop the location continuing to be part of the problem?

20. Conclusion: Back to Basics Problem-Solving not Problem Containment “There’s nothing essentially wrong with NIM, except that what you get out of it (by way of intelligence-led responses) is only as good as what you put into it. Feed it only with the usual data streams and NIM will provide you with the usual short-term police-dominated responses…” Anonymous quotation, The Role of the Community Safety Officer Within Wales, WACSO research report by Adam Edwards & Gordon Hughes (January 2008)