Case studies

The nature of democracy means local authorities can simultaneously work with or oppose central government. The two spheres of government are closely inter-linked and are likely to remain so, as long as local government funding relies on the central exchequer so heavily and the implementation of government policy implies a key role for local government’s services.

While the conflicts will continue with such democratic arrangements in place, the strain will manifest themselves on local communities, business, consumer groups, the voluntary sector and other interested parties. But it can be used to advantage in campaigning on issues, or when circumstances dictate that alliances need to be formed and coordinated action is important to win people, councils or governments over.

The following case studies set some interesting examples.

Bail Bandits – a campaign to change the law

Background

Crime in Avon and Somerset rose to a record height in 1990. Statistics showed police were solving twice as many crimes in 1990 compared to 1980, yet the overall detection rate had dropped.

A detailed study by the constabulary was undertaken to find out why.

It revealed a rising tide of offences – particularly burglary and theft of and from vehicles – committed by people who had been arrested and were free on bail pending a court hearing.

Objectives

1. To raise public awareness of the problem through media activity.

2. Enlist the support of influential parties.

3. To persuade the government to amend the Police and Criminal Evidence Act (PACE) to give police powers to detain offenders whom officers suspect will reoffend if granted bail.

4. To press the government to provide a disincentive by introducing a new offence of offending on bail.

The publics

Six distinct groups emerged:

• the public;

• opinion leaders in the criminal justice system;

• MPs, Home Office officials;

• other chief constables;

• Police Authority;

• the media.

The strategy

The required clarification/amendments to PACE centred on the interpretation of a clause relating to bail. It was obvious from the start that a clear identity was needed for the campaign and objectives simplified to excite public interest.

The main thrust of the campaign would be to call for a change in the law which would make offending on bail an offence in its right.

A catchword to describe ‘reoffenders on bail’ was needed and the term ‘bail bandits’ emerged which was immediately adopted by the media and even the Home Secretary.

A key element was to establish the chief constable of Avon and Somerset as the spokesperson, and maintain a campaign style which reflected his personality and commitment.

The execution

It was likely that the media were going to approach key members of the probation service and leading magistrates for comment. It was important that they did not perceive the campaign as an attack on them, thus diverting attention from the real problem. Key representatives were briefed so that if they were approached by the media their comments would be informed, constructive and hopefully, supportive.

A feature article about the research was placed in the Police Review which was published in July 1991. The magazine has an influential readership which includes chief police officers, Home Office ministers and MPs with an interest in police affairs.

Local and national media were invited to a press conference the same day. Reporters were briefed about the campaign and the results of the research. Filming opportunities were provided (e.g. cells, an offender being charged) and reporters were given examples of instances where individuals had committed up to hundred offences while on bail awaiting trial.

Details of the campaign were presented to the Avon and Somerset Police Authority, and local MPs were briefed and asked for their support.

The Association of Chief Police Officers (ACPO), which represents all police forces in Britain, was asked to take up the issue and press other forces to carry out similar research.

Every opportunity to publicize the campaign was exploited – publication of crime statistics; cases where offenders had gone on to commit offences once freed on bail: Home Secretary’s visit to Bristol in July 1992.

Employees were kept informed about the campaign and the Police Federation, which represents officers up to the rank of chief inspector, debated the issue at its national conference, fuelling further publicity and discussion.

Budget

Virtually nil. All costs, e.g. postage, photocopying, were borne by the normal overheads of the department.

Evaluation

The campaign gained extensive media coverage on national and local TV and radio, and in newspapers and magazines. It was supported by MPs, the Police Authority and ACPO.

In February 1992, the Home Secretary announced measures to tackle the bail bandits which included tougher penalties for those who offend while on bail.

A working group which included a senior Avon and Somerset officer, was appointed by the Home Office to review the PACE in relation to bail.

Interestingly, the Constabulary state:

Because of the nature of our organization we are in frequent contact with our local MPs (and they with us). They are very interested in, and reflect the interests of their constituents by giving a high priority to matters affecting law and order. The Police Federation also ‘sponsors’ a number of MPs. It would have been far more difficult had we had to go in cold and lobby MPs with whom we had very little, if any, contact.

The most important and effective publics for the campaign were the media, MPs and other police forces.

The first article about the research was deliberately placed in Police Review as that national publication is read by MPs, Home Office civil servants and police officers of all ranks. The chief constable personally sent copies of the research findings to all 15 MPs in Avon and Somerset, expressing the hope that they would be able to exert pressure on the government to take action.

The 15 included some very influential and high profile MPs. Their reaction was very positive and at least one of them raised the issue direct with the Home Secretary. Others were in contact with the Home Office over the issue as a result of the chief constable’s approach.

The chief constable also presented the research findings to the Avon and Somerset Police Authority and the matter was raised at the Association of County Council’s Police Committee.

The chief constable wrote to the chairperson of the crime committee of ACPO, which represents all police forces in Britain, drawing attention to the findings and giving them the opportunity to determine a national strategy. The chief suggested the research work could be replicated on a national basis – anticipating that the Home Office and politicians would find such research findings very difficult to ignore.

ACPO raised the matter at its Central Conference in July 1991 and the high media profile gained for the campaign resulted in interest from institutions, academics and invitations for the chief constable to speak at related seminars, conferences etc.

The chief personally contacted Home Office civil servants and when a working group was appointed by the Home Office to review the Police and Criminal Evidence Act in relation to bail, it included a senior Avon and Somerset officer (assistant chief constable).

The Constabulary consider that the media and the MPs were the best people to enlist. Access was straightforward as they deal with all of these publics on a very regular if not daily or hourly (in the case of the media) basis. One of the obvious pitfalls avoided was to approach the probation service, magistrates etc in advance of the campaign to ensure that they did not perceive it as an attack on them.