Decision

To amend the existing City Centre Public Spaces Protection Order (PSPO) to include an additional condition that strengthens the ability of authorised officers to address persistent anti-social behaviour, improving the effectiveness of enforcement activity and contributing to a safer and more welcoming city centre environment.

Where an authorised officer reasonably believes that a person is or has been consuming alcohol or intends to consume alcohol within the designated zone and the authorised officer reasonably believes that person is also likely to engage in anti-social behaviour, that person shall not refuse to leave the location specified when given a direction to do so by an authorised officer, subject to the following;

If the condition in this section is met an authorised officer may direct a person who is in any location on land to which this Order applies —

a)    to leave the location (or part of the location), and

b) not to return to the location (or part of the location) for the period specified in the direction (“the exclusion period”) unless for a pre-arranged appointment within the designated zone.

c) or Not to loiter, sit, or gather / congregate within the location (or part of the location) if the individual resides within the designated zone.

A direction under this section —

a) must be given in writing, unless that is not reasonably practicable;

b) must specify the area to which it relates;

c) may impose requirements as to the time by which the person must leave the area and the manner in which the person must do so (including the route).

d) The exclusion period may not exceed 48 hours.

Reasons for the decision

Reasons for decision:

In November 2018, Gloucester City Council approved a Public Spaces Protection Order (PSPO) covering Gloucester City Centre, which included a prohibition on the consumption of alcohol within the designated area. The Order was introduced in response to evidence demonstrating a significant link between alcohol consumption and levels of crime, disorder, and anti-social behaviour (ASB) within the city centre.

The condition approved under this Order states:

Prohibition of alcohol consumption Where a constable or an authorised person reasonably believes that a person:

a) is or has been consuming alcohol in breach of the Order; or

b) intends to consume alcohol in circumstances in which doing so would be a breach of the Order;

The constable or authorised person may require that person:

a) not to consume alcohol or anything which the constable or authorised person reasonably believes to be alcohol;

b) to surrender anything in their possession which is, or which the constable or authorised person reasonably believes to be, alcohol or a container for alcohol.

The PSPO was subsequently reviewed and extended in November 2021 and again in November 2024, in accordance with the statutory requirements of the Anti-Social Behaviour, Crime and Policing Act 2014.

Despite the existence of the Order, Gloucester City Council continues to receive a significant number of complaints relating to intoxicated individuals engaging in anti-social behaviour within the city centre. Intelligence and reports indicate that many of these individuals regularly congregate and consume alcohol in public spaces throughout the day.

The majority of reported incidents are concentrated within the following locations:

·       Southgate Street

·       Station Road, Whitfield Street and Bedford Street

·       Westgate Street

·       Eastgate Street

These areas are recognised as hotspots for crime and anti-social behaviour. Reported behaviours include:

·       Violent and aggressive conduct

·       Fighting

·       Domestic abuse incidents

·       Intimidating, inappropriate or sexualised behaviour

·       Verbal abuse

·       Shouting and swearing

·       Drug use and associated paraphernalia

·       Indecent exposure

Evidence suggests that the existing alcohol control measures within the current PSPO are not sufficiently effective in preventing or reducing these behaviours. The continued presence of such activity has the potential to adversely affect the amenity of the area, public confidence, the vitality of the city centre, and local businesses through reduced footfall and trade.

Whilst the existing PSPO enables authorised persons to require the surrender of alcohol, it does not provide the power to direct individuals away from the designated area. Furthermore, the Council has limited powers to address groups congregating in public spaces unless there is evidence that identified individuals are causing, or are likely to cause, harassment, alarm, or distress.

The Council and its partners have adopted a graduated approach of engage, support and enforce where appropriate, seeking wherever possible to address underlying causes of anti-social behaviour whilst using enforcement powers where necessary and proportionate. A range of support, intervention and enforcement options have been considered and utilised; however, alcohol-related anti-social behaviour continues to present a significant challenge within the city centre.

In practice, requiring individuals to surrender alcohol is not always the most effective or proportionate response. Such action can, on occasion, escalate situations, lead to aggressive behaviour towards officers, or result in individuals concealing alcohol and becoming obstructive. Any enforcement action must therefore take account of staff safety, public interest considerations, and the wider circumstances of each case.

The Council therefore considers it necessary to amend the existing PSPO to provide authorised persons with the power to direct individuals away from the designated area where they reasonably believe that a person who is consuming, has consumed, or intends to consume alcohol is causing, or is likely to cause, a detrimental effect on the quality of life of those in the locality.

The proposed amendment would provide a proportionate and flexible tool to prevent the continuation and escalation of alcohol-related anti-social behaviour, whilst supporting the Council's wider objective of maintaining a safe, welcoming and accessible city centre.

The need for additional powers is further evidenced by police activity within the city centre. Between April and May 2026, Gloucester Neighbourhood Policing Team authorised and implemented dispersal powers under Sections 34 and 35 of the Anti-Social Behaviour, Crime and Policing Act 2014 on three separate occasions in response to alcohol-related anti-social behaviour. These powers, authorised by an Inspector or above, allow police officers to direct individuals away from a designated area and prohibit their return for up to 48 hours. The repeated use of dispersal powers demonstrates the ongoing and persistent nature of the issues.

Alternative options considered

·       Continue with the City Centre PSPO conditions as reviewed and extended previously, with a further extension as is in 2027.

• Allow the current City Centre PSPO to lapse upon it’s 2027 expiry date and enable issues to be dealt with criminally through local policing.

(Additional actions have been pursued both prior to and in consideration of this amendment i.e. early intervention techniques, joint multi agency outreach work, street based enforcement operations including the removal of alcohol, increased signage, arrests by police and the issuing of numerous Civil Injunctions.)