Launceston City Council

report on anti-social
behaviour in the CBD

May 2011
Acknowledgements
We wish to acknowledge Professor Rob White, who willingly shared his
extensive knowledge on antisocial behaviour and public places, and provided
us with his reports and research into this field. We are also appreciative of the
Department of Education High Schools in Launceston, who encouraged their
students to contribute their feedback to the project through completing our
survey. Finally we wish to thank all the business owners and managers who
responded to our survey.

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Contents
Executive summary............................................................................................................ 4
Introduction ...................................................................................................................... 5
Methodology ..................................................................................................................... 6
Current situation ............................................................................................................... 7
Business perspective ...................................................................................................... 8
Young peoples perspective ......................................................................................... 10
City centre users perspective ...................................................................................... 12
Current environments in the city centre .......................................................................... 13
Physical ........................................................................................................................ 13
Social ........................................................................................................................... 14
Regulatory ................................................................................................................... 14
Youth Specific .............................................................................................................. 17
Literature review ............................................................................................................. 18
Strategies for preventing and addressing antisocial behaviour ..................................... 21
A way forward short term and long term ...................................................................... 23
Recommendations Short Term (by end of 2011) ....................................................... 23
Recommendations Medium Term (by end of 2012)................................................... 24
Recommendations Long Term (2013 and beyond) .................................................... 25

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Executive summary
The Brisbane Street Mall in Launceston was built in 1975, and was the first mall of its kind to
be built in Australia. Since that time it has become a central focal point in the Launceston
CBD, particularly during the day. For at least the last twenty years there have been reports,
from time to time, of antisocial behaviour occurring in the CBD, often centred on the Mall.
Usually young people are seen as the source of this behaviour.

Back in 1997 the Launceston City Council received funding to undertake a Youth Spaces
Consultation Project in response to a range of issues occurring in the city, in part due to
community attitudes that have tended to generalise and stigmatise young people in a
negative manner and Launcestons young people have felt increasingly alienated and
isolated from their community.1 Fourteen years later, this consultation is highlighted in the
literature as an example of good practice in a communitys response to dealing with such
issues.

Unfortunately, the issues that were the catalyst for the 1997 consultation and subsequent
report still exist. Areas including how to resolve tensions, real and perceived between
young peoples use of public space and other interests2 are the trigger for this 2011
consultation, report and recommendations. It is therefore important this report and the
subsequent outcomes are actions based and solutions focused. Whilst it has been an
important part of this process to establish the facts relating to behaviours, and to ensure a
broad range of individuals and organisations have contributed their views, the priority now
is to ensure action is taken for short, medium and longer term solutions to be implemented.

Unsurprisingly there is no simple solution to addressing antisocial behaviour within the CBD.
There are many layers to this problem, and we found that as one issue is probed and
examined, often many other related factors are uncovered. What stood out as we spoke to
various stakeholders were the common themes which emerged, and how much agreement
there is about what the problems are, what people consider offensive and unacceptable
with public behaviour and what actions can be taken to address the problems.

The report summarises the feedback we received through surveys, interviews and focus
groups with various groups and individuals who have an interest in the Launceston CBD. We
provide an outline of the research and literature around antisocial behaviour, and briefly
examine how some other communities have dealt with this problem. There are 17
recommendations in the report, ranging from short term, relatively easy to implement
actions, through to longer term, strategic actions which will require substantial planning
over the longer term.

1
Public spaces for young people 1998 Commonwealth Attorney Generals department
2
Public spaces for young people 1998 Commonwealth Attorney Generals department

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Introduction
Ensuring the central business district of Launceston is a thriving, safe and liveable city centre
is an important aspect of our community. Feeling connected and valued within the
community in which you live, work and play is also important and is generally seen as one of
the advantages of living in a smaller community such as Northern Tasmania. Continual
tensions between population groups, retail imperatives co-existing with community and
social needs, and a sense of fear or alienation do not contribute to the liveability of a city or
a region.

This report and the consultation and research that has contributed to its final
recommendations, has been commissioned by the Launceston City Council in response to
the above issues, as well as in recognition it is time to act to address these ongoing concerns
and issues within our community.

The issues raised in this report are not unique to Launceston. There are few cities, shopping
centre complexes or malls anywhere in the developed world that do not report similar
issues. What differs in the literature however, are the approaches taken to address these
issues.

This report captures the current situation in terms of the perceptions of various interest
groups, the facts relating to incidents and behaviours and importantly, takes a solutions
focused approach to recommendations to ensure the outcomes stakeholders have agreed
to be acted upon.

The development of this report has involved a range of methodologies as outlined on the
following page. Extensive input has been received from the two main stakeholders groups
businesses (owners and their staff) and young people. A large scale survey and face to face
consultations were held with these two groups. This ensured constituents who were
directly affected had the opportunity for input through a range of mechanisms. Members of
the general public who were shopping in the city centre were also consulted.

In addition, discussions with other stakeholders who play a major role in the delivery of
services and support to young people were held. These included representatives from the
Department of Health and Human Services, the Department of Education, various youth
service organisations, youth representatives from Launceston and West Tamar Councils,
Metro Tasmania, Cityprom, Launceston Chamber of Commerce and Tasmania Police.
Discussion with Associate Professor Rob White from the University of Tasmania also
provided valuable input in terms of specialist academic knowledge and experience working
with other communities who have tackled these issues.

In order to meet these requirements and undertake a comprehensive consultative process,

the methodology summarised on the following page was adopted.

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Methodology

Information gathering from the

Launceston City Council and other
identified stakeholders

Environmental scan of literature on

anti-social behaviour and analysis of
successful strategies applied in like
communities

Development of survey tools and

questionnaires for stakeholder
consultations

Undertake stakeholder consultations

across the range of identified groups

Assessment and analysis of the consultation

outcomes for the city to provide strategies
and recommendations for action

Prepare and present final report of key

themes, strategies and recommendations
on potential actions to LCC and stakeholder
group

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Current situation
The issues relating to the perception of anti-social behaviour and negative responses to our
young people have been a long term theme in this community. More recently shop owners
in the CBD, especially the Mall, have reported increased levels of antisocial behaviour, which
is impacting on the amenity of the CBD and feelings of safety amongst the general public.
The general view is antisocial behaviour, although only perpetrated by a small number of
individuals, is reflecting poorly on young people in our community, as they all tend to be
labelled based on the behaviour of a few. It is also reported to be having a negative impact
on the trading conditions of retailers in the Brisbane Street Mall and parts of St John Street.

During business hours there are large numbers of young people who walk through the CBD,
either as they transfer buses to go to one of the state or private schools in Launceston, or
walk to or from Launceston College in Paterson Street, or spend time in the CBD during free
periods from Launceston College. Launceston College has a student population of around
1,500, therefore at any one time there will be large numbers of young people in our city
centre, without considering those from other schools, or young people who are not at
school.

The Launceston Public Spaces and Public Life 2011 report identified there are approximately
6,190 students attending academic institutions in central Launceston. They indicate the
University of Tasmania School of Architecture and Design and Visual and Performing Arts,
and the Tasmania Polytechnic Academy of the Arts, located just beyond central Launceston
at Inveresk, accounts for around 1000 students. The most significant street presence is
created by Launceston College students. The Gehl report notes that compared to other
cities, Launceston is fortunate to have a significant number of students in the city centre.3

The numbers of young people in Launceston, and across all municipalities in the region is
included in the table below.

Young People in the Northern Region

5-14 yrs 15-19 yrs

Break ODay 849 275
Dorset 1050 459
Flinders 96 30
Georgetown 1,000 417
Launceston 8,163 4,490
Meander Valley 2,787 1,159
Northern Midlands 1,836 734
West Tamar 3,052 1,586
TOTAL 18,833 9,150
Table 1 - Regional child/youth population data (2006) by LGA

3
Gehl Architects, Launceston Public Spaces and Public Life 2011, p. 55

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Given recent reports, and the number of anecdotes and examples cited by various
community members, an important element of this report has been to ascertain the facts
relating to the current situation. We therefore sought the views of businesses, the general
public, young people, service providers and Tasmania Police. The section below outlines the
results from surveys we conducted with businesses and young people, in early May 2011.

Business perspective

A survey was conducted into factors relating to antisocial behaviour in the Launceston CBD,
including the types of behaviour, the frequency and times when it occurs. The survey was
distributed in person to businesses in the area bounded by Brisbane Street Mall, St John
Street, The Avenue, Charles Street and the Quadrant Mall. A copy of the survey is included
as Appendix 1.

A total of 85 responses were received to the survey, with 96% of business respondents
being from the retail sector.

Summary key findings

82% of respondents reported antisocial behaviour occurring in/on their business premises in
the last year. Of these, 36% reported this had happened more than half a dozen times. In
around three quarters of cases it involved offensive language or yelling and shouting, and in
45% of cases it involved fighting or physical assaults.
89% of respondents reported witnessing antisocial behaviour in the Launceston CBD during
the last year. Of these, 58% reported they had witnessed this on more than half a dozen
occasions. The behaviours witnessed included inappropriate yelling or shouting (82%),
offensive language (84%), threatening or abusive language within groups of people who
appear to know each other (75%), fighting or physical assaults (71%), threatening or abusive
language to people walking down the street (62%), malicious damage to property (29%) and
drinking in public (26%).
Surveys indicated the most common times for antisocial behaviour to occur are Monday-
Friday, 3pm 6pm. School holidays were seen as problematic by 35% of respondents.
81% of respondents identified 13-18 year olds as the most prevalent group engaging in
antisocial behaviour, followed by 19-25 year olds (45%), 12 years and under (8%) and over
25 years (5%).

Key findings by location

Survey results into the frequency of antisocial behaviour showed all businesses in the
Brisbane Street Mall reported an incident in their shop within the last year. This percentage
remained above 80% in all locations with the exception of the Quadrant Mall, which
reported only 29%. Businesses reported the most common of these incidents of antisocial
behaviour within or on their premises consisted of shouting, inappropriate language and
fighting or physical assaults.

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 Offensive language - 68%

Inappropriate yelling or shouting - 65%

Fighting or physical assaults - 39%

Malicious damage to property - 32%

Threatening or abusive language to staff -

30%

Threatening or abusive language to other

customers - 14%

In instances where antisocial behaviour has been witnessed, again the Quadrant Mall was
the least impacted and the Brisbane Street Mall the most. The respondents reported
witnessing antisocial behaviour with an average of 90%. These incidents occurred at a rate
of six or more in the last year (although some respondents reported to us they read this
question as how many times in the last week rather than in the last year) as reported by an
average of 57%. This average is increased by the Mall which reported 94%. The highest
reported incidents consisted of offensive language, threatening behaviour and shouting.
The greatest percentage of this behaviour was reported to occur between 3 and 6pm
Monday to Friday by persons aged between 13 and 25 years.

3pm 6pm - 61%

Monday Friday - 50%

School holidays - 33%

12 noon 3pm - 31%

During school terms - 27%

Weekends - 25%

9am 12 noon - 21%

6pm or later - 15%

Improvements suggested by survey respondents

44% of respondents felt a greater police presence combined with greater police powers
would decrease the incidents of antisocial behaviour in the CBD. There were other
interesting suggestions also put forward. For example the moving of the bus stops, creating
a youth friendly environment away from the CBD and opening the Brisbane Street Mall
back up to traffic to stop loitering in that area. The bus stops were a particular issue to
respondents on the bus strip of St John Street between Brisbane Street and York Street. All
shop owners there reported that business came to a standstill after 2:30pm due to the
crowds of young people engaging in antisocial behaviour out the front of their stores.

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 Greater police presence, harsher
penalties - 44%
Move bus stops to another location -
10%
Open the mall to traffic - 9%

Create a community centre - 8%

Unhappy with Council - 7%

Provide college education about A.S

behaviours - 3%
Feel unsafe in the mall - 1%

The response from businesses was overwhelming. Many shop owners expressed their
desire for something to be done, quickly. 85 responses were received of the 100 that were
requested. The usual response percentage would not be expected to exceed 25%. This
indicates that antisocial behaviour is a perceived issue amongst the majority of CBD
businesses.

Young peoples perspective

Youth in Launceston were also surveyed, they too produced a larger than expected
response with over 120 completing the online survey. Young people were invited to
complete the survey through formal approaches to High Schools in Launceston. They
reported the same issues as shoppers and businesses. They expressed a wish for more
youth friendly zones and a cleaning up of the Brisbane Street Mall. They expressed that a
smoking ban in the Brisbane Street Mall would be a good idea. This indicates they are
unaware smoking is already prohibited in the Brisbane Street Mall.

Summary of key findings

128 responses were received from the youth survey. 81% of respondents were aged
14-16 years, and 12% were aged 17-19 years.
Three quarters of those who responded were female.
85% come to the CBD because they are on their way to somewhere else.
71% come to the CBD to meet friends and socialise.
79% like being in the city with friends and family.
97% reported they had witnessed antisocial behaviour in the CBD or Brisbane Street
Mall, and 15% had personally experienced it.
89% of respondents had witnessed offensive language, 87% inappropriate yelling or
shouting, 51% fighting or physical assaults, 21% threatening or abusive language
towards themselves and 18% malicious damage to property.
66% of respondents reported they felt safe in the Launceston CBD.

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Why young people dont feel safe in the Launceston CBD
When I'm alone I don't like walking past large groups of older guys especially ones
that are smoking or yelling.
There are a lot of out of control people in town.
Because of the bad language and abuse that is used.
People yelling at you.
Because of all the people that hang around looking to pick a fight.
The bogans that run the town and think that they own the whole world having a
cigarette in their mouth.

A large percentage commented on the range of shops available, saying things such as they
would like more shops that are available on the mainland. They reported they came to
the Brisbane Street Mall predominantly after school and in their breaks in order to get food,
shop and socialise with friends. Some indicated they had to wait for buses and whilst doing
so sat around with their friends at the bus stop.

When asked to identify how the Launceston CBD could be improved, many commented on
the need to stop smoking in the Brisbane Street Mall. They also commented on stopping the
offensive language, having a better range of shops, having more activities for young people
and getting rid of the pillows. Some typical responses were:

Have more police supervision in the mall because the school kids just sit there,
smoke, swear, yell and stare at people making them feel uncomfortable and unsafe.
Ban smoking offer more forms of entertainment.
Language, smoking.
More places for young people.
People hang around because they have nowhere else to hang out that's convenient.

The types of activities young people would like to see available in the city include:

More opportunity for live music and performances

Dance crews (like Justice Crew)
Maybe schools could create their own bus shelters around the city; have something
in the city to be proud of.
Generally more activities

Comments on facilities and what young people would like to see include:

More shops
More toilets
More inexpensive activities
Gym

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 A cafe for younger people where we can just hang out, a giant place where there
are books and computers, and sometimes live bands that could also benefit budding
artists.
More shops. Just more places to go in general. There is nothing to do.

Attempts were also made to survey the alleged perpetrators of the antisocial behaviour.
Whilst not keen on being surveyed, they were willing to talk. They indicated they came to
the Brisbane Street Mall because they were bored and it was a central place to socialise.
They were displeased with the Police and the way in which they were required to move on.

The nature of comments in the youth survey indicates many of the respondents consider
the perpetrators of antisocial behaviour to be an identifiable group of people who might be
considered marginalised and excluded. Professor Rob White has addressed this issue in his
research and notes that CBDs are constructed

... first and foremost as a commercial space not as a space for non commercial
activity. The young consumer does have a place here and will indeed be very
welcome by businesses of all kinds, including those which offer youth specific goods
and services. The problem lies in those young people who do not or cannot consume
what the commercial enterprise has to offer. (...) Here it is suggested that the rapid
growth in and high visibility of young people who have been marginalised
economically and socially has and will continue to have a significant impact on social
relationships within the CBDs, and thus the police4

City centre users perspective

Conversations with shoppers reiterated much of what had been established from the
information received by businesses. Many shoppers indicated that they would not come to
the CBD after about 2:30pm and even before that time feel nervous about doing so. Parents
indicated they were more displeased with the language they had to prevent their children
from hearing as opposed to feeling directly threatened. Shoppers also confirmed that they
would not go to St John Street after 2:30 because of the youth there. Some shoppers
admitted that they do go into shops to avoid conflict if they see young people walking
towards them.

4
White, R, Young People, Community Space and Social Control, paper from the National Conference on
Juvenile Justice 1992, retrieved from http://www.aic.gov.au/publications/previous%20series/proceedings/1-
27/~/media/publications/proceedings/22/white.ashx

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Current environments in the city centre
Physical
The Launceston Public Spaces and Public Life 2011 provides an up to date and
comprehensive analysis of the physical environment in central Launceston. They
characterise central Launceston as monofunctional, mainly shopping, services, bars and
restaurants. They note that a broader variety of events in the city centre would invite
different user and age groups with different interests. They cite examples such as a skating
festival, a sing-along festival, fashion week, Launceston by night Lighting festival in public
spaces, flea markets, are festival for children, etc as potential events.

During consultations for this report many people raised the current under utilisation of Civic
Square as an opportunity, and thought it could be developed as an appropriate and inviting
space, with a focus on youth activities. The advantage of this is its location adjacent to the
Library, and the absence of any shops or businesses which could be negatively affected by
youth focused activities. We raised this idea with young people during focus groups, and
they were positive about the concept, but made the point there would need to be activities
happening in Civic Square which attracted enough young people to make it an attractive
drawcard generally and a place to be. The types of activities young people thought could
make it more attractive included busking, street performances, dance crews and markets.

In terms of infrastructure there would need to be more seating, which young people were
clear should be configured as tables and chairs, where they can sit around in groups and eat.
Young people also suggested having a large screen in Civic Square, similar to the one in
Federation Square in Melbourne, would also be a big drawcard. Improved landscaping and
providing shelter or an undercover area were also important considerations.

The Launceston Public Spaces and Public Life Launceston 2011 report also discussed the
potential of Civic Square. It notes the citys most important gathering space has blank,
inactive facades and offers no opportunities for the public to interact with the square.
Civic Square the citys town hall square is in need of an upgrade and a re-think.5 Based
on our consultations, there appears to be sufficient people, adults and young people, who
would support and be committed to this re-think being focused around a public space for
the young people in our city.

The Brisbane Street Mall is a popular meeting and hanging out space for young people in
Launceston. Proximity to coffee shops, shops and it being undercover are popular features
with young people. Notwithstanding this, organised activities in the Brisbane Street Mall are
limited and sporadic, and the space tends to be largely a thoroughfare. The Launceston
Public Spaces and Public Life Launceston 2011 report puts forward the view that the high
presence of young people in the Brisbane Street Mall, which is commonly considered a

5
Gehl Architects, Launceston Public Spaces and Public Life 2011, p. 69

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problem, actually offers opportunities for interactions between different age groups.6 The
literature review highlights the importance of intergenerational activities as a preventative
strategy for antisocial behaviour (see page 16).

The community infrastructure in the Brisbane Street Mall was highlighted as deficient during
our consultations. There is no community information booth, no community noticeboards
and signage indicating what behaviours/activities are not permitted is inadequate.

The physical environment in St John Street, between Brisbane Street and York Street is the
most problematic, based on the responses from the business survey. Shops in this area
reported being very adversely affected by the large numbers of young people who gather on
the bus stops from about 2.30pm onwards, with minimal business being conducted from
mid afternoon onwards. This combined with the noise and fumes from the buses using
these bus stops makes for a very difficult, and at times unpleasant shopping environment,
and business owners are unsurprisingly very disgruntled about the situation. It is
unfortunate that in the heart of the Launceston CBD, an area which could be vibrant, lively
and inviting, we are faced with an environment which is seen as largely uninviting and
unpleasant for a large part of the day. Metro Tasmania was included in our consultations,
and was largely unconvinced about the merits of relocating any bus stops.

Social
The social environment in the Launceston CBD is largely based around shopping and dining.
Whilst there are adult entertainment options available at evenings, central Launceston is
virtually devoid of social or entertainment options for young people. In the youth survey for
this report young people reported they come into the CBD to go to the cinema. This
correlates with a survey of 400 young people in Northern Tasmania undertaken in 2008, the
Young People and the Communities in the North of Tasmania research report, which
showed that going to the movies is the activity with the highest rate of participation for 15-
17 year olds (63%) and 18-19 year olds (57%). This was followed by swimming for 15-17 year
olds (49%) and dining out for 18-19 year olds (43%).7

Most other activities are based around shopping or business transactions. There is little
social activity, aside from dining and entertainment venues, after 6pm.

Regulatory
There is widespread community support for a strong Police presence in the Launceston CBD,
especially the Brisbane Street Mall. The majority of responses to the business survey and
the youth survey mentioned policing, and a desire to see it increased or maintained at
current levels. Whilst some respondents were eager for Police to be more proactive and
enthusiastic in their approach to policing in the Brisbane Street Mall, discussions with the

6
Gehl Architects, Launceston Public Spaces and Public Life 2011, p. 70
7
Northern Tasmania Development, Young People and their communities in the north of Tasmania research
report, January 2008, p. 40.

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Tasmania Police highlighted the tension that can exist in dealing with unruly or unpleasant
behaviour when the perpetrator is not committing an offence. People who are swearing,
yelling, wearing hoodies or generally skylarking are not necessarily committing an offence,
and therefore a Police response is not usually required. This raises the question of how the
behaviour in the Brisbane Street Mall is regulated and monitored, when no offences are
being committed. Whilst the Police may speak to individuals and their presence may
moderate behaviour, such matters are not within the Police ambit. As one Police Officer told
us during consultations we are not the fashion police.

The regulation of behaviours which are not permitted in the Brisbane Street Mall, such as
smoking, skateboarding and bike riding is problematic. It is not clear who is responsible for
regulating this behaviour, or how it is to occur. Police will tell people not to engage in these
activities if they see it occurring, however it is not clear whether the Council has a role to
play in this.

Signage in the Brisbane Street Mall is considered inadequate by many people we spoke to.
Signs are small and easy to miss. There is no signage which sets the tone for what is and isnt
acceptable. Signage which is clearly visible and is explicit in stating what conduct is not
permitted is seen by many as essential for helping address the problem of antisocial
behaviour. It would also assist adults who might be willing to sensitively point out to people
when their behaviour crosses the boundary.

Examples of more explicit signage include those below.

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Data on the level of offending in the Brisbane Street Mall was not able to be disaggregated
by Tasmania Police. Data available from Tasmania Police, released in March 2011, reveals
the following information about the Launceston Division (which includes the Brisbane Street
Mall).

Total number of offences were 3607, down by 733

Person offences were 685, which is 34 less than the previous year
Serious crime offences were 63, down by 15
Robberies were 28, down by 10 on the previous year
Business burglary was 106, down by 26
Property damage was 519, down by 283
Public place assaults were 170, an increase of 11.

Tasmania Police also advise they have written 11 letters to parents of people under 18,
under the Operation Sanction initiative, in the last three months, advising them their child
was issued a move-on order under section 15B of the Police Offences Act 1935, and the
reason for the move-on order. Move on orders are given by police when people are located

16 | P a g e
in public places behaving in a manner which could cause harm to themselves and/or the
community.

Through our discussions with young people we ascertained many of the conflict situations
occurring in the Brisbane Street Mall between young people, either individually or in groups,
is a spill over from bullying which may also be happening at school, and frequently has a
social networking element to it. That is, young people post derogatory comments about
others on facebook and this is often the spark to conflict which spills over into school and
beyond, and can develop into yelling and fighting. The young people we spoke to report this
more often involves young women. Some police we spoke to also observe an increasing
tendency for young women to become involved in conflict which leans more to fighting and
physical threats.

Youth Specific
The current environment in central Launceston does not include any activities,
infrastructure or programs which could be considered youth specific. Young people who
responded to the survey highlighted the lack of youth activities, and reported they gather in
groups in the Brisbane Street Mall because they have nowhere else to go.

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Literature review
Considerable academic effort has been directed to defining and understanding what is
meant by anti-social behaviour. Whilst many people would contend they know what is
meant by the term, it is a contested concept because what one person interprets as
antisocial may be interpreted by others as criminality. Mille (2009) notes that ...what to
one person might be antisocial may be tolerable to another or even celebrated as a valued
contribution to contemporary life.8

There have been many definitions forwarded, and the following proposed by Millie (2009)
attempts to come to grips with the multifaceted nature of the concept. Millie states that:

Antisocial behaviour is behaviour that

causes harassment, alarm or distress

to individuals not of the same household as the perpetrator, such that
it requires interventions from the relevant authorities; but
criminal prosecution and punishment may be inappropriate
because the individual components of the behaviour
o are not prohibited by the criminal law or
o in isolation constitute relatively minor offences.9

McAtamney and Morgan (2009) point to the multitude of behaviours which may be
considered antisocial. They note that a range of behaviours from minor offensive or harmful
acts, to more serious criminal activity can be considered antisocial.10 They highlight the
definition adopted by the Western Australia Police which identifies any behaviour that
disturbs, annoys or interferes with a persons ability to go about their lawful business as
antisocial. These definitions could capture a range of behaviours which are relatively
common place in many public spaces, such yelling, swearing, skylarking in groups,
skateboarding and graffiti, most of which would not require a police response, although it
could be argued are annoying, disturbing or potentially causing harassment to others. Both
this definition, and the one proposed by Millie (2009) are very general and have been
criticised for being too generic.

McAtamney and Morgans (2009) research suggests developing a local definition of

antisocial behaviour can be beneficial for local communities, as it forces them to identify the
specific behaviours that are problematic for them, and assists in developing an
understanding of the nature and extent of any problems, who is involved, the impact of
these behaviours and how behaviours are perceived by the community. The range of

8
Mille A (2009), Anti-social behaviour, Open University Press, UK, p 2
9
Millie (2009) p. 17
10
McAtamney and Morgan (2009), Key issues in antisocial behaviour, Australian Institute of Criminology
Research in Practice Summary Paper No 5, retrieved from
http://www.aic.gov.au/documents/D/C/6/%7BDC62C09C-D5CE-4444-BC40-428791263953%7Drip05_001.pdf

18 | P a g e
antisocial behaviour they identify spans misuse of public space, disregard for community
safety, disregard for personal wellbeing, acts directed at people and environmental damage.
This approach of developing a local definition is relevant to the situation in Launceston, as
the data gathered through surveys and focus groups indicates we have a specific range of
behaviours which are causing problems, and these are largely agreed by all parties.

Of equal complexity are the factors which contribute to anti-social behaviour. Researchers
have identified multiple factors which can contribute to antisocial behaviours. Morris,
Sallybanks and Willis (2003) note that antisocial behaviour does not arise from one factor
alone, and point out that the higher the number of risk factors the more likely it is that a
young person will engage in antisocial behaviour.11 They identify five categories of risk
factors covering individual factors, family, school, peers and community/neighbourhood.
These are outlined in more detail in Table 2.

Table 2- Risks factors for youth engaging in anti-social behaviour and/or offending

Risk Factors
Individual factors - Perinatal and postnatal difficulties
- Antisocial personality (includes impulsiveness, beliefs &
attitudes favourable to deviant or antisocial behaviour,
restlessness, risk-taking)
- Early signs of antisocial behaviour, including displays of
aggression)
- Alcohol and drug use
Family - Parental criminality
- Poor family management practices (poor
supervision/monitoring, harsh or inconsistent discipline)
- High levels of family conflict
- Lack of parental involvement (neglect, low parental
warmth)
- Economic stressors
School - Academic failure
- Truancy and low commitment to schooling
- Frequent school changes
- Expulsion or suspension from school
- Bullying
Peers - Poor social ties (few social activities, low popularity)
- Mixing with delinquent siblings and peers
- Gang membership
- Peer rejection
Community/neighbourhood - Poverty
- Community disorganisation
- Availability of drugs and firearms
- Exposure to violence and crime within the community

11
Morris, Sallybanks and Willis (2003), Sport, Physical Activity and Antisocial behaviour in Youth, Australian
Institute of Criminology Research and Public Policy Series No.49, retrieved from
http://www.aic.gov.au/documents/9/C/C/%7B9CC8CDD4-CF5B-4F2C-8D9A-AA1FA76889B8%7DRPP49.pdf

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 - Lack of support services
- Social or cultural discrimination

The literature also highlights a range of other factors which contribute to antisocial
behaviour. One of the most common identified is youth boredom, with many reports
highlighting the lack of appropriate youth venues, entertainment and activities as a
contributing factor to antisocial behaviour. To alleviate their boredom, young people often
gather in groups with their friends, hang out together and visit local public spaces.12 The
results of a survey of young people in NSW by the Youth Action and Policy Association in
2002 also highlighted this. The results showed young people hang out on the streets and in
public places because there is nowhere else for them to go. It is simply an affordable and
accessible pass time. The survey found young people wanted recreation based centres with
space to hang out in, things to do such as indoor and outdoor games, computers with
internet access, art and organised programs. They also said youth centres should be opened
on weekends and later after hours.13

The other factor which contributes to antisocial behaviour is the desire of young people to
hang out in groups. This not only increases the likelihood of some young people actually
engaging in antisocial behaviour, but perhaps more importantly it increases the perception
by adults that it occurs. In turn, it can also feed into the fear some adults have of young
people who are gathering in groups. Hatzopoulos and Clancey (2007) have found that
gregarious and boisterous behaviour, the blocking of pedestrian walkways and the gathering
of large groups are some of the circumstances that result in the fear of young people.14 This
fear then contributes back into community perceptions that young people are
disproportionately engaging in antisocial behaviour, when in many instances they are
gathering in groups, being loud and boisterous and merely creating the impression of
antisocial behaviour. This is an important consideration in determining the positive
responses to address what is happening in the Launceston CBD.

Organised sporting activities are an avenue for young people to hang out together and
overcome the boredom they frequently speak of. The work of Morris, Sallybanks and Willis
(2003) in their report investigating whether sport and physical activity programs have a
positive effect on youth and antisocial behaviour, found that while it is unlikely that sport
and physical activity programs have a major and direct impact on reducing antisocial
behaviour, they form an important mechanism through which positive personal and social
development may occur. Importantly these programs cater for all youth, not those just
12
Hatzopoulos & Clancey (2007), Meeting Places, Where People and Places Meet: Approaches to Public Space
Management, p. 11
13
Youth Action and Policy Association NSW (2002), ACTivate: young people in NSW having a say Final report
of consultations held with 500 young people in NSW, retrieved from
http://www.yapa.org.au/yapa/policy/ACTivate.pdf
14
Hatzopoulos & Clancey (2007), Meeting Places, Where People and Places Meet: Approaches to Public Space
Management, p. 11

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considered at risk, which results in a positive peer influence for youth who are engaging in
antisocial behaviour.15

Strategies for preventing and addressing antisocial behaviour

The research into antisocial behaviour, and the issues arising from how public spaces are
managed, highlights clearly this is a multifaceted issue. There are many layers to the issue,
and therefore there is not a single or simple solution which can be implemented to address
the problem.

Hatzopoulos and Clancey (2007) identify a range of strategies which have worked, and five
of these are of direct relevance to a city such as Launceston. These five strategies are:

1. Intergenerational programs such programs which promote, and provide

opportunities for young people and older adults to work together on issues or
projects.
2. Enlightened enforcement such as use of mobile PCYC facilities.
3. Service provision making sure there are programs, activities and services for young
people.
4. Consistent behavioural guidelines developing an agreed understanding of what is
and is not acceptable, and outlining these in a behaviour protocol or code of conduct.
5. Community facilities such as skate ramps and facilities for public performances.16

Fairfield Council in Western Sydney have produced a report titled Preventing Crime in Public
Space (2008) which suggests a number of strategies which have been successfully
implemented by local councils in NSW. This report highlights the following strategies:

1. Develop consistent behavioural guidelines this has been successfully introduced in

Eastern Sydney with the Bondi Junction Youth Protocol. This protocol outlines and
defines acceptable and unacceptable behaviour in the Bondi Junction area.
2. Provide safe transport Many young people rely on public transport and lengthy
waiting periods can contribute to boredom and resultant problems.
3. Provide community activities Providing free community events is imperative,
especially on weekends and in school holidays. To be effective young people should
be involved in all aspects of the events, from design to implementation.
4. Provide programs and activities The absence of programs and activities can
contribute to boredom and its resultant problems. The report highlights the
Midnight basketball initiative, which runs on Saturday evenings in several locations
in NSW. Tournaments are run during school term on a Saturday night between 7pm

15
Morris, Sallybanks and Willis (2003), Sport, Physical Activity and Antisocial behaviour in Youth, Australian
Institute of Criminology Research and Public Policy Series No.49, pp 1-2 retrieved from
http://www.aic.gov.au/documents/9/C/C/%7B9CC8CDD4-CF5B-4F2C-8D9A-AA1FA76889B8%7DRPP49.pdf
16
Hatzopoulos & Clancey (2007), Meeting Places, Where People and Places Meet: Approaches to Public Space
Management.

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 and midnight. Young people play basketball and participate in a workshop before
being returned home.17

Townsville City has also been active in commissioning research into antisocial behaviour.
Their report, Investigating the incidents of criminal and antisocial behaviour by young
people on The Strand (Dawes, 2001) makes recommendations on how to overcome
antisocial behaviour. Recommendations included:

1. Adopting a range of communication strategies between various stakeholders who

use the space known as The Strand.
2. Establishing formal and informal mechanisms for including young people in decision
making.
3. Developing a protocol that includes clear guidelines for codes of conduct for young
people as well as others who use the space.
4. The Townsville Council employ youth advocates to work in the space.
5. Run a public education program about why young people congregate in public
spaces and the types of leisure activities they pursue.
6. Encourage media coverage that reports on the positive aspects of youth culture.
7. Increase flexible facilities that are accessible to a wide range of youth.18

Hornsby Council to the north of Sydney has also been active in addressing issues of safety in
their Mall area. The strategy they adopted included the following:

1. Investigating the feasibility of appointing Mall Ambassadors to act as a one-stop-

shop on the ground in the Mall, seven days a week.
2. Setting up an operations and facilities taskforce meets bi-monthly to bring
together all interested parties.
3. Establishing emergency response protocols.
4. Establishing a youth initiative.
5. Improved signage.
6. Running education seminars for businesses on issues such as safety, security and
crime prevention.19

Hornsby Council also received funding from the Federal Government, under the Community
Crime Prevention Grants, for a project titled Including and Involving Young People in Public
malls in the Hornsby Central Business District.

17
CHD Partners, Preventing Crime in Public Space, retrieved from
http://www.fairfieldcity.nsw.gov.au/upload/yusev89629/PreventingCrimeinPublicSpace.pdf
18
Dawes (2001), Investigating the incidents of criminal and antisocial behaviour by young people on The
Strand, retrieved from http://www.criminologyresearchcouncil.gov.au/reports/200102-16.pdf, pp 45-47.
19
Hornsby Council Strategy, retrieved from http://www.hornsby.nsw.gov.au/media/documents/recreation-
and-facilities/hornsby-mall/AdoptedStrategy03HMSMP.pdf

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A way forward short term and long term
This section looks at a range of solutions, some drawn from the literature as best practice
examples from similar communities, and provides a range of actions. These actions have
been categorised in two ways, firstly based on what issue they are responding to and
secondly, whether they are considered a short, medium or longer term approach. This
recognises there are different solutions to different issues and there is no one size fits all
approach.

Recommendations Short Term (by end of 2011)

1. Establish an overarching Governance Group, with all interested parties represented,

which is responsible for issues relating to community space and safety in the
Launceston CBD. This group would take over from the antisocial behaviour
committee which has been meeting, and broaden the agenda from a focus on
behaviour to look more broadly at issues relating to community space and safety in
the CBD.
2. Improve signage in the Brisbane Street Mall, to clearly indicate behaviours which are
not permitted.
3. Run a series of seminars for business owners/managers covering topics such as:
store security could be run in partnership with Cityprom
retail loss prevention could be run in partnership with Cityprom
young people as consumers: key issues for retailers could be run in
partnership with Cityprom and the Youth Advisory Group
4. Prepare a Code of Conduct for the Launceston CBD - to be developed as a partnership
between High Schools and Colleges in Launceston with young people having direct
input into what is included, and how it should be monitored and enforced.
5. The Department of Education (Learning Services North) and Tasmania Police
(Launceston Division) examine the merits of reintroducing Operation Roll Call, a
successful partnership dealing with school truancy previously undertaken in
Launceston, and provide advice on the outcomes of these discussions to the anti-
social behaviour committee, or Governance Group if it has been established.
6. Governance Group to work with Cityprom and the Youth Advisory Group to develop a
youth mystery shopper scheme, which will recognise businesses in the Launceston
CBD which are youth friendly.
7. Maintain the current level of daytime police patrols in the Launceston CBD, including
maintaining their successful Junior Constable program, and provide regular reports
on these to relevant stakeholders.
8. Ensure there are regular activities for young people occurring in the Brisbane Street
Mall, focused on the after school period. Discuss whether it is possible to offer
activities through the PCYC mobile activity program, which has successfully occurred
in the past.

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Recommendations Medium Term (by end of 2012)

9. Review the terms of reference for the Youth Advisory Group, and extend them to
include a formal role of providing advice to the Launceston City Council on any
developments which impact on the community space and amenity in Launceston, or
directly impact on the provision of facilities and infrastructure for young people.
10. Construct a Community Information Booth in the Brisbane Street Mall, with an
adjoining community noticeboard.
11. Establish a volunteer Mall Ambassadors program to staff a Community Information
Booth, which recruits both young people and adults. Volunteers would provide
general information to the general public, retailers and tourists in the Launceston
CBD.
12. Commit to the establishment of a dedicated, general purpose youth centre in central
Launceston, and identify potential sites and undertake negotiations with the owners.
Sites previously identified include a building on the corner of Bathurst and Brisbane
Street which is part of the Launceston College property holdings and space in the
Thyne Building which is under redevelopment as a youth housing facility and is
owned by the Department of Health and Human Services. Consideration of other
potential sites should occur immediately, with a view to preparing a proposal for
Round 2 of RDA funding later in 2011 or 2012.
13. Department of Education and Tasmania Police to consider the extension of their
successful school-based restorative justice program to apply to students when they
are travelling to or from school, and after school when they are in the Launceston
CBD.
14. Work with Launceston College to make use of their gym, pool, spa and sauna facility
and rock climbing wall in Brisbane Street, so that structured sporting activities can be
offered to young people after school. Launceston College has just called for
expressions of interest for the long term hire of the pool/spa/sauna and Launceston
City Council should take a leadership role in bringing stakeholders together to
determine whether a community based option can be developed in partnership with
the Department of Education to ensure this facility is available to the young people of
Launceston. The gym could also be used to run successful structured sporting
programs aimed at developing skills in vulnerable youth, such as Midnight Basketball
(www.midnightbasketball.org.au) which runs successfully in many locations in
Australia.

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Recommendations Long Term (2013 and beyond)

15. Relocation of the St John Street bus stop between Brisbane and York Streets.
16. Develop Civic Square as alternative community space, with a focus on activities for
young people. This will involve significant upgrading of the space and ensuring
undercover areas are available.
17. Investigate the development of a CBD Community Precinct, which would link the
Brisbane Street Mall and Civic Square by closing off Paterson Street between Charles
and St John Streets.

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