ACPO NATIONAL POLICE WORKING GROUP DRUGS PROHIBITION OF KHAT AS CLASS C DRUG ACPO NATIONAL COMMUNITY IMPACT ASSESSMENT SEPTEMBER 2013 EXPERIENCED HOW DO COMMUNITIES FEEL? 1. Briefly describe the demographic profile and locations within your policing area of East African or other communities potentially affected by this change in legislation. Up to 400,000 Somalis and 300,000 Kenyans living in UK Somali residents estimates from Office of National Statistics (ONS) figures for 2011 and press statements quoting community representatives Kenyan residents referring to statements by Kenyan High Commissioner and community groups back to 2010 Assessment, July 2013. Strong clan bonds among Somalis reflected in concentrations in specific localities, with highest concentrations in Boroughs of Brent, Newham, Haringey and Enfield According to ONS data, effected communities are present in most areas of London with the highest populations living in seven London Boroughs, notably Ealing, Harrow and Brent. Outside of London there are communities of several thousand Somalis in Bristol, Cardiff Bay, Leicester, Liverpool (Toxteth), Northampton, Manchester (south and Bolton) and Sheffield Although Kent has only a small resident population of Somalis and affected communities, it is a significant hub for the illegal export of Khat to Europe Assessment, July 2013 Assessment, July 2013 Kent Police, Page 1 of 11
2. Describe the level of engagement currently between the police and potentially affected communities? Police forces report good relations with elders and community leaders within the affected communities In the Metropolitan Police Service (MPS) area, five dedicated Community Engagement Workers (including one Somali) have close contacts with affected communities Elsewhere engagement with the police includes via local Neighbourhood Teams, to membership of formal groups and Independent Advisory Groups (IAGs). Strong links also exist with dedicated Prevent teams. A feeling of being targeted may make engagement more difficult at local level Work of Prevent Teams may be more difficult Disaffected young male users may become further estranged from elders and police Prohibition could also be divisive within some communities with pockets of high habitual usage Metropolitan Police Service response to ACPO Community Tension Assessment,, August 2013. South Wales and Grater Manchester Police Page 2 of 11
3. Describe any local reaction to the announcement of government intentions from communities or their representatives either formally or informally? Prohibition largely supported by elders, women and conservative Mosques (khat is Haram, untouchable) In some areas an existing anti khat lobby within affected communities may be expected Avon & Somerset Constabulary, to support prohibition Representatives of affected communities believe immediate prohibition is unlikely to change the demand (among habitual users) Some significant concerns among users (feeling victimised, concern over increased cost) Potential for peaceful public protest in London and several communities in larger provincial cities /towns There may be limited representation direct to local MPs by khat users concerned by possible prohibition In early 2012 the London Borough of Hounslow supported an e petition by Somali communities against khat. This followed a small, peaceful demonstration near Parliament. Reportedly, the majority of participants were female Page 3 of 11 Metropolitan Police Service, Merseyside Police, Northamptonshire Police, 4. Describe any views that have been voiced about this issue through the media or social media? National press coverage has been relatively low key following the Home Secretary s announcement to go against the ACMD advice. Somali community divided over criminalisation of khat. Herbal high is blamed for family breakdown but users claim it is harmless, writes Barney Thompson. Police forces (other than the Metropolitan Police Service) have observed little or no coverage of announcement by local press, although articles to date have largely supported prohibition Adbi Saleiman, from The Moss Side Somali charity Educate 4 Life said I think this is great news. It is having a negative impact in Manchester s Somali and Yemeni communities. Although the number of users is not huge, it is extremely addictive and has a bad effect on the whole community. I am very glad the government have changed their minds on this. A bundle of khat can be bought for just 3. Metropolitan Police Service briefing paper, May 2012 Financial Times 7 th September 2013 Manchester Evening News, 7 th July 13 Greater Manchester Police, ******************************** ************** ******************************** **************
5. Is there any concern that the change in legislation will impact on local businesses serving these communities? In 2011 12 about 2,500 tonnes of khat with an import value of 13.8m arrived in the UK. ACMD Report 2013 Mr Mahamed supplies mafrishes as far afield as Glasgow, Cardiff and Birmingham wherever Financial Times 7 th September 2013 there are Yemeni, Somali and Ethiopian communities. I have not committed any crime. I am trying to bring money to the government, says Mr Mohamed waving a VAT receipt for 132,000 in a single month. I employ 12 people. I pay corporation tax and NI contributions. A lot of people will be affected by a ban. The 2011 Home Office report Khat: Social harms and legislation. A literature review also concluded that legislating against khat in Europe and North America has had little success in curbing demand. Community representatives in Greater Manchester have openly expressed concern to the police about the impact of prohibition on known traders and local cafes that rely on khat use, while recognising the wider community benefits Other police forces report little evidence that prohibition will impact established local businesses within affected communities Currently 95% of khat imported legally is by Kenya Airways via Heathrow The impact of prohibition is being assessed by the London Boroughs of Ealing and Hayes (which includes Heathrow) Primary source of distribution is via known locations in the Borough of Southall, London, where VAT is paid on the Khat purchased for onward circulation A number of known distributors which currently transport khat legally out of Heathrow would be affected Assessment, July 2013 Greater Manchester Police, Metropolitan Police Service, SO15 Prevent Action briefing, Haringey, Metropolitan Police Service, Assessment, July 2013 Page 4 of 11
6. Based on the information above please score your communities on the below matrix ( Appendix A) Only the Metropolitan Police Service assesses the impact on communities as Moderate (Low) Five police forces assess the impact on communities as Above Normal Greater Manchester Police, Leicestershire Constabulary, Northamptonshire Police, South Yorkshire Police and Thames Valley Police (in Milton Keynes, where there is over whelming support among affected communities) Six forces assess the impact on communities as Normal Avon & Somerset Constabulary, Bedfordshire Police, Hertfordshire Constabulary, Merseyside Police, South Wales Police and West Midlands Police Greater Manchester Police, Leicestershire Constabulary, Northamptonshire Police, South Yorkshire Police and Thames Valley Police, August 2013 Avon & Somerset Constabulary, Bedfordshire Police, Hertfordshire Constabulary, Merseyside Police, South Wales Police and West Midlands Police, The overall National Assessment in relation to: EXPERIENCED HOW DO COMMUNITIES FEEL? Is Above Normal whilst it is noted that for the Metropolitan Police Service there is a greater impact on their communities. Page 5 of 11
7. What is the level of Khat use locally? EVIDENCED WHAT DOES OUR INFORMATION TELL US IS HAPPENING? Khat use in the UK is almost entirely limited to diaspora communities, primarily Ethiopians, Kenyans, Somalis and Yemenis The most prevalent use is among Somalis, with community representatives suggesting rates of use between 34 67% in 2005 More recently one police force with extensive knowledge of affected communities in the area estimated that 80% of Somali men use khat, compared to 5 10% of women Majority of use via Khat houses and in private residences, with little public use The Metropolitan Police Service (and local partner agencies) identified 82 venues for khat use in late 2011 in London. 8. How is Khat distributed locally? 2013 Home Office report Khat: Social harms and legislation. A literature review 2005 Advisory Council on the Misuse of Drugs (ACMD) Khat Report Avon & Somerset Constabulary, Metropolitan Police Service, There is an efficient distribution network to the khat using communities across the UK. This includes street sales from vehicles, private house parties, local small shops and khat cafes. The short life span of fresh khat means that distribution needs to be rapid. Local distribution is largely peer to peer via khat transported by road from London to locals who supply direct to khat houses, or to individual users/suppliers direct from the vehicle ACMD Report 2013 Some local distribution may involve taxi drivers from affected communities South Wales Police, West Midlands Police reports the receipt of khat supplies within their area via postal parcels West Midlands Police, 9. How many intelligence reports/ incident logs since January 2013 has the force generated in relation to Khat? Incident and intelligence logs directly related to the use or supply of khat are in single figures for forces outside London for this period. The Metropolitan Police Service found 1554 reference to khat in corporate systems between Jan 2011 and March 2012 Assessment, July 2013 Page 6 of 11
10. Describe any examples of crime/ Anti- Social behaviour or social harm directly linked to Khat? Established (Somali) communities are regarded as largely law abiding by police Heavy use of khat is associated with significant social problems, such as family breakdown, or domestic violence, but khat use is not necessarily the primary cause of domestic difficulty (other reasons including lack of education, lack of employment, lack of English) Community representatives state that only 3% of Somalis enter higher education ASB incidents associated with users of khat (not recorded directly as the cause) include begging, flytipping, inconsiderate parking (around khat collection/supply locations), littering, noise, perceived public use of drugs, spitting in public and verbal abuse The heavy use of khat has been linked in a similar way to alcohol as a contributory factor to Violent Crime, particularly domestic violence. 11. Are there any known khat importers or distributors within your force area? Knowledge of khat importers / distributors varies between police forces. In London the Metropolitan Police Service and partner agencies know the primary individuals and firms which distribute khat openly and legally ************** ************** ************** ************** ************** There is concern within community groups and the police that prohibition will actually encourage organised crime ***************************************** submissions, Assessment, July 2013, referring to Advisory Council on the Misuse of Drugs (ACMD 2013 report ) submissions, Metropolitan Police Service, Northamptonshire Police, submissions, Metropolitan Police Service response to ACPO Community Tension Assessment, Greater Manchester Police, Page 7 of 11
Bedfordshire Police have intelligence of the use of London Luton Airport for the import of khat. Bedfordshire Police, 12. On the information above please score your communities on the below matrix (Appendix A) Only Thames Valley Police assess the impact on communities as Moderate (Low) and isolated to Milton Keynes. This assessment should be read as positive, given the support for prohibition among residents from the affected communities (who also express concern about possible negative effects, such as an illegal market in khat and other prohibited drugs. Two police forces assess the impact on communities as Above Normal Leicestershire Constabulary and Northamptonshire Police, Nine police forces assess the impact on communities as Normal Avon & Somerset Constabulary, Bedfordshire Police, Greater Manchester Police, Hertfordshire Constabulary, Merseyside Police, Metropolitan Police Service, South Wales Police, South Yorkshire Police, West Midlands Police, Leicestershire Constabulary and Northamptonshire Police, Avon & Somerset Constabulary, Bedfordshire Police, Greater Manchester Police, Hertfordshire Constabulary, Merseyside Police, Metropolitan Police Service, South Wales Police, South Yorkshire Police, West Midlands Police, The overall National Assessment in relation to: EVIDENCED WHAT DOES OUR INFORMATION TELL US IS HAPPENING? Is Normal whilst it is noted the positive Moderate (Low) rating for Thames Valley specifically linked to Milton Keynes. Page 8 of 11
13. Based on the information you have provided in the above assessment please score your communities on the below matrix in terms of the potential future impact for your force area overall. (Appendix A) Only the Metropolitan Police Service assess the impact of the change in their policing area as Moderate (High) The Greater Manchester Police assess the impact of the change in their policing area as Moderate (Low) Nine police forces assess the impact of the change in their area as Above Normal Avon & Somerset Constabulary, Bedfordshire Police, Hertfordshire Constabulary, Leicestershire Constabulary, Northamptonshire Police, South Wales Police, South Yorkshire Police and Thames Valley Police (in Milton Keynes, where there is over whelming support among affected communities), West Midlands Police Only Merseyside Police assess the impact of the change in their area as Normal Avon & Somerset Constabulary, Bedfordshire Police, Hertfordshire Constabulary, Leicestershire Constabulary, Northamptonshire Police, South Wales Police, South Yorkshire Police and Thames Valley Police (in Milton Keynes), West Midlands Police, The overall National Assessment in relation to: POTENTIAL FUTURE POLICING IMPACT? Is Above Normal whilst it is noted that for the Metropolitan Police and Greater Manchester Police there is a heightened impact on their communities. Page 9 of 11
Appendix A Assessment definitions 1 Imminent 2 High Corroborated evidence of preparation for crime and disorder e.g. groups gathering, weapons being prepared etc. Or widespread calls at national or international levels for explanation, action or sanction Substantial evidence of fear of crime and/or disorder along with evidence of preparations to deal with the consequences e.g. boarding up of shops. Or members of public representative bodies expressing critical concerns or questioning actions. 3 4 Moderate (High) Moderate (Low) Evidence of widespread alarm at current tension levels. Local media reporting that tension is raised with local opinion formers and/or significant local people stating their fears. Or local and national media may have sustained coverage of the issues. Corroborated evidence that a significant number of people in the community in question or across communities fear crime and/or disorder. They expect crime and disorder to happen if no action is taken to prevent it and/or another event serves to increase tension. Or there is widespread discussion of the issue, some polarisation of views is apparent, media interest is regular and may be at the local and/or national level 5 Above Normal 6 Normal Some corroborated evidence of fear of crime or disorder within the community. The crime and disorder feared would be of low intensity and/or experienced by a limited range of people. Or there is some evidence of growing levels of discussion, media interest is increasing, may be sporadic but remains at a local level. Limited community concerns that tension will rise and that, even if it did, the impact will be minor. Or discussion is confined to single interest groups with negligible or no media interest. Page 10 of 11
Appendix B ACPO National Police Working Group Drugs Prohibition of Khat as Class C drug ACPO September 2013 Police force Response Avon & Somerset Bedfordshire Greater Manchester Police Hertfordshire s Kent Kent Police Briefing, Leicestershire Merseyside Metropolitan Police Service Northamptonshire South Wales South Yorkshire Thames Valley Police West Midlands Community Impact Assessment: Impact of the Home Office decision to ban Khat: Focus on the Somali community Prevent Action briefing, Haringey, SC D3 Drugs Directorate: Report into the use of Khat use and consumption in MPS area Page 11 of 11