Public Space Protection Order (PSPO) frequently asked questions

What is a Public Space Protection Order (PSPO)?

A Public Space Protection Order (PSPO) is a legal power under the Anti-Social Behaviour, Crime and Policing Act 2014. It allows councils to deal with behaviours that negatively affect people’s quality of life in public spaces. 

PSPOs help make public spaces safer and more enjoyable for everyone. Councils can use a PSPO to: 

• ban or restrict certain behaviours in a specific area 
• apply rules that affect everyone in that area

What is anti-social behaviour? 

Anti-social behaviour is anything that causes harassment, alarm or distress to others. It is defined within section 2 of the Anti-Social Behaviour, Crime and Policing Act 2014. 

Who can make a PSPO? 

The Anti-Social Behaviour, Crime and Policing Act 2014 states that councils can create a PSPO after consulting with: 

• the police, via the Police and Crime Commissioner, chief of police and local representatives 
• members of the public 
• the owner or occupier of the land and Highway Authority if relevant 
• community representatives the council determines are appropriate

What guidance do councils have to follow?

Councils have to follow the statutory guidance published by Government. You can see the full guidance on the Government website.

Why has the council introduced a PSPO?

The council and partners receive a large number of reports and complaints regarding anti-social behaviour in Reading, including begging, alcohol related anti-social behaviour, dog control, dog fouling and anti-social use of e-bikes and e-scooters.

This behaviour makes people feel unsafe and so the council carried out a consultation in the summer of 2025 to ask people their views on implementing a PSPO to deal with this anti-social behaviour across the whole borough.

The results from the consultation demonstrated a high level of support for the council for the proposed conditions and as a result, in November 2025, the council’s Policy Committee approved the introduction of a PSPO.

What are the conditions in the PSPO?

• On-street begging. A person must not engage in begging in any public place in a manner that is reasonably perceived to be aggressive, intimidating, or causes harassment, alarm or distress.
• Alcohol and anti-social behaviour. No person shall refuse to stop drinking or refuse to hand over any containers (sealed or unsealed) believed to contain alcohol when required to do so by an authorised officer to prevent nuisance or disorder.
• Dog fouling. A person in charge of a dog will be guilty of an offence should they not pick up after their dog. Being unaware of the defecation or not having an appropriate means to remove it will not be deemed a reasonable excuse for failing to remove it.
• Dog control. A person in charge of a dog shall be guilty of an offence if, at any time, on any land to which this order applies, they do not comply with a direction given them by an authorised officer of the council to put and hold the dog on a lead.
• Anti-social use of e-scooters and e-bikes. No person shall ride or operate an electric scooter or any type of electric bike within the defined area in an anti-social manner, where they act in a malicious or dangerous manner in a public place and cause significant harassment, alarm or distress to any person within the borough. Any person doing so may be subject to enforcement and, if requested by a police officer, the rider must dismount.

How long will the PSPO last? 

The PSPO lasts for up to three years from the date it starts. Councils must run another consultation if they want to extend the area it covers and/or add new restrictions. 

Where does the PSPO apply? 

This order is borough wide and applies in any public place within the administrative area of Reading Borough Council. A public place is any area the public can access, whether freely, by payment, or with permission. The PSPO does not apply to private homes. You can also see a map showing the area the PSPO.

Who will enforce the order?   

The PSPO will be enforced by an authorised officer. For the dog fouling and dog control conditions this will be a council officer and for the street drinking, begging, anti-social use of e-bikes/e-scooters conditions, this will be a police officer. 

How will the PSPO be enforced?

Whilst the ultimate sanction of breach of a PSPO is through the means of a Fixed Penalty Notice and/or summons to the magistrates court, we will follow this process:  

• Engage any individuals with vulnerabilities and signpost to relevant support services 
• Educate people on the conditions of the PSPO 
• Explain the conditions and subsequent consequences 
• Enforce if a persistent/repeat/significant breach takes place.

Officers will take a measured approach to enforcing the order and will only enforce it as a last resort, focussing on engaging, explaining, and encouraging people at risk of breaching the PSPO through education and warnings as first steps of the process. 

What about people who are vulnerable? 

We know that some people may be vulnerable and have complex needs, particularly those who are begging and/or street drinkers. The PSPO will never be utilised as a way of introducing a financial punishment to vulnerable individuals.  

There are a range of support services provided both through services commissioned by the council and through organisations who operate independently. It will be a requirement for officers to work alongside relevant support services to ensure vulnerable people are signposted to, and engaging with, services who can provide them with specialist help.  

What does anti-social behaviour related to alcohol mean?

This refers to drinking alcohol in public places in a way that causes problems for others. This includes: 

• Being drunk in public 
• Acting in a loud, rude, or disruptive way 
• Swearing or shouting 
• Urinating in public 
• Leaving empty alcohol containers behind 
• Gathering in groups on public benches and making others feel unsafe. 

Why include begging in the PSPO (Public Space Protection Order)? 

Reading continues to see regular street begging, especially by a small number of people who beg in an aggressive way. This includes: 

• Approaching people directly to ask for money 
• Targeting vulnerable individuals, especially near cash machines 
• Acting in ways that feel intimidating or threatening. 

The visible presence of begging can also make busy areas feel less safe. Street begging is regularly raised as a concern in the council’s annual Community Safety Survey, especially in the town centre. These behaviours can lead to crime and often require police intervention. 

Will this PSPO unfairly affect marginalised groups? 

No. The rule is not aimed at any specific group. Data does not show that ethnic minorities or specific age groups are more likely to be affected and there’s no evidence that PSPOs have been used unfairly in the borough previously. Police officers will consider each person’s situation carefully before taking action. 

What about people who are homeless? 

People often assume that anyone begging is homeless, but that’s not always the case. In Reading, accommodation is offered to those in need without an upfront charge. This means that accommodation can be accessed by people who do not currently have an income, whilst they are supported to apply for benefits and employment.  

The reasons for homelessness are complex, with trauma, addiction and relationship breakdowns usually contributing to why someone is rough sleeping. Access to specialist support to address these reasons is the best way to help someone move away from rough sleeping. 

You may be interested in Tap for Reading which directly benefits someone who is sleeping rough, or who has been homeless, to move into supported or independent accommodation. By giving through tap points around Reading or our online donation site, your money is pooled and split between our four homelessness charity partners who work with those most in need, with those funds going directly to supporting vulnerable individuals’ specific needs. 

If I drink alcohol outside will I be in breach of the order? 

You can drink alcohol in public unless a police officer believes it’s causing, or could cause, anti-social behaviour. In that case, they can ask you to stop drinking and hand over your alcohol, even if the container is unopened. This rule does not apply to areas with a licence to serve alcohol, like outdoor seating at pubs. 

Will this PSPO affect people having a harmless social drink outdoors? 

The rule is not a blanket ban on drinking in public. It only applies when alcohol use leads to anti-social behaviour.  

Why include dog control and dog fouling in the PSPO? 

Including this rule in the PSPO helps to: 

• Deter irresponsible dog owners 
• Keep shared spaces clean, like parks, sports fields, and play areas. 

Reading has many parks and open spaces where dogs are walked. These areas are also used by families, children, and sports teams. When dogs are out of control, it can cause concern and make these spaces less enjoyable or even unsafe. 

The PSPO enables council officers to ask dog owners to put their dog on a lead if the dog is causing a problem — for example: 

• Chasing or attacking other dogs 
• Running off or straying 
• Frightening or injuring people. 

This helps prevent incidents before they escalate. 

The council also runs awareness campaigns in parks to promote responsible dog ownership. This will provide us with the legal methods to ensure the message is taken seriously. 

How could a dog owner be challenged under the PSPO? 

Council Animal Wardens could speak to dog owners about: 

• Carrying bags to clean up dog mess 
• Keeping their dog under control.

The goal is to keep public spaces clean, safe, and enjoyable for everyone — and to reduce health risks from bacteria and parasites in dog waste. Cleaning up properly also helps protect soil and water from pollution. Additionally, the PSPO encourages responsible pet ownership through ensuring dogs are under control, keeping in mind that some people are genuinely distressed by dogs, irrespective of breed. By ensuring that all dogs are under control, this PSPO will create a more positive sense of community for everyone. 

Why is anti-social use of e-bikes and e-scooters included in the PSPO?  

Many residents have raised concerns about anti-social behaviour by users of electric bikes and electric scooters. This includes acting in a reckless, intimidating, malicious and/or dangerous manner in a public place that causes significant harassment, alarm or distress. There is also a link between the anti-social use of e-bikes and e-scooters and serious criminal activity. This PSPO condition will provide another mechanism to engage with the minority of individuals involved in this type of behaviour. 

What about people using e-bikes or e-scooters as a sustainable form of transport?

The council fully encourages the responsible use of e-bikes in contributing positively to sustainable travel for the benefit of the environment. The focus of the PSPO is in protecting residents from the behaviour of the small number of individuals who ride electric vehicles in an anti-social manner.

What does the current law state on e-bikes and e-scooters? 

The legislation and classification around cycles, electric cycles and scooters is complex, resulting in different powers, offences and policy for different modes of transport. 

At the current time, it is legal to own an electric scooter but illegal to ride it anywhere other than on private land, without the permission of the land-owner. The situation around e-scooters is one that is under review nationally, and it may change over the course of this PSPO.

You can find out more about the EAPC standards and legal requirements of e-bikes or e-cycles on the GOV.UK website. 

Where can I see more information about the consultation that was carried out?

The council publishes all consultations and responses to the consultation feedback and you can see details on the PSPO consultation.