Baldock. Although it was allowed an extension, anti-prostitution groups fell well short of gaining the number of authenticated signatures required for a citizen-initiated referendum. Local Government New Zealand provided model by-laws and procedures. Court challenges have usually failed to uphold more restrictive council by-laws. By 2006, 17 of 74 local governments had drafted or implemented by-laws. 2008 evaluation To help counter criticism, the Prostitution Reform Act included a requirement that a review of the effects of the new law had to be conducted three to five years after it came into force. An initial report in September 2006 indicated that the number of sex workers on the streets was approximately the same as before the Act came into force and, in some cases, even slightly reduced, contrary to allegations that it has increased. The extent of sex work was compared to 1999, the only notable change being a trend from managed sex work to the private sector. An examination of entry and exit factors showed that many sex workers said they desired to continue to sell sex, as financial return and independence were attractive features. Workers seemed more empowered, but there was still violence on the streets. It is clear that the Act did not decriminalise violence, and the police take action about violence when sex workers make complaints (c.f., R v Connolly, a police officer who was jailed in 2009 for blackmailing a sex worker into giving him free sex). Some deficiencies in safe practices, especially for oral sex, were identified. Perceived stigma remained a problem. Inconsistencies were noted between local and central government intent, the former being more restrictive, causing problems for some workers. The Prostitution Law Review Committee presented its final report in May 2008. It found no evidence for the claims of critics at the time of introduction, and it concluded that there was no expansion of the industry. However, employment conditions still left a good deal to be desired. Stigma remained a major problem, and the traditional distrust of authorities also remained. Sex workers are now more willing to report crimes against them than they had been in the past. Following the release of the evaluation, suggestions of bias were raised, and critics such as the evangelical Christian TEAR Fund's Humanitarian Chronicle stated that authors of the report were "supporters" of the sex industry and thus not "neutral". They stated that the situation was much