A gangster called Turkel devises a plot to free his brother from jail by taking hostage an important figure in authority. He is unaware, however, that the 'important figure' he has taken in is actually Cowley masquerading as the Home Secretary, with Bodie as his bodyguard and Doyle ready to pull the trigger on Turkel's brother.

A virtual police state has been imposed by a local Chief Constable, resulting in a supposedly almost crime-free city. But that is because all the crime is taking place behind the scenes by the police officers themselves - who will think of nothing of imposing on suspects' rights in their pursuit of 'zero tolerance'. Bodie and Doyle become hunted men when they visit the city and begin to question the rather unorthodox methods of action taken by the local constabulary.