They knew who sent the e-mail - Were they sacked?
From my personal experience if staff steal a couple of A4 notepad it'll be taken more seriously than breaches of this from a disciplinary perspective.
It doesn't matter if the employer didn't have specific guidance on this document, we don't put signs up everywhere detailing what staff shouldn't break or steal. There's a need for common sense to start applying when it comes to information security across the board. People have to start feeling repercussions of their actions.
I am absolutely not letting the council off the hook here, but part of the problem I face daily is the lack of acceptance by staff and management that people should be held responsible for their actions and when it comes to personal information it should be taken very seriously.