Helle Nørgaard and Sølvi Børresen URBAN SPACE FOR EVERYONE Challenges, conflicts and measures © Foto: Sisse Jarner/chiliarkiv.dk © Foto:

URBAN SPACE... FOR EVERYONE

Challenges, conflicts and measures

By Helle Nørgaard and Sølvi Børresen

The Danish Building Research Institute Aalborg University

Foreword

In recent years there has been in the 12 Danish police districts to much focus on the revitalisation of discuss a holistic programme of cities and urban space. Streets and crime prevention in urban space. squares are expected to offer lively, The study underlying this report is diverse settings that can accommo- a step in that direction. We hope date a wide spectrum of users from the report will help create greater rollerbladers to café guests and awareness of the development people who simply want to relax of urban space for the benefit of in the sun. Urban space should be residents and users in the city. beautiful and interesting, inviting residents and other users to meet The report focuses on urban life and stay for a while. and discusses the questions: Why are some city spaces considered But urban space also holds the safe and others not? Where do potential for conflicts and crime: people want to be? What are the violence, theft, graffiti and sale inevitable dilemmas in the quest of drugs take place within the to provide ‘urban space for every- confines of the city. Experience one’? shows, however, that making a conscious effort to properly The study is based on eight city design, maintain and operate ur- spaces in Copenhagen, Odense, ban space can reduce crime and Århus and Aalborg with focus on increase feelings of safety. The de- crime prevention measures and sire to prevent crime and increase experiences from local municipali- security can however clash with ties and the police. Focus is fur- the desire for diversity and liveli- thermore on the users’ perception ness and it is therefore important of safety in relation to the case to find a good balance between study areas which were selected these different elements and con- on the basis of their relatively high siderations. This balance must be incidence of crime compared with rooted in specific local conditions. other parts of the cities: violence, theft and graffiti in particular. The For many years there has been particular urban spaces are places a need for knowledge about the where many people gather and crime prevention aspects of urban where crime occurs which is the development which has encour- downside of the city’s popularity. aged The Danish Crime Prevention Council to investigate this area. The study was conducted by Helle The purpose is to share knowledge Nørgaard, senior researcher and and experience with local politi- project manager, and Sølvi Karin cians, urban planners, operations Børresen, researcher, from The managers and the police. One par- Danish Building Research Insti- ticular aspiration is to inspire the tute. Furthermore, Pernille Arborg, district crime prevention councils intern, contributed to the study.

Thorkild Ærø Anna Karina Nickelsen Research Director Head of secretariat The Danish Building Research Institute The Danish Crime Prevention Council Table of contents

Urban space for everyone? – conclusions and recommendations 7 City life 10 The city as meeting place 10 Urban revitalisation 10 Multifunctional city space 11 Safety and risks 13 What creates unsafety? 13 Socially marginalised people in public space 14 Making space for marginalised groups 14 Challenges, problems and conflicts 15

Crime and safety 16 Routes, moving about and lighting 16 Eyes on squares and places 17 Closed spaces – open spaces 18 Urban spaces – maintenance or neglect 18 Dialogue and interdisciplinary cooperation 19

‘The good square’ 20 Users’ perceptions of risk 20 Challenges and measures 20 Challenges and measures for the various urban areas 21 The selected cities and city spaces 22 Copenhagen 22 Odense 23 Århus 24 Aalborg 25 Common features of the urban spaces 26 Urban space for everyone? – conclusions and recommendations

Cities are undergoing constant is a challenge to the concept of avoiding entertainment and other change where local municipalities ‘urban space for everyone’. activities in housing areas and focus on making urban areas more concentrating ‘urban functions’ in attractive, lively and interesting Another goal in urban development other areas such conflicts can be and where many new housing is to avoid mono-functional areas avoided. However, this kind of con- developments are taken place. This and instead aim for a mix of activi- centration can leave some parts of is largely a success which means ties in certain districts. This means the city deserted. more people visit, use and live in placing stores, cafés, restaurants, cities. amusement arcades, movie the- Conceptually, multifunctional urban atres and other types of business- spaces are designed to meet A common goal in the revitalisa- es and housing side by side. This is the need of all users. However, tion process is for urban space to attractive to many people because urban planners often have specific be welcoming and accessible to it livens up the street. But it also users in mind, and some work everyone. At the same time, urban creates conflicts when families consciously to design urban space planners try to create flexible, living in the city have to co-exist that appeals to selected groups. diverse and multicultural space to with others who use the city as For although the general goal is to meet changes in use, preferences an entertainment centre until the provide flexible, diverse and multi- and needs. Urban users have dif- early hours of the morning. By cultural space, creating ‘common ferent needs and interests which using a more traditional strategy of space’ is difficult in a time where

Urban success increases the use of the city’s various places and spaces. This results in greater wear and tear, which requires ongo- ing maintenance, repair and renovation. Shown here, Søndergade, the main pedestrian street in Århus.

7 Popular urban areas are not popular with everyone. Residents’ desire for peace and quiet conflicts with the nightlife fuelled by the entertainment options in the neighbourhood. Shown here: Jomfru Ane Gade in Aalborg.

individuality is valued and marked in certain areas, instead choosing to the perception of what and who by different and changing needs. what is considered ‘safe routes’. is dangerous, and rarely to actual experience. This does not hold true There are many ‘urban successes’ Physical surroundings such as build- for socially marginalised groups, around the country and in many ings and street furniture, lighting however, whose members are at ways it has been possible to create and visibility thus influence the feel- risk of violence and attack, and diverse urban life. However, the ing of safety. Areas devoid of people who therefore quite naturally feel urban success is not for everyone are perceived as being unsafe. This highly vulnerable. since there is not always room shows that safety and security and tolerance for all users. Meet- issues are important to consider The conclusion is that working ing the needs and preferences of when working with public space. with public space presents many the city’s various users requires dilemmas. It is crucial to decide greater focus on specific groups Some people perceive urban life what kind of public space is aimed and providing space for selected and being in the city as unsafe and at and to consider who the us- users - also those who are socially even dangerous, and avoid certain ers might be because particular marginalised. areas because of fear of what designs etc. may be diminishing might happen. This is a paradox the quality that is valued by some The study shows that users because the risk of actually being a users. There are no clear-cut solu- typically say that they do not feel victim of crime is on the decrease. tions when working with urban unsafe in the city when asked While the fear of being the victim development and creating safe directly. However, the study also of crime has risen, for several environments for everyone. It is shows that beneath the imme- years now, the crime rate has actu- important to consider what kind diate impression of safety and ally fallen in Denmark and other of urban space is desired, what is security, in their daily lives people European countries. feasible, where different functions do think about whether places are should be located and who will safe or unsafe. They avoid walking The study shows that the feeling use particular urban spaces. of being unsafe is closely related

8 It is recommended to:

• Acknowledge urban success, but recognise that increased and different use causes more wear and tear. • Take a close look at the op- eration and maintenance of public space. Does it match the increased use of the city and urban success? • Consider the need for more supervision of public space: reinstate park attendants to embody common norms of behaviour. Vandalism and graffiti make many people feel unsafe. Neglect reinforces the feeling • Distinguish between ‘urban that the area is unsupervised. space for everyone’ and ‘urban space for some’, acknowledging the impossibility of providing SSP (formalised local coop- Copenhagen, Odense, Århus and safe urban space for everyone eration between the schools, Aalborg that were the basis for at the same time. social services and police) the study. The report summarises • Work with the several and cooperation. experiences from planning, de- different types of users and signing and operating and use of carefully weigh their various in- The purpose of this report is to urban space in the four cities listed terests and needs in the urban provide inspiration for planners, above. These experiences form the policy process. politicians, the police and others basis for five recommendations • Improve visibility and lighting involved in urban development. The to help create a feeling of safety quality. report contains a description of and prevent crime. The report • Strengthen cooperation urban life and deals with the chal- concludes with descriptions of the between the police, urban lenges, problems and conflicts re- selected city spaces plus sug- planners, local businesses, lated to urban revitalisation and the gested measures for various types homeowner associations and wide range of users. The descrip- of space. The goal is to inspire oth- volunteer organisations along tion of urban life will hold true for ers in their efforts to create safer, the lines of the well-established many cities, not only the spaces in livelier cities.

Some of the places that feel most safe and pleasant during the day are those that feed insecurity after nightfall. Thinning out trees and bushes to create openness and visibility in the interests of providing safety for some people may spoil what was an urban oasis for others. Shown here: Enghave park in Copenhagen.

9 City life

come as consumers to buy goods or events. Some are from privately owned houses in the suburbs or from housing estates, others come from regions further afield or abroad and all have different rela- tions and experiences with the city.

Those living in the city move from one part of the city to another depending on their activities and doings and whom they are meet- ing with.

‘Children and young people gather from all over the city and from communities 30 km away from Aalborg. We see youth come all the way from Skagen [ed. 100 km] to meet and hang out with others.’ (Aalborg police)

But young people are far from Use of urban space intensifies as cities increasingly seek to promote themselves alone, sharing the city with lots of through activities, events and happenings. Here a juggler entertains a crowd on other users who have their own Strøget, the main pedestrian street in Copenhagen. interests, needs, expectations and norms. In many ways they are Many people find the city’s den- the unknown, to meet strangers. competing for public space, with sity, crowds, constant change Urban space is under constant different groups occupying parts of and renewal an attraction and change, and in recent years it has city and frequently changing places a positive experience in itself. drawn in increasing numbers of such as a street corner, a square, a The city offers a wide range of visitors. The city has become a park. For part of the day a pedes- activities and choices such as success. trian street is filled with shoppers, movie theatres, museum exhibits, while at other times the street is visits to cafés and restaurants Retail opening hours have been taken over by young skaters. as well as opportunities to meet liberalised, and many cities have other people. Organised musical seen an increase in the numbers The city and its urban spaces are and cultural events are available of cafés and restaurants many of characterised by having various alongside spontaneous activities which provide outdoor service. uses and users depending on time and socialising. Parks and squares City squares offer a variety of of day. Thus divergent groups with provide opportunities for sports or performances, music, concerts, different norms can use the same sitting quietly on a bench. Many street theatre and are the sites of space without any problem. But new housing units have been built, festivals and other forms of leisure conflicts or feelings of unsafety and the city is home to increas- activities. can also arise when different users ing numbers of people. Many go want to use the same city space at to the city to take advantage of The city as meeting place the same time, but for very differ- everything it has to offer and to be ent purposes. part of urban life. Familiarity with The city is a meeting place for the city creates a feeling of safety, many different people with widely Urban revitalisation but the city is also where the unex- divergent backgrounds, whether Extensive urban renewal has made pected happens. The place to meet they live in the city, work there or living in the city attractive, and new

10 the residents’ different lifestyles, norms, expectations and desires sometimes give rise to conflicts.

‘People are less accommodating. There is less tolerance today. Even though condi- tions in Vesterbro have improved, people complain more.’ (Copenhagen police)

Vesterbro in inner-city Copenhagen has been subject to major renewal efforts and general revitalisation which have attracted new resi- dents. The drug addicts who have long claimed the area near Maria Church for their own make resi- dents feel unsafe. In response to this public space has been fenced off. What was once public space has thus been converted into Young people in particular occupy city space. Some come occasionally, while others private space that excludes other come often, perhaps daily. The young are mobile and use the city’s various spaces for users. different purposes. Shown here: Nytorv square in Aalborg. Multifunctional city space housing and courtyard renovation ‘Urban renewal has allowed other clien- The political goal is to create have brought the housing standard tele to move in. The newcomers are well lively cities. In many planning up to the level of newer suburban organised and articulate with very high documents the visual, functional, areas. expectations and demands.’ (Copenha- recreational, cultural and social as- gen planner) pects of the design of streets and For decades Danish city centres squares and other public space were inhabited by a relatively In some cases young residents is being emphasised. Focus is on uniform group of residents: the stay in the city even when they improving city space with opportu- young and the old. Urban renewal start having children which change nities for changing and spontane- projects have converted small flats their needs and interests along the ous activities. Municipalities also into larger ones for families, which way. In other cases new residents organise activities, events and was possible because former move to the city from the suburbs, entertainment to make the city residents who had been rehoused bringing with them the norms attractive. All these initiatives draw did not want to return to their old upheld there plus the expectation in many users and accelerate wear flats. The sale of municipal hous- of peace and quiet. Buyers pur- and tear on the city. ing stock and the conversion into chasing high-priced city flats may cooperative housing has also have correspondingly high expec- The use of the city is not restricted changed the mix of residents. tations and demands. In any case, to the people who live there but

Although we use the city differently depending on our norms and values, we often have the same objective. Shown left, a pub in the Østerbro quarter of Copenhagen. Shown right, Vadestedet, a café and restaurant area in Århus.

11 Many new dwellings are being built in parts of the city, attracting new residents and changing the use of the city. This represents a new situation as well as new norms.

is open to everyone. Cities have This also means that problems have moved both sellers and buy- increasingly become a meeting can shift from one geographic area ers to Vesterbro and other parts of place attracting young people from to another. For example, police the city. Similarly, police actions to within the city, from the suburbs actions to stop sale of cannabis close down cannabis clubs, which nearby as well as distant regions. in Freetown Christiania (a partially often generate feelings of unsafe- The young often meet just to hang self-governing Copenhagen neigh- ty, have shifted the problems to out together, but there are also bourhood with semi-legal status) other districts. cases where they arrange to meet to and have a fight. That makes other users feel unsafe, but the problem is difficult to solve. If young people get word the police are on their way, they just move to a different area. Mobile phones enable them to quickly disappear from one place and reappear in another. That makes it extremely difficult for the police to find groups of young people who are disturbing the peace or who are committing crime.

‘The way children and young people communicate with each other, meet and

part is based on a social understanding Enghave park in Copenhagen is very much a multifunctional urban space. By day: and way of using the city that is new to sports, groups of pre-schoolers, old people, a supervised playground. By night: groups us.’ (Copenhagen planner) of immigrants, people arranging dogfights and cannabis dealers.

12 ‘People who live in the area call and say they don’t dare go out at night because of the aggressive dogs and groups of youth, as well as the people hanging around street corners in connection with cannabis dealing.’ (District manager, roads and parks service, Copenhagen)

One of the challenges of develop- ing good city space is that as a starting point it should accommo- date all users and meet all corre- sponding needs. Another challenge is that city space should be flexible and future-oriented in terms of use and users.

Safety and risks Sense of safety and security is This dark tunnel connects a park with the railway station in Aalborg. Pedestrian traffic highly individual. Some people feel is heavy during the day, but at night the area is deserted and some people hesitate to insecure about situations that bare- use the tunnel. ly affect others. The feeling can change over time and is influenced by recent events. Some people are unsafe. Some older women said and the police add that in some congenital worriers while others that they basically never go out at cases there is good reason to be are more robust. Personality, back- night, and in general the women on guard. Physical surroundings ground and personal experience who were interviewed felt more clearly influence the sense of strongly influence what frightens unsafe after dark than did the men. safety, and poor maintenance such us and makes us feel at risk. as litter, damaged benches, broken Dense closed space with few windows, graffiti and other types ‘People feel reassured and relieved when exits is considered unsafe and are of vandalism signal unsafe environ- the police turn up, but too much police places many users avoid. Poor or ments. Deserted areas and narrow presence isn’t good because then people no lighting reinforces the feel- empty streets also make many think there are problems.’ (Odense police ing of unsafety when it is dark, users uneasy. officer)

Different people react differently to situations that make them feel unsafe. Some take an offensive and constructive approach to the uncertain and risky aspects of life. Others try to reduce their sense of unsafety and insecurity by avoiding situations and places that make them feel vulnerable.

What creates unsafety? Overall, the users who were interviewed in the study felt safe moving about the city. They cited ‘personal familiarity with the area’ as one of the most important ele- ments of feeling safe and secure. Users expressed that the time of day has a major impact on how safe they feel, and that darkness Tall trees, dense bushes and low visibility fuel the fear that someone may be lurking alone gives a feeling of being nearby. Shown here: Enghave park in Copenhagen.

13 Socially marginalised people in people. Many users avoid places ers also said that knowing they are public space favoured by marginalised groups. unwanted in public space makes The people who were interviewed Planners and district park manag- them feel unsafe. say that drug addicts and alcohol- ers who participated in the study ics make them feel unsafe, as do say that many people turn to them Making space for marginalised the mentally ill who occupy or because they don’t feel comfort- groups even live in the city’s parks and able walking past a group of The four cities in the study take squares. Both police and district people sitting drinking in public. different approaches to the mar- managers report that there are ginalised groups that occupy public more mentally ill people in public ‘I think it creates a general feeling of space. Most have removed large space than there used to be. One unease if you see behaviour that is un- numbers of benches in recent reason is that mental hospitals expected and unmotivated. Something years to discourage unwanted have fewer beds available for this outside your own set of rules. What groups from taking over city space. group. Instead, a district psychiatry makes drug addicts and drunks unpleas- However, this diminishes the qual- scheme has been established un- ant is that they do things we really don’t ity of the same space, because it der which patients live in ordinary care to witness.’ (Copenhagen planner) prevents others from sitting down housing areas and are expected comfortably to enjoy the view or a to seek help or receive treatment Large groups of people in general sunny day. in their own homes. This leaves a make other people feel unsafe group of people who are unable to when they themselves are the ‘The harsh reality is that we have re- seek contact with the healthcare minority. This is also the case with moved up to two-thirds of the benches system and who are very much on large groups of young people who in public space over the past 20 years.’ their own. make a lot of noise. (Copenhagen planner)

‘A lot of the problems that end up in ‘It’s mainly a group of neglected youth Some cities have made conscious public space are actually social prob- ages 12-18 who create a lot of insecurity.’ efforts to separate users and lems. The roads and parks service is not (Aalborg police officer) creating playgrounds, football really equipped to handle them.’ (District fields, basketball courts, etc. whih manager, roads and parks service) The study shows that the user are separated from benches and groups that feel the most vulner- sitting areas. Focus is all together Many of the users find that mar- able and insecure are margina- on creating open spaces with good ginalised groups have a strong lised people themselves, who in visibility as experience shows that presence in public space and many cases have been attacked if trees and bushes are allowed to and feel excluded by the norms or subjected to various types of make the space too dense, mar- and rules set out by this group of harassment. Several of these us- ginalised groups take over such spaces, deterring other groups from using them.

Some cities have experimented with setting up shelters for mar- ginalised groups outside the city centre, and consider that a good solution. Others see marginalised groups as part of city life and have attempted to design space with them in mind. Thus local authori- ties have different views on where it is most appropriate to designate space or shelters for marginalised groups. One view is that it is bet- ter to keep them in the heart of the city, because an urban core is better equipped to handle many different kinds of people. Alterna- tively, some decision-makers focus Marginalised groups, including the homeless, feel unsafe about occupying city on moving ‘problem’ groups out of squares, which are ‘home’ to them. Local authorities take different approaches to the city centre. handling this group of users, but no one claims to have found an ideal solution.

14

Challenges, problems and conflicts owners and many users find it while some users seek diversity, The study shows that working attractive that the city is in high surprise, festivity and welcomes with, and planning for urban space gear and is used by many people. what is foreign and unknown, oth- presents numerous challenges. In contrast, some residents and ers have a need to control and limit Politicians, business and trade other users want the city quiet and accessibility to make the city safe, associations, restaurant and café peaceful. Another challenge is that familiar and predictable.

Challenges and conflicts Life in the city Quiet in the city Diversity and contrast Safety, predictability and familiarity

The study indicates a change in norms with regard to the use of public urban space: rather than considering others, today users are more likely to focus on their own needs and desires. The study shows that the develop- ment of social relations and networks is not necessarily rooted in the place we live, but rather that individual choices are made about whom and where to meet.

Development in problems and challenges

- from - to Consideration for other users Focus on own needs and desires Place based values and norms Selected meetings with like-minded Own responsibility Public responsibility Public space Private gated space

The study also shows that people are more likely to turn to public authorities to solve conflicts than to try and sort out problems with neighbours or other users. Safety isseus have brought about some distinct changes in public space, such as door intercoms and locked courtyards. There are also examples where public space near residential areas is fenced in order to protect residents from potential risk. This converts public space into pri- vate territory that bars other users from access.

Overall, changes in use and shifts in norms regarding city space present many challenges for the planning, revitalisation and use of urban space. It is also a challenge for the police and for operating and maintaining city space, particularly in terms of preventing crime and creating a sense of safety.

In many places, doors and gates are locked to prevent ‘undesirable elements’ from occupying courtyards. Shown: a renovated courtyard in the middle of Fredericia.

15 Crime and safety

This report aims to identify crime cooperation with other parties ers’ perception of the place, crime prevention measures and initiatives • Use and users in the city, the in the area, and the source of infor- for making urban spaces safer for ways different groups occupy mation about the selected places. users. It is based on interviews urban spaces, and the inter- A third theme was users’ feeling conducted with urban planners, viewees’ impression of how of safety and security at various district park managers, police and different users perceive the city times of day. A fourth theme was users of urban spaces in Copenha- from a safety viewpoint. users’ description of ‘good’ and gen, Odense, Århus and Aalborg ‘bad’ public places and squares. in an attempt to gain insight into The interviews with police focused the types of problem in the various on user groups, overall crime Together, the interviews and ob- districts and to explain why they rates, types of crime, police initia- servations provided input for crime arise. More specifically the tives and different crime preven- prevention and safety-enhancing purpose is to illustrate experienc- tion measures. Police were also measures. The study shows that es, ways of cooperating between asked about their cooperative municipalities are aware of crime the parties involved and lessons partners when dealing with young prevention recommendations to learned in relation to crime preven- people as well as marginalised open up urban spaces, make them tive measures. groups such as the homeless. visible and populate them. Howev- er, the study also showed that none The experiences of urban plan- In the study observations were of the municipalities pursued a gen- ners can be categorised into three made in the early morning, after- eral crime prevention strategy that themes: noon and evening, and passers-by systematically implements these were interviewed in relation to use recommendations. As a result, it • The design of urban spaces and of the eight urban spaces,. One was not possible to evaluate the the challenges relative to differ- theme was users’ general use and effect of initiatives in the eight city ent user groups routes around the city, whether spaces. The following suggestions • Crime prevention planning, they avoided particular places, and for improving safety and prevent- crime prevention strategies and if so, why. Another theme was us- ing crime are the sum of different experiences in the four cities rather than based on specific measures for selected urban spaces.

Routes, moving about and lighting The freedom to choose safe routes and have alternatives when moving about the city is crucial to the perception of safety. Good lighting is especially important in this regard. When discussing safe routes, a distinction should be made between necessary and optional movements. Focus on lighting is particularly important in areas that people have to use, for example, areas connecting cen- tral functions in the city such as the railway station and shopping zones. Other routes are chosen Many cities ban alcohol consumption, which means people cannot sit on a bench and freely as shortcuts – a narrow drink where in contrast users are allowed to drink in cafés and restaurants. The police alley, a deserted square or a dark rarely enforce this prohibition. The sign shown prohibiting the use of alcohol is in the park – places they do not need to centre of Nykøbing Falster. 16 The study shows that people compensate for lack of lighting by choosing alternative routes. The study also shows that good lighting creates a sense of safety and that planners should consid- er the safety aspects of lighting as well as the desired use of and movement within urban spaces. A walk throughout the city focus- ing on lighting and safety can be a tool to this end.

ing hours and at weekends.

The police have focus on being present when they know many When working with lighting solutions, planners can alter users’ routes by turning an people are going to congregate, optional shortcut into a main route. The photograph shows the Kongens Have park in such as at big events like football Odense. matches and concerts, or when go but choose of their own accord. planners should consider the de- many people are out on the town. The same lighting requirements sired use of and movement within However, the rise in reported do not apply to these areas, and the urban space and how lighting crime is evidence that this problem in relation to parks there is rather can be used to prevent crime and also occurs elsewhere. the need to consider the need for create sense of safety. There is a great deal of focus on seclusion when visiting parks. the extent to which video surveil- Eyes on squares and places lance prevents crime. The study Several municipalities are making Urban spaces, pedestrian streets showed that surveillance can help conscious attempts to improve and city centres that are aban- the police to solve crime, but also lighting, and their work has shown doned and deserted cause many that crimes such as violence, as- positive results. In some cases, au- people to feel unsafe. The goal for sault and vandalism often happen thorities initiated their own lighting many municipalities and planning after people have been drinking projects such as in Odense, where departments is to integrate differ- or using other substances and, in the safety and security aspects of ent functions in order to create a such cases, surveillance probably lighting were examined. lively environment. Attempts are has a limited effect on preventing A walk through the city can be the also being made to preserve hous- crime. Although video surveillance first stage towards creating an ur- ing in city centres so that these makes some people feel safe, it ban lighting plan. During the walk, quarters stay populated after work- can also create a false sense of security.

The study reveals a dilemma: to separate or to combine dwellings with other city functions such as restaurants and cafées. While the goal of urban development and planning has gradually become to mix functions in individual urban quarters and areas, the study shows that this blend also has a downside such as conflicts between various users and also an increase in crime and violence in particular that occurs when many people gather. Although populating urban spaces is good for people’s sense of safety, it also generates problems when a Focus on lighting is needed in places that people need to pass through to get from one wide variety of activities go part of the city to another. on simultaneously. 17 The presence of private residences around public squares means many people may be watching, a form of ‘surveillance’ that has a crime prevention effect. But if the square has lots of users, conflicts and crime may also result. Louise Square in Aalborg is deserted.

Closed spaces – open spaces Open spaces are a contrast to The study shows there are no Closed, non-transparent public closed spaces. Open, unfenced precise guidelines for working spaces may cause a sense of un- areas can be a problem because with open and closed spaces. ease but they also have qualities. they have no clearly defined Open, unfenced spaces offer un- A closed park can feel unsafe, es- boundaries. Consequently, such impeded views and an openness pecially in the evening, because it areas can act as transit spaces and that promotes safety. Closed affords few escape routes. Fencing loose the qualities of closed parks. spaces have other, recreational also means that certain groups can The study shows that some of the qualities that are lost if fences take over and dominate the space, safest and most pleasant places and plants are removed to create preventing others from using it. during the day are those people overview and openness. There However, other considerations find most unsettling after nightfall. is a need both types of urban speak in favour of closed, fenced- There is a need for a variety of space. in urban spaces. urban spaces – even those that seem unsafe after nightfall. The routes for getting from one place solution here is to offer alternative to another.

Urban spaces – maintenance or neglect Maintaining and refurbishing public One of the qualities of recreational areas urban spaces is crucial to our is that they can be screened off from the sense of safety. The study shows surrounding city, offering a much needed that lack of maintenance sets a oasis. Fencing can help block out noise vicious circle in motion and that and provide shelter and privacy, as well as making the place safe for groups like places that are not taken care off parents with young children. Shown often attract marginalised groups here: Enghave park in Copenhagen. such as substance abusers.

18 constant supervision, focus could private players alike. City planning be on particular areas and efforts cannot be viewed in isolation and, directed to places where things to be successful, often has to be are going in the wrong direction. carried out through broad collab- This requires that personnel keep orative efforts and sometimes in- an eye on what is going on. tegrated with social programmes. Planners also need to engage in dialogue with users – even so- Neglect and lack of supervision make The study shows that a vicious urban spaces susceptible to crime such circle rapidly gains momentum if cially marginalised groups like the as vandalism, drug sales and prostitution, urban spaces are not kept clean homeless – and thus strengthen which frightens and deters many users. and maintained. In addition, the individual user’s ownership of all urban spaces need ongoing urban spaces. Experience shows that it is pos- maintenance and supervision as sible to breathe new life into run- well as differentiated, intensive The police are working systemati- down urban spaces by renewing efforts at weekends and dur- cally to chart crime. They monitor and refurbishing them and adding ing the establishment of a new crime trends and launch police new functions to attract other urban space. The rising success efforts to critical ‘hot spots’ where users. Once it has been decided and use of cities have magnified crime is heavily concentrated. This to create a new urban space, the these needs. knowledge would be useful to success of the project will depend the planning departments of local on sufficient funds being allocated municipalities and help them to to maintain the area and prevent Dialogue and interdisciplinary target their efforts. However, this it from falling into disrepair. The cooperation exchange of knowledge would study also shows that special Interdisciplinary cooperation has require close teamwork between efforts are needed at weekends proved successful. It is a particu- police and local government when large numbers of users tend larly good approach to outreach authorities to focus attention on to leave piles of rubbish. and crime prevention initiatives high-risk areas. targeted at marginalised children The study shows that urban de- and young people where coop- velopment poses many challeng- eration is established between es requiring close cooperation the police, local authority social among a broad group of players, services, parents’ groups, schools, including the police and urban residents’ organisations and other planners. Interdisciplinary proj- associations. ects should be initiated alongside the work of planning, design- Analogous to this is the need for ing and operating urban spaces broader, more interdisciplinary and should be part of outreach Local authorities have had varying experi- initiatives between the parties ences with park supervision. Overall, programmes targeted at socially involved in the planning and opera- supervision has been found to have marginalised groups. a crime prevention effect as well as tion of urban spaces – public and creating safety. Signs in Enghave park, Copenhagen.

In many municipalities there are cuts in the supervision of public parks resulting in rubbish bins, plants and other items being stolen from parks. In some cases rubbish is dumped, which in- creases maintenance costs. The study shows that the presence of park attendants can have a positive effect and that intensive efforts are needed to promote ‘good user’ habits, particularly in the early phases of establishing a new urban space. Park attendants could carry out this function. Instead of Police GIS map showing crime hot spots.

19 ‘The good square’

Many factors determine whether velopment goals for urban spaces. interviewees who brought this up a square is experienced as pleas- Planners strive to develop multi- themselves. Many said they felt un- ant and attractive. First and fore- functional, multicultural and flexible safe near groups of young people, most, it not only has to do with city spaces that meet the needs of especially ethnic minorities. Inter- the square itself. The surrounding different users and offer opportuni- viewees also referred to certain areas, buildings and functions are ties for a variety of activities. This housing areas as ‘unsafe’, although essential to how people experi- means that use and users change, their only knowledge of these areas came from the media and hearsay. No-one had ever personally visited the housing areas in question. Interviews with users show that as- sumptions about dangerous people and places have a significant impact on their feeling of safety.

The study shows that the feeling of safety is related to notions of danger. Feelings of being unsafe when visiting certain urban spaces is rarely founded in actual experi- ence; rather, they have a media- created image and perception of places and people that pose dan- ger – perceptions that are present The good square in Piran, Slovenia. when moving about in the city.

ence the square. Last but not which is attractive to some people, Challenges and measures least, the square’s other users but causes others to feel unsafe. Spaces in cities have different have an impact on how the square functions and forms; for example, is perceived. The study shows that Users’ perceptions of risk parks, city centres and pedestrian users have a clear idea of what The study shows that users’ streets differ in their use and constitutes ‘good’ and ‘bad’ places perception of crime is based on layout. Many spaces have overlap- and city spaces. Overall, there is information from television, news- ping functions such as a café on broad agreement that a good, safe papers and hearsay. About half a pedestrian street or in the city place is one where there are many think crime rates have dropped or centre that acts as a meeting place people and a pleasant atmosphere. remained stable and that violence as well as a place to spend time. Good urban spaces are ‘places is the most common form of A park or a square can be a place with people and light’, whereas crime. The people surveyed had to meet, but can also simply be deserted squares and streets are not personally been the victims of a place people pass through on often considered unsafe. A com- crime or experienced any violence, their way from one destination to mon thread is that personal famil- with the exception of some of the another – a transit space. Some ur- iarity with a location makes people socially marginalised people. ban spaces function both as transit feel safe and secure. spaces and places to stay. Focus The study shows that users have in the study was on three different For many users, the familiar and preconceptions about ethnic types of urban space that com- predictable are inextricably linked minorities and housing complexes bined account for the bulk of space with the feeling of safety. This con- with a bad reputation. The topic of in a city: transit spaces, parks, and tradicts general planning and de- ‘strangers’ was important to the city centres/pedestrian streets.

20 Challenges and measures for the various urban areas

Challenges Measures Transit spaces Often anonymous and act Create activity zones in the primarily as pedestrian thor- space but ensure it remains oughfares. open with an unobstructed view. Open without clearly defined boundaries. Plan activities and events that give the space a new Do not invite people to stay; role and identity. attract marginalised groups that have nowhere else to go. Parks Attract many users in day- Illuminate main paths while time hours. Although parks maintaining the densely offer a haven in the city, after planted areas so people feel nightfall they assume a dif- safe. ferent guise, and their dense, enclosed design and lack of Build activity zones that at- overview and escape routes tract and keep different types can create unsafety. of users at different times of day. City centres/ Most towns throughout the Encourage inner-city housing pedestrian streets country have many users and mix residential with com- during the day, but many mercial and business areas. town centres and pedestrian streets are deserted once Create activities and func- the shops close. Abandoned, tions that attract users after deserted, poorly lit streets closing hours. create insecurity. Paradoxi- cally, ‘night on the town’ Investigate the most appro- activities can cause conflicts priate areas to place ‘night and insecurity. on the town’ functions.

21 The selected cities and city spaces The cities in the study were found- ed hundreds of years ago, and only limited changes have been made to their historic centres. The squares and parks, streets and neighbourhoods that connected the town can still be identified on city maps. A bird’s eye view of the city often clearly shows which routes people use to get from one place to another, for example, from the city’s rail and bus terminals to the city centre. Seen from above, the places that attract many people are also obvious, as are the places, squares and streets that are rela- Many people use Strøget, Copenhagen’s pedestrian street, and Amagertorv square. tively deserted. The countless shopping streets attract lots of people – including those who commit crimes such as theft and robbery. Copenhagen In Copenhagen the focus was on is perceived as a pleasant place older people visit. In the evening, Amagertorv, a square, and Eng- to stay or pass through because it the users are groups of young have park. Amagertorv, with its has good visibility. people who have arranged to famous stork fountain, is located in meet in the park. The park is often the city centre while the park is in Enghave park subject to vandalism and used by the city’s Vesterbro district. Enghave park in the Vesterbro dog owners who organise dog district of Copenhagen has many fights there. There is a brisk trade Amagertorv different users. Some are local in cannabis as well. Patrons of the Amagertorv in Copenhagen is people who work in the vicinity nearby night club Vega often cause a meeting place. It is a vibrant and use the park to sit on a bench trouble here. The life that unfolds square with performing artists and enjoy the sun or people who in the park in the evening makes and numerous other activities that walk the dog, while others are par- many local residents feel extreme- contribute to city life. Amagertorv ents with children who play in the ly unsafe. Immediately adjoining boasts cafés, which appeal to the park. The park has a supervised Enghave park is a square, primarily young and make it a hip meeting playground whose staff activate used by beer drinkers who come place. It also has a wealth of shops and play with the children. People every day. A circular hedge partially and is heavily frequented by tour- enjoy sport on the basketball court. screens the square, hiding it fairly ists. Lots of people gather here, at- Enghave park can de described as well from passers-by. The square tracting others who commit crimes a place that leads a double life, if is described as a safe place during such as theft, robbery and street not more. It has a daytime exis- the day but less so in the evening. robbery. Violence occurs later tence when children, parents and in the evening, especially when people make their way home from the pubs to the town hall square to catch a night bus or to the central railway station to catch a train. This is a problem throughout Strøget, the city’s main pedestrian street. It is typically drunks that are involved in violent incidents that mostly take place between people who already know each other or be- tween those who have met in the course of the evening. An opinion expressed by all the people inter- viewed on Amagertorv was that they felt safe on the square irre- spective of time of day. The square Although Enghave park is a green oasis in the city, it is a place some nonetheless avoid.

22 Odense In Odense, the urban spaces selected were Kongens Have, St Hans Square and the railway sta- tion square. These three adjoining areas are considered an integrated whole.

Kongens Have Kongens Have in Odense is a historic park, which, together with Odense Castle, is part of Denmark’s cultural heritage. Kongens Have is centrally located and connects the railway station with the city centre. The area thus functions more as a transit zone than a proper recreational park. A possible explanation is that the city has other more attrac- Drug dealing is one of the activities that go on behind the tall hedges of Kongens tive recreational areas, such as Have, Odense. Munke Mose. A very mixed group uses the park. Some people pass of groups of marginalised people tian Andersen on his travels, a through on their way to and from on the square makes them feel sculptural interpretation by an art- the city centre; groups of children unsafe and uncomfortable. Local ist; Bjørn Nørgaard. The square has and young people – many from authority planners describe the an underground car park. The area the nearby school – play ball here; square as slightly dark and dull, acts primarily as a transit space other people simply sit on a bench and would like to open it up to at- and a short stay zone, for example, enjoying the sun. Marginalised tract more people to pass through. when people stop to read the wall groups are also present, including The railway station square was newspaper on the façade of Fyens some visibly under the influence of built in 2005. It is an open, slightly Stiftstidende’s new media house. drink or drugs. elevated paved square with flights The interviewees generally feel of steps and benches, minimal safe using St Hans Square and the Kongens Have is relatively open, plants and a statue of Hans Chris- railway station square. but the inner area has rows of benches surrounded by tall hedg- es. A considerable amount of drug dealing goes on here. In the past, the park was the scene of numer- ous robberies, but a special action group was brought in as well as the city police patrol unit, which led to a drop in crime. Some male and female interviewees feel un- safe using the park after nightfall.

St Hans Square and the railway station square St Hans Church and Marie Jør- gensen’s School are located on St Hans Square. Between the church and the school is a car park used by the schoolchildren’s parents, churchgoers and others. Parents have complained that the presence The railway station square is used mainly as a transit space.

23 Århus Together, St Clemens Square, St Clemens Bridge and Vadestedet can be considered a single area on two levels. St Clemens Bridge is a continuation of the pedestrian street, Søndergade, and crosses Århus Å, the river running through the city. Vadestedet lies alongside the river below.

St Clemens Square and St Clem- ens Bridge The height of St Clemens Bridge gives pedestrians an unimpeded view in all directions. From one side, they can look down on Vad- estadet with its wealth of cafés and restaurants, while the other St Clemens Bridge affords a good view of city life by the river, but many people are de- side offers a view of Åboulevarden, terred from using the area under the bridge because they cannot see what is going on. the riverside boulevard. Users describe the square and bridge as because crowds of people gather insecurity’. The crime rate is fairly an area that they ‘like to visit’. here for various events such as low relative to the large number of the Århus Festival week in August- people in the area. Users describe Vadestedet September. Young people are the area around Vadestedet, St When Århus Å was uncovered at typically those who cause trouble Clemens Square and St Clemens the end of the 1990s, a special city and commit crime, and the police Bridge as a safe area and with area – Vadestedet – was created have special focus on the group ‘good places’ for passing the time on the section from Immervad to termed ‘young people who cause of day. St Clemens Square. Vadestedet houses a wide array of restau- rants and cafés, with the focus on providing opportunities for outdoor activities in summer. The area at- tracts tourists and locals alike. The clientele changes several times over a 24-hour period: during the day business people eat lunch here, in the evening young families out for dinner are the main users, followed by university students enjoying a café latte or a beer. Around 10 pm the students go home, and the slightly more ‘hard core’ user group takes over. It is only after 10 pm and into the night that problems arise. From end-May to end-June and again from mid- August to end-September, police are on special alert in the area Cafés and restaurants one after another at Vadestedet.

24 Aalborg In Aalborg, John F. Kennedy’s Square and Bispensgade, starting at Nytorv, were the areas selected for the study. John F. Kennedy’s Square is situated near two heavily trafficked streets, Jyllandsgade and Prinsensgade. Nytorv lies to- wards the Aalborg city centre, and the pedestrian street Bispensgade originates in Nytorv.

John F. Kennedy’s Square John F. Kennedy’s Square shows the characteristics typical of an area somewhere between a transit space and a park. The square pro- vides access to a long underground tunnel leading to Kildeparken. Front- Kennedy Square is primarily a place used by the city’s marginalised groups. ing Jyllandsgade and Prinsensgade are bus stops with bus shelters. visited by young people. Jomfru loud and moves around which is Dense traffic makes the area very Ane Gade and the Bispensgade often a reason that other users noisy and thus unattractive for shopping street are connected feel unsafe. However, the users spending any amount of time. and, according to the police, un- interviewed did not find Bispens- However, a ‘square within a square’ safe at night. gade an unsafe place to be. It has has been built – a circular place to good street lighting, and the shops stay with benches set off by a row Nytorv seems to have special are also lit up after normal opening of trees. A group of beer-drinkers significance for young people, hours. Nonetheless, there are a have adopted this circular space as a showcase where they go to few narrow alleyways and niches their daytime hang-out. This group be ‘seen’ and meet others. The where people can hide, and this have expressed great satisfaction young people on Nytorv are very can generate a sense of unsafety. with the square, describing it as a pleasant and safe place for meeting friends. Planners and police, who know the area well, say these regu- lar users do not pose a problem. However, a few of the passers-by who were interviewed said they felt uncomfortable and unsafe when passing the benches occupied by beer drinkers.

Bispensgade from Nytorv Bispensgade is a busy shopping street with speciality shops and cafés that bustle with life. It is a place where people stroll, shop, watch life pass by and observe the city. Jomfru Ane Gade, a side street to Bispensgade, boasts many restaurants and disco- Bispensgade and Nytorv are streets where people meet before going out for a night on theques, popular places frequently the town. Nytorv is a regional traffic hub and the terminus for many regional bus routes.

25 Common features of the urban spaces As mentioned in the foreword, the criteria for selecting the eight urban spaces was the high crime rate. Information on the type and extent of crime are registered in the electronic police filing system (POL-SAS). The Danish National Police Centre for Investigation Sup- port (NEC-DATA) integrates a map of the area (Orthofoto) with re- ported crime data. The geographic coordinates of the crime scene can be used to determine the extent and type of crime in specific parts of the city.

Maps of the selected city spaces show they have higher crime rates than neighbouring quarters. The types of crime are usually vandal- ism, violence, theft and robbery. These areas are also places where many people meet and gather, which is one reason for the higher crime rates. Physical features such as the layout and maintenance of streets, squares and parks also play a role for the extent of crime while also being vital to users’ perception of safety in the city.

26 Published by: The Danish Crime Prevention Council and the Danish Building Research Institute (SBi), Aalborg University

Authors: Helle Nørgaard, senior researcher and Sølvi Børresen, researcher both SBi

Photos: Chiliarkiv: front and back covers Thorkild Ærø: pages 9 top, 11 bot- tom, 12 top, 15, 16, 19 and 20 Pernille Arborg: pages 7, 8, 9 bot- tom, 10, 11 top, 12 bottom, 13, 17, 18, 19 bottom, 22-25. www.flicker.com/pho- tos/88187767@N00/347689246/ page 14

Layout: Ulla Skov, The Danish Crime Pre- vention Council

Printing: Prinfo Køge

Print run: 1000

ISBN: 978-87-88789-82-9 DKR no.: 08-401-0229

This publication can be ordered from: The Danish Crime Prevention Council Odinsvej 19, 2nd floor DK-2600 Glostrup Tel.: +45 43 44 88 88 E-mail: [email protected] or downloaded from www.dkr.dk / www.sbi.dk

Copying permitted with statement of source. © Foto: Sisse Jarner/chiliarkiv.dk © Foto:

Efforts to create ‘urban space for everyone’ are challenged by a dilemma of safety versus crime. This report describes the results of a study of city life and users’ perceptions of urban space.