VANDALISM AND OUTDOOR RECREATION: symposium proceedings

PACIFIC SOUTHWEST Forest and Range Experiment Station

FOREST SERVICE. U. S.DEPARTMENT OF AGRICULTURE P.O. BOX 245, BERKELEY. CALIFORNIA 94701

USDA FOREST SERVICE GENERAL TECHNICAL REPORT PSW- 17 I1976 Alfano, Sam S., and Arthur W. Magill, technical coordinators. 1976. Vandalism and outdoor recreation: symposium proceedings. USDA Forest Serv. Gen. Tech. Rep. PSW-17, 72 p., illus. Pacific Southwest Forest and Range Exp. Stn., Berkeley, Calif. Resource managers, law enforcement officers, designers, and social scientists provide 24 papers giving an overview of vandalism on outdoor recreation areas; a measure of the difficult control problems which must be solved; some insights for design of buildings, fixtures, and site layouts to reduce or repel vandalism; and a profile of vandals, with respect to the potential for reducing their activities through understanding of social-psychological factors. Recommendations prepared by panelists and symposium participants summarize the views presented and suggest measures for control of vandalism on outdoor recreation areas. Oxford: 907.2:U 343.22. Retrieval Terms: outdoor recreation areas; vandalism; law enforcement; design; social factors.

Technical Coordinators

SAM S. ALFANO is recreation staff officer, Los Padres National Forest. He earned a bachelor of science degree in forestry in 1954 at Utah State University. His work in outdoor recreation began on the Angeles National Forest in 1957 and he also served on the Sequoia and San Bernardino National Forests before his assignment to Los Padres in 1966. ARTHUR W. MAGILL is principal resource analyst in the Station's Land Use and Landscape Planning Methodology Research Work Unit, assigned to study of resource impacts, human behavior, landscape analysis, and urban forestry. He holds degrees in forestry from the University of Washington (bachelor of science, 1957) and the University of California, Berkeley (master of science, 1963). He joined the Station staff in 1957. VANDALISM AND OUTDOOR RECREATION: symposium proceedings

Sam S. Alfano Arthur W. Magill Technical Coordinators

CONTENTS

Page

Preface ...... 1 Recommendations ...... 3

The View from the Field

Vandalism~AnOverview...... George A. Kenline

Vandal ism on the Santa Lucia District ...... John Blake

Vandalism on the Mt. Pinos District ...... James Hunter

Vandalism in Desert Areas ...... Mike Wintch

Vandalism in the Channel Islands National Monument...... Ronald W. Sutton

Vandalism in California State Parks ...... Thomas Killer

Vandal ism in a City Park...... Richard Samp

Vandalism in Organized Camps in California...... Patrick C. Dickson

Law Enforcement

Vandal ism and Law Enforcement on National Forest Lands...... Thomas A. Hoots

Vandalism: The California State Park Approach...... Jerry Morrison Page

Vanda1ismat"RedRock" ...... 25 John C. Einol ander

Law Enforcement and Vandalism in Our National Parks ...... 27 Nicholas Whelan

A Magistrate's View of Vandalism...... 29 Willard W. McEwen

CreativeJustice...... 30 Glenn Hampton

Design and Vandal ism

The Designer as the Vandal...... 34 Michael Morrissey

Control of Vandalism~AnArchitectural Design Approach...... 35 John Grosvenor

Design of Campground Facilities ...... 37 Briar Cook

Des ign vs. Vandal ism...... 39 Arthur C. Danielian

Preventive Planning to Reduce Vandalism ...... 42 H. Ernest Reynolds

Socioloqy of Vandalism

Vandals Aren't All Bad...... 46 Michael L. Williams

TheMessageofVandalism...... 50 Arthur W. Magill

A Psychoanalytic View of Vandal ism...... 54 Robert J. Sokol

Vandalistic Forest Fire Setting ...... 58 William S. Folkman

Control of Vandalism in Recreation Areas~Fact, Fiction, or Fol klore? ...... 62 Roger N. Clark PREFACE

Vandal ism is taking an increasingly big destruct ion wrought by "phantom" vandals and bite out of the funds needed for protection of "types" of vandalous acts. Vandalism is and maintenance of recreation facilities in variously described as littering; disturbing southern California. The problem is not the peace; damaging or destroying vehicles, limited to the southern portion of the State buildings, or other property; starting wild- or even to Cal ifornia as a whole~itexists fires; chopping down or mutilating trees and nationwide. In 1974, $1.5 million was spent shrubs; theft; and defacing objects with to correct vandalous damage and littering on graffiti. Managers have tallied the costs of the 17 National Forests in California, but vandalism, and they have been innovative in $7.5 million was the cost to the entire Na- dealing with the problems, but they admit to tional Forest System. Agencies other than a lack of sound solutions that are general ly the Forest Service are also paying the cost applicable. They are seeking assistance in of vandal ism. The Cal ifornia Department of effective control of vandals. Parks and Recreation reported $87,000 worth of damage in 1975, but because considerable Resource managers work closely with law vandalism goes unreported, actual annual enforcement officers. Unfortunately, catch- costs have been estimated as high as $180,000. ing a vandal is not simple, for all too The U. S. Bureau of Land Management has esti- often, the act is unobserved and the vandal mated damage as high as $250,000 per year; is gone before an officer arrives. Several although that is much lower then the Forest resource managers, a law enforcement officer, Service's costs, the Bureau has fewer faci 1- and a magistrate have expressed, in these ities and they are more widely distributed. proceedings, their frustration in dealing In general, vandal ism is increasing for with vandals. Some officers suggest stronger municipal, State, and Federal agencies as police control and others suggest avoiding a well as for private landholding companies. ''hard approach to law enforcement. Some agencies have trained resource managers to be Resource managers throughout the nation law enforcement officers, whereas other agen- are searching for the meaning behind vandal- cies do not want managers to assume the re- ous acts, hoping that through reason and sponsibility. The obviously conflicting understanding, they can find ways to stop the viewpoints strongly suggest the need for seemingly endless destruction, theft, and greater understanding and more uniform1y littering. The Outdoor Recreation Vandalism applicable approaches to law enforcement. Symposium, held March 26-27, 1976 at Santa Barbara, Cal ifornia sponsored by the Los Architects, landscape architects, and Padres National Forest of the Forest Service engineers are faced with the dilemma of de- and the Southern California Section of the signing sites, buildings, and facilities that Society of American Foresters, represents a are vandal -proof yet attract ive and serv ice- step toward an organized, interdisciplinary able enough to not invite vandalism--more approach to the search for solutions. The desirably, that are so "in tune" with human symposium has drawn upon the expertise of needs that vandalous acts do not happen. foresters, sociologists, criminologists, architects, park planners, psychologists, The sociologist-psychologist perceives landscape architects, and recreation techni- vandal ism as a social problem that is sympto- cians to define the impact of vandalism on matic of society's failure to provide for the (1) the physical resource and the user pub1 ic, basic human needs of a segment of the pub1 ic. (2) the problems of law enforcement, (3) the Unfortunately, no universal answers are avail- opportunities for control through facility able now or l i kely to be. Understanding of and site design, and (4) the socio-psycholog- the diversity of individual motivation--of ical profile of vandals and the potential for both the vandal and the manager--is a neces- social control. sary step toward discovery of diverse solutions. The "man-on-the-ground ," the recreation resource manager, daily faces the consequences By summarizing the papers of the panels of vandal ism. He usual l y regards acts of van- in each problem area, and securing audience dalism as "senseless" or "wanton" and cannot interaction, we have developed a number of understand why some people deface or destroy recommendations. facilities provided to give them pleasure. In this collection of papers, several "men- We hope that resource managers and others on-the-ground" offer their views of the will try to follow the recommendations. Furthermore, we hope they will record and Service, U.S. Department of Agriculture, and report successes or failures, thus giving the Society of American Foresters. Paul Rich, some measure of the results of the symposium. educational chairman, Southern Cal ifornia Such feedback will help to determine the de- Section SAP, served as symposium co-chairman. sirabil ity of future meetings, and may also The fol lowing National Forest pub1 ic informa- suggest add itional research objectives. tion officers served as panel moderators: El 1 iott Graham, San Bernardino; David A. This symposium on vandalism brought Kimbrough, Angeles; Grover Payne, Cleveland; together representatives of the Forest and Edward Waldapfel, Los Padres. RECOMMENDATIONS

There are currently no universally ¥Conside the full range of methods appl icable solutions for vandal ism. available to managers for reducing the entire Develop solutions to meet the de- problem of deviancy. mands of spec ific locat ions and conditions. ¥Avoi rules that merely serve managers' convenience, and design, plan, and manage to Publ ic Involvement and Planning satisfy the interests and needs of the user cub1 ic. ¥Provid opportunities for the pub1 ic to express their opinions and ideas about out- ¥Develo and use training programs to door recreation planning. It may be important indoctrinate ful I-time and part-t ime personnel to involve users in the development and main- in pol icy, law enforcement, and personal ap- tenance process. oroaches to users.

*Do comprehensive site planning on the ¥Se up a sound training program and an site, with input from site managers, design- effective career ladder for outdoor recreation ers, and law enforcement special ists. Use personnel. opinions and ideas from the public in the planning process. Regulation, Cooperation, and Law Enforcement

Environmental Education @Establish and use a uniform code of regulations for all agencies in a coordinated ¥Explai to visitors how various activ- effort to reduce vandalism. ities violate human rights or damage or de- stroy faci 1it ies and natural resources. ¥Se up annual review by law enforcement and resource agencies of their respective au- ¥Develo programs to show vis i tors how thorities and responsibil ities to assure a to use various recreational facilities and clear understanding of their respective roles. related natural resources in a manner that in- creases their enjoyment without damaging prop- ¥Increas availability of law enforce- erty and resources or violating the rights of ment personnel while minimizing costs by others. utilizing the Sheriff's Reserve Deputy pro- gram. Reserves are volunteers who work with ¥Us schools and mass media to inform regular Sheriff's Deputies during weekends and all levels of the public about proper and con- other heavy workload periods. siderate uses of outdoor recreation areas. The success of educational programs is depend- Improve Agency Image ent on succinct messages that avoid profes- sional jargon, on proper audience identifica- @Promote a favorable public service tion, and on selection of the best media or image by other conveyance to reach the desired aud i ences . improving employee image of the agency (bu i 1 d stronger esprit de ¥Initiat news coverage by recreation corps ) personnel on items of public concern without relyinq on the news media to write the explaining to visitors the reasons art icles. for agency actions

Manager Attitudes, Involvement, and Training providing complete outdoor recrea- tion information at each recreation ¥Secur personal involvement of manage- area ment personnel in solving the vandal ism prob- lem. It is essential for managers to real ize maintaining a low profile but fair, that they may actually encourage vandalism firm, and impartial policy in law throuqh accepting poor site and facility de- enforcement. sign, providing recreational opportunites that are meaningless to users, or failing to under- stand and relate to the needs of users. Court Actions rangers, caretakers, or pol ice by

¥Tak law enforcement action on ob vious schedul ing work hours to coincide violations. with peak use periods and times of greatest confl ict ¥Mak the names of convicted vanda Is and their punishment known through the media avoiding regular patterns of patrol

Â¥Encourag courts and magistrates to using the task force concept (3 or 4 sentence misdemeanor offenders to work on out- officers at a time) to saturate door recreation areas. problem areas.

Management Control Act ions ¥Us volunteer or other manpower pro- grams to provide campground hosts (care- ¥Reduc conflict between types of recre- takers). ational activity (groups vs. single families, motorboats vs. sailboats, fishermen vs. water ¥Conside hiring a known vandal, who is skiers, etc.) by assigning them to separate respected by his group, to be a caretaker or areas. patrolman.

¥Provid firewood at the campground Des ign whenever practical. ¥D not overdesign; less elaborate fa- Provide safe areas for target practice cilities would be adequate. with firearms. 'Design toilet buildings to ¥Provid free interpretive materials at the site for the use and enjoyment of meet the needs of the user visitors. minimize vandal ism. @Provide evening campfire programs. ¥Desig two-unit vault toilets with a ¥Us signs that convey positive minimum of 400 square inches of venting. messages. ¥Promot awareness by both producer and ¥Establis or continue the incentive consumer that some manufactured products 1 itter control program to encourage positive (motorcycles, jet skis, snowmobiles, hang campground behavior by both chi ldren and gl iders, etc.) are potentially destructive to adults. the resource and annoying or intrusive to nonusers. Controlling Access Research Issue permits or use a reservation - system to identify individuals, families, or ¥Continu research and testing of design groups, thereby increasing control and making concepts. users accountable for their actions. ¥Re-evaluat the role of private enter- (Where possible, use entrance stations prise in building and operating recreational to control access to recreation sites. developments on pub1 ic lands.

¥Charg an entrance fee for site main- ¥Conduc practical , on-the-ground re- tenance or require a cleanup deposit, to be search on the diversity, intensity, causes, forfeited if users fail to leave a clean camp. and potential controls of vandalism on outdoor recreation sites throughout southern Califor- ¥Provid gates to control entry when a nia and if possible the entire southwest. The campground is full or after 10:OO p.m., but various agencies concerned should cooperate on which permit depart re in the event of an research projects. emergency. ¥Conduc research to help solve problems Increase Visib lity and Surveillance of dispersed recreation, particularly vandal- ism. ¥Desig sites to be visible to patrol- 1 inq officers.

Â¥ ncrease the visual presence of THE VIEW FROM THE FIELD Vandalism---an Overview

George A. ~enlinel

In the Bronx Zoo, New York, there is a yearly, like a plague of locusts, careless sign above a window that says, "See the most visitors not only litter and trample, but destructive animal alive!" People rush to worse still, deliberately destroy and deface the window to have a look. The window is those very natural features which they journey equipped with a mirror. The experience is to see and enjoy. both revealing and condemning. Man has been and continues to be destructive in many ways. Let us consider some of the forms and I would like to explore with you some of the types of vandalism we in the field see recur- ways man, woman, and child express themselves ring on a season-to-season if not a day-to-day when using the mountain areas of southern basis. And for purposes of discussion, let's California. These expressions of behavior try to give them motive and meaning. will be labeled as acts of vandalism, that is, the illegal destruction or defacement of pro- The first type of vandalism is done in perty belonging to someone else. the course of, or in order to, acquire money or property. This includes junking or strip- The mountains of Southern California are ping for resale, collecting souvenirs, and just unique to millions of people who find them a plain looting. welcome contrast to the blighted urban set- ting in which they live. The mountains are A second type is damage done as a con- still a place where you can see green trees, scious tactic to advance some end. The end in rocks, blue sky, fresh water and stars at mind might be to draw attention or gain pub- night. Most are located within 1 hour's licity for a particular cause. travel of foothill communities and within 2 1/2 hours of the Los Angeles metropol itan A third type uses property destruction as a rea . a form of revenge by someone who feels un- fairly treated. This form of vandalism is Historically these mountains have sat as much safer than punching the ranger in the an island above a sea of desert, brushland, nose. smog, noise, and congestion. But the late lj60's and early 1970's saw the character A great amount of damage is carried out and quality of the mountain experience change. by preteenage children as part of their play And the modern camper bears little resem- activities. Many parents regard the camp- blance to his forefather. He's well ground as a place where children can play in equipped, highly mobile, and leaves more than a healthy environment. The dangers of the his footprints. city are left behind; nothing can hurt the children, and there is nothing the children Assuming this is a representative group, can hurt in return. The burdens of parental let me ask you some questions. Do you throw supervision can be traded for quiet hours of your trash into your neighbor's yard? Do privacy as children run off to play by them- you clutter up his flower beds with empty selves. An the children are alone, much more beer cans and pop bottles? Do you litter his so than in their own neighborhoods. The open nice green lawn with used tissues, disposable street is replaced by screening woods. Watch- baby diapers, newspapers, paper bags, and so ful neighbors are exchanged for indifferent forth? Do you chuck rocks, bottles, and inner strangers dutifully following the rule of non- tubes into his fish pond? It is most unlikely involvement that prevails in public places. that you do. You doubtless have respect for Preadolescent children probably feel no sense his property and know that he would object to of responsibility toward park facilities, and such behavior. Since you respect your neigh- their predominantly urban upbringing provides bor's property and would not think of littering few lessons in behavior appropriate to the it with junk, do you have the same respect for natural environment. Under these circum- public and private lands in the distant moun- stances, it is almost inevitable that damage tains? Apparently not everyone does, because will occur, motivated by curiosity and often by the spirit of competition.

Recreation Assistant, Big Bear Ranger The findings of a study done by Campbell, District, San Bernardino National Forest, Hendee, and Clark in 1968 at a Pacific North- Forest Service, U.S. Department of Agriculture, west developed site are typical of our moun- Fawnskin, California. tains. Here is their account: Two boys.. . approximately 12 years sider can't be explained any other way than to of age, came to the campground ac- say it is malicious mischief in which persons companied by their mother and three or groups of persons combine hostility with fun. younger siblings. Their father re- This tyoe of vandalism is encouraged to a degree mained in the city and visited only by our society. Events such as Halloween, fra- on weekends, a fairly common arrange- ternal initiations, semester breaks, and the ment. Upon arrival, the boys imme- aftermath of sporting events are examples. And diately left their mother, who was the same kind of mentality accounts for what is quite happy to be relieved of enter- known as "graffiti," the crude writing of names, taining her two children. During slogans, obscenities, and vulgarisms on facili- the first two days in camp, the ties or natural features. Graffiti differs from boys wrote obscenities on the wall other forms of vandalism in that it is expected of one washroom, plugged the toilets (for example in a pub1 ic restroom). Lavatory in a second, broke bottles in the attendants and caretakers of publ ic buildings beach area, chopped down a tree, regard the cleaning of wal Is as part of their tore down eight metal signs on the daily routine. nature trail, and became lost over- night in the woods. Other than Why must a pub1 ic toilet cost $28,300? their overnight adventure, their Simply because the ladies and gentlemen who use activities went completely unob- it often are not "ladies" and "gentlemen." You served by other campers or campground might say 'a comfortable one can be built for personnel. One should not conclude, half the price.' True, but publ ic restrooms however, that these boys were nat- must be vandal proof. We are forced to bui Id urally malicious. When one of the them to withstand vandalism of the most sense- park rangers suggested they use part less kind, and it costs more. Lavatories are of their free time picking up trash of heavy cast iron, shower heads have tamper- and litter, they plunged into the proof bolts, lighting fixtures have double pro- activity with equal enthusiasm. tection against breakage, showers are activated For destructive play, the old by buttons because shower handles would be adage, "blame the parent, not the torn off within a few days or perhaps before child," has more than a grain of the building could be completed. The restroom truth. Considerable money could be is made of concrete block construction because saved each year if parents assumed some people have a habit of stripping lumber greater responsibility for the from wooden structures. activities of their children while in pub1 ic parks. Vandalism is costly. But any figures are grossly understated: the cost of services and Much damage can be attributed to un- benefits foregone until facilities can be made thinking but well-intentioned adults. For operational again, of maintaining patrols and example, campers sometimes solved the per- security forces, and of many other intangibles sistent problem of scarcity of firewood by are seldom included. For example, vandals theft from other campers or by cutting down a typically make public phones unusable. Besides nearby tree, with no thought to the conserva- the property damage, there is a toll in human tion implications of the act. Nails were ham- tragedy here. A young girl died when her father mered in trees to store camping equipment off was unable to summon a doctor from a public tele- the ground; cars and trailers were driven off phone damaged by vanda ls. parking pads and into vegetated areas for the sake of convenience; fires were built outside I'd like to share with you my first ex- fireplaces by persons unaware of danger to perience with vandalism as a public employee, timber-dry woods; trailer sanitary tanks were and maybe shed some light on who does this sort emptied in dumping stations clearly marked of thing. On the Cleveland National Forest, ''closed" or "full" as people sought short-run along the old Highway 80, Ellis Wayside Rest is solutions to their immediate problems. The administered as a day-use facility by the Forest point is that basically responsible but ill- Service. The site is on a hillside covered with informed and temporarily inconsiderate people boulders festooned with graffiti. On a Sunday create many problems in public parks. afternoon the Ranger, who had made up his mind to catch someone, went there and waited. It The final type of vandalism we will con- wasn't long before a car pulled up with a man and woman inside. The woman got out, opened the trunk, removed paint and brush, and headed Campbell, Frederick L., John C. Hendee, and for the rocks. After she painted her name on. Roger Clark. 1968. Law and order in pub1 ic a large boulder, the Ranger intercepted her at parks. Parks and Rec. 3 (12) 28-31, 51-55, the car. She was very embarrassed, and riqhtlv i IIus. so. She was a mature, well dressed, and well educated woman. Her husband, a Navy captain highlight the law enforcement problems-- and ship's commander in San Diego, sitting in consider the destruction of municipal property the driver's seat, was at a loss for words. Why in New York, where there were more than 100,000 had she done it?--she had always had the urge complaints of vandal ism but only 3216 arrests but never before the opportunity. This one were made. Many offenders get off with just experience points up the diverse backgrounds and a light reprimand. ages of the so-called vandals. The central reason for nonenforcement is What is behind it? Many explanations one that applies to vandalism as a whole-- have been given. "All crime is up, every- the fact that this is one of the most safe and where, and this is just part of it," have anonymous of offenses. There is no oersonal said some authorities. Vandalism and Vio- complaint, nor any property to carry or dis- lence3, a special report developed by the pose of. staff of Education U.S.A., points to improper instruction and adult behavior as contributing Consequently, detection rates are low and factors: "The Boston Tea Party is often held most damage is not thought worth bothering a- up to students as a 'patriotic act,' a sort bout. Although the total cost might be con- of punishment for the British in retaliation siderable, each individual act is too trivial for an onerous tea tax. Yet what happened was to respond to in any other way than by ignoring pure vandalism perpetrated by grown men." it.

When taken together, the various reasons Employees complain, "I don't get it. We given seem to indicate that vandalism is often give them something free and they destroy it." a protest. Stanford University Professor A feeling of hopelessness has become general. Philip G. zimbardo4 explains: "Vandal ism is Here's a typical feeling expressed by a recrea- rebel 1 ion wi th a cause." The cause, he says, tion worker after reviewing four pages of is "social indifference, apathy, the loss of notes on repairs needed in District developed community, neighborhood and family values." sites. "It's nothing to get hysterical about. It is true that practically everywhere young It's a housekeeping problem, a part of managing ones see loss of values--lying, cheating, and public facilities. One minute it upsets you, hypocrisy are rampant, even among world 1 eaders. the next minute you think 'that's life.'" This breeds hostility in youngsters against "the establ ishment" and vandal ism is one way We've looked at a number of examples of they vent their feelings. vandalism. Maybe we should try to draw some preliminary conclusions as one might do Indifferent, uncaring parents are per- who works with the problem in the field. haps the main cause of vandalism. And this abdication of responsibility by parents is 1. The property destroyed is much more noted in practically every community. As a likely to 'be publicly than privately owned. result, rich, poor, middle class, and both This is due .not just to the greater oppor- black and white youngsters are all deeply tunities to attack public property, but also involved in vandalism. A study of more than to its anonymous nature and symbolic value. 3100 teenagers from "every major segment of The target is depersonalized and not easily the Illinois adolescent population" revealed identified with the idea "it belongs to them." that nearly one in every three had engaged in property destruct ion! 2. Some patterning in the physical characteristics of the target is also apparent: Wanton destruction by vandals is hurting the property tends to be derelict, incomplete property owners, increasing the cost of govern- or badly kept. Again such property might be ment, pushing up taxes and insurance rates, and seen as fair game and not really belonging to adding hundreds of millions of dollars to the anybody. high cost of living in America. However, to 3. Areas of high vandalism can be dis- tinguished by their social characteristics. Wells, Elmer. 1971. Vandalism and violence: Sites close in and within easy access to Innovative strategies reduce cost to schools. lower income groups receive more than their Education U.S.A. Special Report. 59 p. Natl. share of vandalism. Sch. Publ. Rel. Assoc., Washington, D.C. 4. Studies of the social characteristics of the offender are important to counteract Zimbardo, Philip G. 1973. A field ex- the image of homogeneity which assumes the ex- periment in autoshaping. In Vandalism. istence of something like a "vandal type" re- P. 85-90, illus. Colin ward, ed. Van Nostrand sponsible for all sorts of vandalism. Clearly Reinhold Co., New York. no such personality type exists. 5. Groups of young people in late adoles- adequately and independently with cence, enjoying the relatively inexpensive bene- his inner drives and with outer fits of public facilities, are prone to partici- pressures. It prevents the child pate in malicious, apparently senseless vandal- from becoming a victim of anarchic I sm. impulses, narcissistic indulgence, and a false sense of omnipotence. How can this rising tide of vandalism be The parent must employ this dis- stemmed? What is needed? Many efforts are cipline in a manner that will lead being made to reverse the tide. Dif.ficult- to self discipline." to-break plastic is replacing glass in win- dows. Hard-finish epoxy-resin paints that I would like to conclude by reading from resist markings with felt-tip pens, lipstick, an article in the San Bernardino Sun, titled- and crayons are being used on interior walls. 'Vandalism may not be all bad." Federal New buildings are being built like fortresses, officials here are poking holes in the theory with few, if any, exterior windows. Alarms, that vandalism is all bad. They have found fences, night lighting--all of these measures that bullet-riddled signs are stolen less and more have been employed. Yet vandalism often than unscarred ones. After losing four Increases. or five brand new off-road signs in as many months, Bureau of Land Management rangers Inthe final analysis parents must decided early this year to punch holes in the be parents. They cannot slough the signs before installation. "The signs with Job onto someone else. And they very holes just don't look as good to thieves who definitely do have an obligation to want them for their wall at home. Before holes, ...discipline.... Its chief value the signs lasted about 10 days, since becoming 1ies in strengthening the (personal- holey they've stayed up to three months." ity) so that the adolescent can deal

Vandalism on the Santa Lucia District

John ~lakel

The staff of the Santa Lucia District of is evident. Rifles, shotguns, and pellet guns the Los Padres National Forest would like to have been used to riddle toilet-walls, garbage think that this District has a better forest cans, signs, and even trees. People without guns user than some of the other Districts of Forests. have used rocks, sticks, axes, large hammers, and Our vandalism problem has been small in the past, even vehicles to destroy buildings, tables, signs, but it is increasing even though our District is and even gates made of heavy metal pipe. People quite isolated from large population centers. have dumped litter and garbage on the ground, The nearest and largest towns are San Luis Obispo stolen tables, and used all types of wooden facil- and Santa Maria, but both are relatively small. ities for firewood. Obviously, wood structures Three State highways and orie interstate highway are easily damaged, but we have also learned that provide 1imi ted access to the District. fiberglass is a poor material for constructing campground fixtures. Despite generally average-type visitors, a favorable location, and limited access, our total The following measures may help to discour- costs due to vandalism came to $4,213 during age vandalism in wildland areas: 1975. Litter and trash pick-up costs amounted to $18,700. The predominant types of vandal ism 1. Reward persons supplying information that we have experienced are: (l,)shooting, leading to the apprehension and conviction of (2) chopping, (3) graffiti, and (3) stealing. The persons committing vandalous acts, by giving them extent to which public facilities can be damaged the fines imposed against the guilty persons-

2. Require forest visitors to register be- Recreation Technician, Santa Lucia Ranger fore entering recreation sites. District, Los Padres National Forest, Forest Service, U.S. Department of Agriculture, Santa 3. Designate shooting areas for people to Maria, California. use. Cooperation with sportmen's clubs might contribute to successful establishment of shoot- caretaker-registrar for campgrounds. I ng areas. 6. Use Visitor Information Service tech- 4. Permit senior citizens free use of camp- niques through public presentations to discour- sites in return for watching the campground and age vandalism. maintaining the area. Full-time occupancy by re- sponsible persons may discourage vandalous acts. 7. Utilize the mass media (TV, radio and newspapers) to disseminate information to the 5. Establish positions for the handicapped public concerning vandalism and to campaign and the senior citizen to act as a combination against it.

Vandalism on the Mt. Pinos District

James ~unterl

The Mt. Pinos Ranger District is located attracted. Fortunately, the organizers 5 miles west of Interstate Highway 5, approx- of these events are required to provide nec- imately 1 hour driving time from the fringe of essary sanitation facilities, as well as re- the Los Angeles metropolitan area. The moval of refuse. The majority of offroad District includes nearly 500,000 acres of land vehicle use, however, is not by organized which has extremes in topography, as well as groups. It is the unaffiliated users who are weather. The elevation ranges from 3000 feet responsible for the considerable litter and to 8831 feet at Mt. Pinos, the highest peakon vandalism problems of the District. Between the Los Padres National Forest. Temperatures 20 and 30 cubic yards of trash are removed range from below freezing in the winter months from Ballinger Campground every week. to 100 degrees and above during the dry summer months. Considerable damage can be done by two- wheel- and four-wheel-drive vehicles during Because of its high elevation, the area the wet periods of the year. No determination becomes a snow-bunny haven during the winter has been made, at this time, of whether this months. Thousands of visitors from the Los damage is inadvertent or caused by those Angeles basin flock to the snow-covered slopes. enthusiasts who want to pit their driving Use by 10,000 to 20,000 visitors during a skills against the elements. The rutted winter weekend has a tremendous impact on roads and scored hillsides soon become water existing recreation facilities. For ex- collection troughs that accelerate soil ero- ample, garbage-can lids are used regularly to sion. The impact of these vehicles can be slide on, and garbage cans are stolen or judged by the fact that their owners ac- damaged beyond repair. Most important, tons counted for 104,358 visitor days of use in of litter are left on the slopes to be cleaned 1975. up by District personnel. In 1975, use attrib- uted to snow-play was 53,100 visitor days, Acts of negl igence and vandal ism are not and the cost of litter cleanup was $30,000. wholly attributable to offroad vehicle use. Vandalism costs were $14,430; the costs of the Campers also do their share of destruction, closely related total law enforcement needs such as tipping over toilet buildings, break- were $1 1,382. ing stove tops, building firerings, and destroying campground signs. A total of Another major dispersed recreation activ- 250,300 visitor days were attributed to camp- ity is offroad motorcycle use. Last year this ing in 1975. activity accounted for 250,000 visitor days. On special occasions, such as permitted "en- In recent years we have noticed a rapid duro" events, some 2000 to 3000 people are increase in promiscuous shooting. All objects become targets for shooters. Garbage cans, campground entrance signs, visitor registra- Recreation Technician, Mt. Pinos District, tion signs, fireplace chimneys, and toilet Los Padres National Forest, Forest Service, doors and vents have to be replaced because of U.S. Department of Agriculture, Frazier Park, shooting. Some visitors even test their shoot- California. ing ability by felling a tree by successive shots at the trunk. These are pure wanton acts share of vandalism. I hope that we can gain of destruction. some insight on this serious problem so that law-abiding citizens can again enjoy their As you can see, we have had our undue outdoor recreation experience.

Vandalism in Desert Areas Mike Wintchl

The story of vandalism in the California think relate directly to the attitude developed desert is undoubtedly similar to many others by each individual member of the American out- that might be told by Federal, State and local door-recreat ion-seeking pub1 ic--"to vandal ize agencies charged with managing outdoor recrea- or not to vandal ize." tion lands and facilities. The first took place less than 100 miles In the desert, representatives of the from downtown San Diego, adjacent to giant American public in search of recreation have Anza-Borrego State Desert Park, where the left their mark in the form of "graffiti" on Bureau of Land Management has developed three rocks, trees, picnic tables, outhouses, signs, lovely little primitive campgrounds. They are and historical structures. They have blown available and well used by those who visit the up outhouses at developed but primitive camp- Lark Canyon-McCai n Val ley area. Al though they ing areas, removed or mutilated signs and can be reached only by dirt roads, they are markers, torn down historic structures for use readily accessible, most of the time, to Dad, as firewood, and done about everything else Mom, and the kids in the fami ly "f l ivver." in between. Recently, a BLM maintenance man, making They have also planned and participated one of his three-times-a-week trips into the in projects to remove "graffiti" from can- area, encountered, from a distance, a group of yon walls, clean up major recreation areas, 'ruffians" raising cain in McCain Valley. Fear- remove hundreds of tons of trash, restore ing for his own safety and the safety of the historical objects, construct fences around other good folk camping in the area, he called abandoned mine shafts, clean up trash around on the local deputy to venture up the 10 or so a small historical site, and about every- miles of dirt road and restore peace and tran- thing else in between. quility. Arriving on the scene in his well- equipped patrol car, the deputy encountered the The vandal ism story includes the ex- 'ruffians" at close range and suggested they pendi ture of pub1 ic monies: the $10,000 to mind their manners and keep their motorcycles replace the blown up outhouse, the $6,500 on the roads and at a respectable speed. The to replace picnic tables, repair a large group agreed to comply so the deputy left. interpretive sign and repair another out- However, on his next trip into the area, the house--all vandalized in one weekend of use following afternoon, the maintenance man en- at a popular developed camping area--and countered "mayhem" including a heavily damaged the inestimable damage to our heritage when outhouse. historical objects and buildings are torn down and used for firewood. The story The second occurred in the Imperial Sand also includes the saving of public expend- Dunes, a vast sea of sand some 40 miles long itures in labor costs for the work done by and 3 to 5 miles wide, which has stimulated the volunteers. development of a unique form of outdoor recrea- tion. Developed in southern California, "dune- But this traditional story of vandalism ing" with offroad vehicles is now popular in is not the one I would like to tell today. much of the Southwest. Let me share with you two incidents that I This popular area located about 45 minutes east of El Centre, may be visited by up to l Chief Ranger, Bureau of Land Management, 50,000 people on a single weekend. The dune- U.S. Department of the Interior, Riverside, buggy enthusiast, with his ultralight, offroad California. vehicle, can penetrate this entire sea of sand, and for years, the whole dune area was available Dunes. to him. Then, on November 1, 1973, the BLM im- plemented a vehicle management plan that set Significantly, when the signs were first apart a portion of the Dunes as a natural re- posted around the closed area, about 95 percent search area and posted it as closed to all were vandalized the first week. Today, with offroad vehicle use. the same amount of ranger patrol and the same authority, this sign vandalism has been re- With no authority to enforce this closure, duced by over 95 percent. When the camping the Bureau elected, or was forced, to take an facilities were first developed, a large trash 'ambassador of good will" approach and attempt receptacle disappeared. Today it seems unl ikely to inform and educate visitors so as to gain that that will happen again. their voluntary compl iance. The newly-formed ranger force began the task of meeting and The temporary Ranger Station, real ly a greeting the people, informing them of why the house trailer in disguise, was put in place natural research area had been set aside, in early September 1975. This station, located assisting in search and rescue, providing emer- miles from any permanent residence, is not gency medical first-aid, and assisting the manned at all on weekdays and only part of the stuck or stranded. time on most weekends. Furthermore, it is not protected by a 10-foot high cyclone fence. Yet A dunebuggy was obtained to allow the today not even a window has been broken. Ranger access to the vast sea of sand, not the fastest buggy on the slopes, but a unique ve- Could it be that for the individual hicle designed to carry litters, first-aid user's, "to vandalize or not to vandalize" is equipment, and rangers trained to assist directly associated with the individual manag- those i n need. An access road is bei ng bu ilt er's attitude--or more importantly, the manage- along the threshold of the Dunes and camping ment group's attitude~thatthey are to be facilities are being developed. Last fall thought of first and foremost, as a source of a temporary Ranger Station was erected to public service and assistance? provide a focal point for BLM influence in the

Vandalism in the Channel Islands National Monument Ronald W. Suttonl

The degree of isolation enjoyed by Channel investigated the sea lion rookeries, causing Islands National Monument would seem to be a stampedes which killed pups too small to get natural deterrent to vandalism. The Monument out of the way. There was bad feeling between consists of the two smallest of the eight Channel the commercial fishermen and the Park Service. Islands off the southern California coast-- People created new trails which caused erosion Anacapa and Santa Barbara Islands. Anacapa is and were unsightly. We felt that we could deal about 10 miles from the mainland, Santa Barbara with these problems through law enforcement, if about 40 miles. The islands can be reached by necessary, but we also felt that we could pre- private or commerical boat, but there are no vent many of them with a strong personal contact aircraft landing facilities for public use. program between the rangers and the visiting Anacapa Island is manned year-round and a ranger public--protection via interpretation. is on Santa Barbara Island during the summer. The theory behind this program is simple. There have been reports of vandalism The park visitor is in the park because he problems from the "old hands" during previous wants to be there, and he looks forward to an seasons. In particular, on Santa Barbara Island, enjoyable experience. However, this same visi- people were shooting at the island and occasion- tor brings with him an urban outlook to a wil- ally at the ranger station. People came ashore derness environment. This outlook is not con- and dug up plants for their home gardens. They ducive to an understanding of this new (for him) environment, and what he does not understand he may destroy. (Consider a two-year-old child Seasonal Park Technician, Channel Islands with an electric train. He loves the new toy, National Monument, National Park Service, U.S. but does not understand it and it is soon Department of the Interior, Ventura, California. broken. He may still think it is a great toy, but its original purpose is destroyed and its the past five years, I would like to share value for others is gone.) If we can create some of my observations on the subject of some understanding by the visitor of his new vandalism. Actually, most of what follows park environment, he will not be so likely to are questions more than observations--ques- destroy it. tions for which I don't pretend to have an- swers. We attempted this by talking to people, morning, noon, and night. We visited them on Why is it that a well-maintained recrea- their boats and passed out litter bags and in- tional facility seems to be more or less free formation sheets. We invited them ashore. We of vandalism? I have seen areas that were in talked about regulations and the reasons for good condition stay that way over long periods the regulat ions--how the regulations were de- of time. At the first sign of vandalism, how- signed to protect them and their park. We ever, almost total destruction followed in a talked to commercial fishermen about how this very short-period of time. Can a little clean- was their park and what the Park Service was ing compound and elbow grease at the first sign doing there. We passed out maps of the is- of restroom art prevent a repainting job a few land and suggested things to do based on the months later? Would a blowtorch, used to pro- makeup of individual groups. We held impromp- duce some artificual exfoliation of the rock tu nature walks, often several a day. iVe set under the first "John loves Mary," prevent a up displays of things for people to touch and scenic area from becoming an outdoor tabloid wonder about. We tried to contact every indi- created in spray paint? I think so. A good vidual who came within the park boundary. We maintenance program that takes care of the gave campfire programs to campers, not on little things before they become major prob- natural history subjects, but on how to take lems will solve some of our vandalism problems. care of a tiny, fragile, one square-mile is- land~theirisland. Above all, we talked, How many times has the reader seen posted talked, talked--to people. regulations that were systematically ignored by recreational visitors & enforcement per- What were the results of this program? sonnel? I have seen it--thank God, not often. It is difficult to say for sure. Perhaps Does this situation lead to a lowering of the problems had been overstated. Perhaps the value of all regulations in the mind of the fact that the island rangers had a small the visitor? Does this obvious contempt for patrol boat for the first time lessened some the posted regulation lead to vandal ism? I of the problems that existed in the past, but believe that if we post a regulation we should these facts remain: we only had three firearm enforce it, or interpret it togain compl iance, violations all summer. Five people out of or take it down--we should never ignore it. over five thousand disturbed the sea 1 ion rookeries. Only about 200 yards of new trails I recall a situation in which we were just appeared. Relations with commercial fisher- asking for vandalism. We had a pump house, men were good or excellent. Very few people somewhat removed from the camoground, that had attempted to remove souvenirs from the is- frosted reinforced glass windows. The windows land. No plants were taken to home gardens. were constantly being broken. This vandalism The most interesting fact, however, is that all had a pattern; one that I didn't see. First the violations that did occur were committed a small hole would be broken in one of the by people we had not had a chance to talk to, windows, presumably so someone could see what was inside. (There was nothing inside This program was carried out by only two except an electric pump.) Then, in a few people. Admittedly, we had the ideal condition days all of the windows would be broken and of control led access to a use area. (There we would have to replace them, always with is only one place to land on the island and frosted, reinforced glass. Couldn't we have only one good anchorage, so we were able to put in one pane of clear glass and avoided get to the visitors.) I be1 ieve this kind the whole problem by affording the original of program would be useful in other areas where curious visitor his look inside? Are there the access is less controlled. The important other situations that would lend themselves things are to give the visitor an understanding to this kind of solution? If indeed this of the area and of the new environment in which would have been a solution, why wasn't it he finds himself and to provide him with the tried? reasons behind the regulations which are de- signed to protect him and &outdoor re- Perhaps the National Park Service has creation area. I believe this is the most found the unique solution to the problem of important job the "man on the ground" can do, vandal ism. We have at El Morro National and it is his job--it can't be left to signs Monument an entire area set aside to pre- and handouts. serve vandal ism. Wedcall this particular vandalism "history," however. Incised upon Having been the "man on the ground1' for a rocky bluff at El Morro are the names and sentiments of many of the early explorers of today's aspirants for immortality. the Southwest, dating back to Don Onates in They must remember that they are 1605. Additional "vandalism" is not wanted not Don Onates, and the year is not at El Morro or as Freeman ~ilden~in his book 1605. Requirements and values shift -The National Parks puts it: with the years. No further names, addresses, or tele- The values of some people have not changed, phone numbers, either on El Morro however, and therein may be the solution of or on any other natural or manmade the problem of vandalism. We need to find a feature in the National Park System, way to bring the values of some of our visitors are desired. This may seem odd to up to date. Maybe we can do it by talking to them, or by strict enforcement or by...what?

Tilden, Freeman. 1951. The national parks: I don't know the answer, but I do know What they mean to you and me. 417 p. Alfred we can't afford to wait 200 years so we can Knopf, New York. call vandal ism history.

Vandalism in California State Parks Thomas Miller1

The dictionary defines vandalism as "the cutting his initials into a tree. The tree, willful destruction or defacement of artistic by the way, was so scribed with initials that works, or property in general." A few examples it was dying from the cuts, just as though of vandalism are defaced signs, broken windows, someone had girdled the trunk. The man was wall panels kicked out of restrooms, graffiti willfully destroying the tree, an act of van- painted on walls, wooden structures destroyed dalism. Upon my questioning, he told me in no or used for firewood, historic artifacts painted uncertain terms that he was not doing anything or mutilated, and vehicles damaged. The list wrong! This is an illustration of part of our can go on and on. The purpose behind the problem. Many vandals may not even recognize act of vandalism is often difficult to recog- that they are vandals. nize. I will explore some motives later on in this paper. Who then are the vandals? We may all be vandals at one time or another, depending To get to the whys of vandalism, let's on our impact upon the property around us as look at who the vandals are. "Kids--you better we go through our daily routine. If what we believe it! The kids are knocking us apart." do results in damage or destruction of property, True? Not necessarily. "It's the ethnic groups we have vandalized. What about the willful from downtown, that bunch of people that cf part? Vandalism is work: some acts take more even speak English, they are the ones that do energy than most people are willing to ex- the damage." That statement isn't any more pend while earning wages on their jobs. They true than the one about the kids. The fact is aren't being paid to vandalize--what they do we can't pin the tag of vandals on any parti- is voluntary and willful. cular segment of the population. As an example, I have witnessed people from the "establishment" Who are the vandals? Anyone who is strong (you remember that term--over 30, l ive in a enough and old enough to do something that de- house they are buying, etc.) doing things that faces or destroys the property of others. resulted in the defacement or destruction of That's most of us. When many people are cap- property--property that was not their own-- able of being vandals, it's no wonder that public property. That meets the definition of vandalism is a big problem. Because vandalism VANDALISM. is an act that results in the destruction of property, and almost everyone is capable of I specifically recall a man of about 30, committing an act of vandalism, the big ques- tion is why?

Area Manager, State of Cal ifornia, Department Some experts have demonstrated that van- of Parks and Recreation, Huntington Beach, dalism results from the need for recognition. California. Good results in reducing vandalism have been achieved at Grape Elementary School in Watts of retaliatory vandalism we have a significant through a program des igned to provide positive pub1 ic image problem. How can you tell if the recognition for all of the students. This is vanda 1 ism was retaliatory? It is not d fficul t; an approach beyond my abi li ty to explore take a look at what your organization d d and develop. I am hopeful the psychologists yesterday. It is amazing how the vanda ism will continue working along these lines and correlates with arrests or other enforc eventually suggest ways to provide for the ment acts. For example, in one area we know individual's need for recognition. that all of the windows would be broken out of our entrance stations whenever enforcement Some causes of vandalism are less clearly action was taken against a local group. I'm connected with the need for recognition. not proposing that we turn away from control- Selfishness is high on the list. Self- ling the negative actions of visitors with ish acts often occur in the quest for the result that one group infringes on the firewood. The act of vandalism includes re- rights of others. I am saying that if van- ducing items to a size that will fit in dal ism is the result of a lack of respect, the fire. Anything made of wood is the tar- then to lose the respect of visitors will get, and signs, posts, doors, food locker increase the vandalism rate; the opposite shelves, and wall panels are examples. The is of course trueÑgai the respect of trees and undergrowth in the camping areas visitors and reduce vandalism problems. To are also sacrificed in the quest for fuel. focus on vandalism is to focus on the relationship between the users and the Another example of the selfish motive for agency that manages the land. vandalism can be observed in areas of historic interest. Photographers have been known to What does vandalism cost? It is not paint over pictographs so they wi l l provide easy to put a dollar value on it. We know enough contrast to show against rock back- that in one area the cost to repair damage grounds. Historic pictographs have been caused by vandals was $2,330 during the summer destroyed through such acts of vandalism. Un- of 1975. That figure does not truly represent authorized digging in archeological sites the costs of vandalism because the loss of destroys the story of events. Artifacts, once availability of the facilities to other people removed, become only conversation pieces in cannot be calculated. Neither can the per- the hands of untrained people who have manent loss of resources such as trees, selfishly deprived others of enjoyment. understory brush, soi I, or historic artifacts be represented by a dollar amount. Retaliation is another reason behind vandalism. Acts of retaliation are typically The costs of vandalism are going up those that happen in the dark of night. The every day, along with the increased desire of lifeguard tower that was chopped down and the the public to utilize public property. The building with all of the windows knocked out costs are too high for us to chalk up as the are examples. It is the vandalism of retalia- expected cost of providing for public need. tion that we in the field can do the most We have a responsibility to attempt to reduce about. It represents our public image the cost by attempting to reduce the rate of barometer. If we have a significant amount vandalism.

Vandalism in a City Park Richard Sarnpl

A great deal of so-called vandalism is In Placentia, the only vandals are the caused by accident and is not really vandalism designers, specifiers, and installers who pro- at all. The term "vandalism" is a marvelous vide the opportunity for the so-called vandalism catchall for public apathy, ignorance, lack of to occur, and over the years I must include my- concern and/or intellectual laziness. self as one of these. Seventy-five percent of what is labeled "vandalism" in the city of Pla- centia could be prevented through design. The Director of Recreation and Maintenance, remaining 25 percent is ma1 icious and unaccount- City of Placentia, California. able. We feel that vandalism is an attitude and cover. It is the act of jamming a stick in the is controllable for the most part. Our records drinking fountain to see how high the water wi I I show that the wanton and malicious destruction squirt, plugging a drain to see how high the is often done by groups, usually young males in water will rise, pulling up a tree to see what the 14 to 16 age group. We have also noted that the roots look like, and taking apart the play- this age group holds the largest number of school ground climber to check the construction. dropouts and others who enter the mainstream of adult life unprepared to act according to adult 5. Irresistible temptation vandalism-- rules, and too young to be given the status that This is writing- on a shinv painted surface with would go with compliance. a magic marker or riding a bicycle through the big mud puddle in the new lawn where the drain- Destruction in the expression of a need, age is improper. It is climbing out on a tree and an interpretive look at the motivations behind branch to see how far it will bend or throwing these kinds of vandalism may open the door to a bottle against a concrete wall. It is pick- innovative solutions. I have taken the liberty ing flowers or unscrewing the beautiful brass of classifying vandal ism in the city of Placentia thing on top of the fountain because it fits so in six categories2. I would like to share these nicely in the palm of one's hand. with you: 6. The no-other-way-to-do-it vandalism-- I. Vandal ism of overuse--This type of This is whv the bicvcle is leaned up against the vandalism can take many forms. You can swinq tree when there is no bicycle rack. It is throw- only so many times until the chain wears out. ing papers and bottles on the ground when there How many kids can sit on a bench? How many balls is no trash can and using the sand box when there can go through a hoop? And the merry-go-round is no restroom or when, worse yet, the restroom has only so many turns. is locked. It is sitting on the fence and hang- ing your jacket on a tree. 2. Conflict vandalism--This is the reaction to a tot lot built in the middle of a baseball During the years, we have found that many field, a concrete climber built on the basket- administrators, faced with finding solutions to bal l court, a fence where a gate should be, and vandalism, expressed their reaction in two grass where kids want to walk. It is the ex- classic attitudes. The "bastille" approach is pression of kids doing what is logical and most building something so strong, so massive, and natural and/or most appropriate to them regard- so simple that kids couldn't possibly tear it less of the designer's intent. It may be a tree down. It's just to make sure, erecting a high planted where kids want to play ball or it may fence so the kids can play only when adminis- be the perfect place to use for second base or trators let them, and if the equipment still to swing on the way to thi rd--a tree breaks and gets broken, locking the gates. ''vandals" are blamed. Vandalism may be the tree branch too low to walk under, too long to walk The "zero" approach provides nothing, around, or just the right height to swing on. therefore there is nothing to break. Put up a fence with no gates, pave the area but 3. Leverage vandalism--This usually pre- don't plant trees or grass. vails during baseball season. It's finding a hole or a slot just the right size to pry with We in Placentia feel the only solution is a baseball bat. The bat is stuck in a hole, the a creative approach. It is to try to understand board is pried loose from the bench, the loose a child in search of diversion after school, to board is then carried to the jungle gym, where anticipate the alternatives and opportunities it is propped on the bars to form a canti- open for overuse, conflicting uses, or misuse lever. It is the concrete trash can which of playground environments. couldn't possibly be stolen, but of course, it also can't be emptied because it weighs too Possible solutions for some of the va- much, especially after the removable steel rieties of vandalism which I have spoken about liner has been carried away. If it doesn't include: work as a trash can, maybe it can be used as a battering ram. 1. Provide sufficient equipment to dis- courage overuse 4. Curiosity vandalism--This is the an- swer to what is behind the locked door or behind 2. Build a path where the kids walk, pro- the sprinkler controller or under the manhole vide a gate next the hole in the fence. Plant more trees and provide a way to run through the flower beds so kids and plants can grow together V. Michael Weinmayer. 1973. Vandalism by Design, A Critique. In Reflections in the re- 3. Unlock the gates or remove them so creation and park movement. David Gray, ed. they won't be torn down, prevent the gate from Wm. C. Brown Company. becoming a swing 4. Check and remove loose boards and stray not cause problems by catching windblown debris items used as levers and hammers Vandalism in Placentia has been a problem. 5. Mount trash cans on poles, replace We do not have the answers. The thing that we when damaged and empty when full have learned the hard way is that there is no such thing as a maintenance-free park--maintain- 6. Use timbers, difficult to write on, able, yes, but not maintenance-free. We have but can accommodate graffiti, and they mellow environmental impact reports. Every develop- with age ment contemplated should also have a main- tenance impact report that identifies areas 7. Bicycles should have racks and people and items which require maintenance and will should have benches cost money over the years. Parks need care every day, improvements every year, and major 8. Instal l wrought iron fences to con- rehabi l i tat ion about every 5 years. Kids in trol cross circulation. This use wi I1 help Placentia do not destroy what they want, like, stop kids from running into the street but will and use.

Vandalism in Organized Camps in California

Patrick C. ~icksonl

The American Camping Association in Cali- vandal ism appearing in two forms: (I) External fornia represents approximately 500 member agen- Forces: vandalism done during nonscheduled cy camps, private independent camps, and church- times by "outsiders" and (2) Internal Forces: affiliated camps. Annually the Association pro- abuse of facilities during organized programs. vides organized camping opportunities for ap- proximately 1.2 million young Californians and The member camps of the American Camp- an additional 500,000 adults use member faci l- ing Association have minimized dollar losses ities during the off season. due to vandalism by subscribing to rigid ac- creditation standards which require sound site During the past three years, according to planning and sound administrative procedures in insurance carriers, dollar losses due to vandal- the organized camp and camping program. ism have been minimal, with less than 1 percent Furthermore, a high percentage of member camos of the total membership reporting substantial have engaged fulltime onsite caretakers to do1 lar losses. This trend appears to be con- patrol and act as a deterrent to possible sistent even with increasing exposure due to threat from external vandals. Internally, mem- increasing enrollments and programs utilizing ber camps have instituted ongoing educational facilities on a year-round basis. The major programs for the participants, emphasizing and problem facing camp operators is coping with providing opportunities and experiences for developing awareness and appreciation of the interdependence of all living and nonliving Vice-president, Southern California Camp- resources and a sense of responsibility for ing Association, North Ridge, California. them.

LAW ENFORCEMENT

Photo: East Bay Regional Park District Vandalism and Law Enforcement on National Forest Lands

Thomas A. ~ootsl

Vandalism on National Forestlands, as fitness programs. There is much discussion now well as on other land in both pub1 ic and pri- about the apparent destruction caused by the vate ownership, is relatively new. The camp- timber industry. I often wonder how it com- grounds and facilities on Forest land have pares with that in recreation areas caused by been open to the pub1 ic on a self-service the tremendous increase in use we have recently basis as long as the Forests have been in experienced. existence. Up until the mid-19601s, a camper could leave equipment and food readily visible We know some things about these new user to any passersby without fear of loss. Signs groups. We know that they are young and city could be erected in campgrounds with full oriented. We know many lack the know-how or knowledge that those signs would remain in awareness of how to treat nature. We see an good condition until such time as the weather increase of users from cultures other than might fade the colors. The worst vandalism Anglos and from low-income groups. We see that occurred in the National Forests was people who have been sold on an outdoor exper- caused by bears. I can recall sitting in ience by salesmanship for new products for use meetings similar to this one, trying to figure in the open. out what we could do to minimize bear damage. Bears are still around, but we certainly don't From 1968 to 1973, I was a District Ranger spend much time talking about the vandalism or at Pinecrest on the Stanislaus National Forest. difficulties they create. It is about 50 miles north of Yosemite National Park, and is part of one of the most heavily The current problems are people, not a11 used of the National Forests. During this people, but just a very smal 1 minority of time, the changes in user groups became clear. people who have created a condition among the Probably the most spectacular evidence came in National Forests that is causing great con- Yosemite Park where Park Rangers on horseback cern. confronted hundreds of "hippies" in a meadow. The results, besides many arrests, were in- Who are these people? What has changed juries, a dead horse, and a destroyed meadow. that makes it all right to destroy $336,000 What caused the confrontation with baton- worth of improvements in the four southern swinging Rangers? The unlawful use of the California Forests? What right have these meadow for a camping spot. Sounds silly? To people to deprive the general public of 26,000 the hippies, the right to camp there was worth visits to a National forest to enjoy a camping fighting for, and to the Rangers, keeping the experience? Yes--facilities for 26,000 visits campers out of there was necessary to support could have been built and maintained with the the principle the parks were established for-- dollars spent in replacing damaged and destroy- the protection and preservation of a unique ed improvements. What cost can be placed on national heritage. painted rocks and carved or chopped trees? At Pinecrest, we were faced with similar A change has occurred since the 1950's. problems, but were fortunate in being able to During the 19601s, a new generation discovered see and learn from the Park's problems. We saw the great out-of-doors and with it the National riots, numerous arrests, and destruction of Forests. Their culture developed in the cities property. We made some studies of these prob- and was foreign to the parks and forest. It lems, which include 109 incidents of vandalism was marked by laziness, softness, and disre- in 1970 alone. We found that 62 percent of the spect. President Kennedy identified the prob- incidents were caused by people under 21 years lem to some extent and encouraged physical old. Also, we found that vandalism and thefts occurred between the hours of 10 and 11 A.M., 2 to 4 P.M., and 8 to 11 P.M. These included Forest kcreation Officer, San Bernard ino only the incidents for which we had enough in- National Forest, Forest Service, U. S. Depart- format ion to make a record. Cond it ions have ment of Agriculture, San Bernardino, Cal ifor- changed, but vandalism is still here and even nia. increasing. The new user groups are also still here, though not as easy to identify. myself in 1969 and 1970 chasing pot users and minors with alcohol ic beverages, and deal ing On the San Bernardino National Forest, we with nudity problems and even grand theft, are finding that vandal ism problems are occur- rape, suicide, and murder. There was a fine ring more frequently during periods of low use, l ine between problems associated with the rec- on weekends, and during the off-season, when reation users and their experience and just the facilities are untended. We also see plain law enforcement problems. I had to cross higher vandal ism occurring in areas more that line before I recognized where it was. heavily used by low-income groups, and in areas within 30 minutes of valley communities. As we examine vandal ism on National For- est lands, we tend to concentrate on the large A prime example of this type of vandal ism developed facilities. An area of increasing occurred last month in a campground about an importance and increasing use which is often hour from the San Bernardino Val 1ey. The camp- overlooked is backcountry. When speaking of ground was completely rebuilt last fall in a backcountry, we frequently think of wilderness, cooperative venture of the Southern California but I am referring to any minimum-development Association of Four-wheel -Dr ive Clubs. The area. This means road- or trail-access areas campground is along a dirt road and was then primarily but could be any area. Here vandal- covered with about 6 inches of snow. About ism is really a serious problem. There is vir- three groups of young people were camped there, tually no way to stop the destructive force. most of them teenagers with no adult supervi- Fortunately, those who are bent on destruction s ion. Someone had sawn the wooden barrier do not visit these areas frequently unless rails into firewood sizes and had also taken a there are roads. The signs certainly reflect table top apart and sawn it up. There was this. fresh evidence of sawdust in the snow. At all three campsites, burnt or burning parts of the Some of the improvements vandalized are barriers and tables were in the fireplaces. pit-type toilets, signs (great targets for the When we questioned members of the groups, natu- mar,ksman), nature trails and water develop- rally al l of them denied any knowledge of how ments. The beauty of the forest itself is also the wood was cut. They said they found it ly- destroyed. How can these areas be protected? ing there, cut up. From a law enforcement Now, when they are destroyed, we frequently standpoint, even though circumstantial evidence remove the improvements. In one campground strongly indicated that someone in those camps where a replacement toilet was shot up within was responsible for the destruction of the 6 months, and the tables were stolen, cut up, rails, barriers, and table tops, we could do or burned, we just closed the area. Hundreds nothing. of visitor days of public use were lost. The pub1 ic is paying for the vandal ism in more than To keep campgrounds open, in such a situa- dollars. How can we measure the loss in vege- tion, means having caretakers present to assure tation caused by cutting down, carving or chop- the protection of the facilities. Unfortunate- ping trees, or by the worst of enemies--fire? ly, it is costly to put caretakers in camp- The $336,000, previously mentioned, does not grounds with minimum use. It is almost im- begin to measure the various types of monetary, possible to effectively close off the camp- esthetic, and emotional losses. grounds, because this would require closing many of the main roads and highways within the IDENTIFYING THE PROBLEM Forest.

A strong, tough law enforcement program is We have discussed the evidence. Now what needed to minimize the vandalism problem as has been or can be done? Many methods have we1 l as to provide some feel ing of security for proven successful for individual problems and the recreationist. We need to be cautious, many more have proven unsuccessful. Before however, that we do not penal ize the honest looking at some individual solutions, we should user by presenting him with complicated or re- first learn the components of the problem. All strictive requirements that destroy his exper- instances of vandal ism are not the same. We ience. The average person won't mind some in- should start asking questions: convenience if he knows it will provide him with security for his family and protection I. What was the result of the action-- against theft. what was damaged or destroyed?

One trap which recreation managers must 2. Who is causing the problem--what is avoid is becoming "cops" and forgetting the the age group of users, where do they come prime purpose of their jobs. In other words, from? "When you are up to your waist in alligators it is easy to forget your objective was to drain 3. When does the problem occur--night the swamp." Speaking from experience, I found time, weekdays, off season? Can a time of day be identified? FINDING SOLUTIONS

4. Why does it occur? Disrespect, anger, The various techniques for reducing van- frustration, boredom? dalism can be classified in three basic cate- gories: pub1 ic assistance, direct control, and 5. Are the facil ities designed to mini- engineering. mi ze vandal ism? Publ ic Assistance Some of these questions may be easily an- swered, but what about the more d ifficul t ones? A pub1 ic assistance program tends to in- I am a believer in public involvement. Public crease the user's enjoyment of the area by pro- involvement may be time consuming and may not viding a feeling of security and increasing answer all of our questions, but I feel it is user understanding of facilities, activities, our most promising opportunity to find answers. and the environment. Go to the user groups and rap with them about what's going on. Spend some time with the Providing maps and brochures is probably groups who are suspected of creating most of the first step in this process and has been the difficulties. Listen to their suggestions. used at many areas for a long time. These Understand what is important to them. Learn should be printed bilingually where non-English their values. Seek the cooperation of the speaking cultures compose a significant part of users not only in studying the problems but in the user group. People inexperienced in the repairing some of the damage or in designing use of English misinterpret statements even new protective devices. though they can read the words.

Consider the cultural differences between Signs, preferably symbol signs, certainly user groups and their relation to facil ity de- aid in minimizing confusion and lowering frus- sign. The most outstanding difference I am tration levels. Where signing may be difficult aware of is in the typical family unit design. or expensive, the use of radios with limited Almost 100 percent of the San Bernardino Forest range transmission which can be received on campgrounds are designed as single family automobile radios can help. Again, use bi- units, capable of serving 5 to 8 persons at one lingual messages. time. The Mexican-American family typically consists of the immediate family, the relatives, Information specialists, who are bilingual and a few friends, and can include 3 to 5 vehi- where appropriate, can provide some personal cles and 10 to 20 people. What happens when touch and promote facil ity security by their they arrive? They all must crowd into the presence. In l ieu of manned stations, we1 l- family unit, which means removing the barrier designed and displayed bul let in boards and or driving over it. The large numbers of peo- kiosks provide opportunities for expanding the ple can't help but trample the vegetation. The user ' s knowledge. campground becomes crowded, ruining the exper- iences of others, and the facilities are over- At Pinecrest, we developed posit ions used for their design. When the Ranger arrives, called Public Assistance Officers. These rec- he hassles the group for having too many people reation aids were given public contact training, and for the mis-parked vehicles; he either asks information on questions commonly asked, first them to move or writes them a citation. The aid training, and law enforcement training. group gets mad and stops caring for the facil i- Their job was to work with the public and to ty. They may leave, but they leave behind take a firm hand when and where necessary. Iitter and broken fac ili ties, and everyone has They had direct contact with the resident depu- had an unhappy experience. ty sheriff through special radios. These per- sons enabled us to achieve successful control Is this sequence of events necessary? It of a difficult situation principally because occurs because we are not providing a design to they took the time to talk to the users. meet the needs of all the using public, with a result frequently classified as vandal ism. Another program which helped was "Pack-in, Pack-out" which was used in the backcountry. Clear, concise signing is part of the same Personal plastic garbage bags were provided, problem. Where are the bilingual signs? In with the rules imprinted in a colorful and ar- southern Cal ifornia, recognizing the different tistic manner. These bags eliminated a large needs of different cultures, especially the amount of litter and allowed 15 to 20 garbage needs of the Spanish-speaking peoples, is a cans to be removed. Previously, many of the must. cans had to be replaced annually because they were shot, stolen, or otherwise destroyed. Con- fied time to use the area. He is even directed tests proved successful among the younger peo- to the exact spot he is permitted to use. ple. One which has been going on for 3 years is the pop-top chain. The person with the Engineering longest chain gets a Smokey Bear patch. Engineering includes the design and con- Direct Controls struction of facilities. Design plays a major role. It includes the basic campground layout Direct controls are those which impose (camp loops, size of units, location of signs, some form of control over the user. These are garbage cans, rest rooms, and entrance stat ions) frequently effective but they also tend to de- as well as the actual design of a given facil i- stroy the designed recreation experience if not ty. For example, in isolated locations, rocks done cautiously and with some thought. or cement barriers may be used in lieu of eas- ily destroyed wooden barriers and rails. In Perhaps the most popular control is the one camp, we have resorted to concrete bunkers entrance stat ion. The National Park Service for restrooms because the standard ones were has been using this form of control for many repeatedly destroyed. These are certain1 y not years. Entrance stations do not have to be meeting our visual qua1 ity objectives, but the elaborate. I once used an old out-house, re- toilets are available and are only being paint- painted and sl ightly redesigned. In some areas, ed with names and some choice phrases, rather gates which are closed at 10 P.M. have been than being destroyed. Our engineers and land- used; these prohibit the entrance of people who scape architects play a valuable role in des ign, are not actually camping on the site. but they must also understand the object ives of a recreation experience. The San Bernardino, as well as other Na- tional Forests, is using permanent caretakers SUMMARY in the campground. These caretakers usually occupy the first camp unit, and 1 ive in a trailer which remains for the season. They The vandalism problem is definitely a dif- collect fees, process reservations, do some ficult one to solve. I think each Unit Manager facil ity cleanup, and provide security. The has to examine his own problems and his own Inyo Forest is presently seeking volunteers, users, seek public involvement, and develop so- from among the retired senior citizens, to fill lutions that are adapted to the particular area. these positions. As volunteers, the caretakers Through this symposium, each of us will acquire receive a uniform, some training, and expense a so-called "bag of tricks," from which we can money but no wages. They sometimes work in select the one that applies to our particular sites also controlled by entrance stations. area. Through concerted effort and working with the user, I think that we can reduce the User permits, such as those issued for vandal ism incidents. For me, however, law en- wilderness areas, provide a certain psychologi- forcement, the "cop" approach, is our least de- cal control because the agency has the user's sirable alternative. Prevention, through user name and address and the user is given a speci- involvement, should be our first aim.

Vandalism: The California State Park Approach

Jerry ~orrisonl

The Cal ifornia Department of Parks and crime in State parks. On the study group's Recreation has a history of setting an example recommendation, six people were hired for the of how to approach criminal incidents, includ- six districts of our Department. These people ing vandalism. In 1968, the Legislature, were chosen for their expertise in police serv- through the California Peace Officers Standards ice, and their anticipated approach to the and Training Commission, requested a study of incidence of offenses within the parks. I'm one of the six; my area is District 5, which extends from Santa Barbara County to Orange Law Enforcement and Safety Officer, State of County and from the ocean east to the Arizona- Cal ifornia, Department of Parks and Recreation, California line. I deal with two dozen law en- Goleta, Cal ifornia. forcement agencies within those boundaries. The six people chosen for this special itself and another to recover the money for the duty began almost immediately to improve the damage. Many of our people say, "Oh, fix it training of the Rangers in approaching law en- and forget it," rather than take the time to forcement situations. This training has been make the reports. In other places, some may continued and enhanced; the Rangers now receive say in effect, "As long as we don't report the ful 1 amount recommended for pol icemen at problems, people will think we have it under our academy in Monterey. Many carry weapons in control and we'll build a great reputation." A their daily routine, not by choice, but because great reputation--yes--but things are getting is has been found necessary. We recommend a ripped off; it's like the sea eating away at a soft approach to law enforcement; however, a cliff until a shoreline house falls in the firm one. We recommend high visibility. We drink, and then it's too late. want the Rangers to be seen, but we do not want them to be oppressive. We want them to ap- What do we do about vanda l ism? What proach problems before they develop, if possi- action do we take? I must admit that I have ble, and to talk with the people to try to es- committed an act in a Federal forest that could tablish a relationship with them, try to estab- be construed as vandal ism. I moved a rock so lish some understanding by them of why we have that I could park my camper in a location that our rules, and try to educate them about what I deemed better. The regular parking place was these rules are. in bright, hot sun. The rock was preventing me We are here concerned with the explicit from moving to where it was shady, so I moved act of vandalism. Vandalism is defined as the rock and parked in the shade. My point is wanton destruction; it is a criminal offense. that the campsite should have been designed to Again, it is an offense of negligence as often take the campers needs into account. It is not as not--like not stopping at a stop sign in a enough to simply set rocks around and say to traffic situation. It can be an offense of ig- the camper, "Park there." Good design would norance, l i ke not stopping for a red l ight be- see to it, for example, that people going to a cause one is color blind. It can be vindic- day use area don't go through a campground to tiveness towards what has occurred in that get there. Why not? Because after they have place or maybe a reaction against a symbol of been there, enjoyed their picnic, and drunk a authority or the system. It can be a social few beers, if they must leave through the camp- thing, a need for recognition for a culture or ground, and if there is something there that is an individual personality, such as drawing a not ueing guarded, tney can just pick it up. symbol on the restroomÑ symbol that identi- Furthermore, they find a handy place to throw a- fies the individual and his personality. This way their beer cans as they pass through. is not really an endeavor to damage, not an intention to hurt, but an act of seeking iden- We should have our people in the use area tification. Therefore, we find that vandalism where they can be seen and can be tal ked to can be negl igence, ignorance, vindictiveness, when visitors are there. Make guards or care- or self-expression or all of these. takers visible. Have them talk to thepeople before trouble begins. Help them to understand We are also concerned with the dimensions what the rules are, and why they are needed. of the problem and how to measure it . We have to guess. We can guess on the basis of data, In summing up, 1 be1 ieve a wide selection but this is faulty, and I can explain why. The of disciplines are needed to uncover solutions most recent FBI Uniform Crime Report was for to the vandalism problem. Hopefully, we can the year 1974. It stated that 7000 arrests for identify some new approaches, some actions that vandal ism in rural areas in this country were will help us in this exercise in waste. reported during that year. However, vandalism arrests are not easy to make. For each arrest there are many, many offenses that are commited by persons unknown. Data provided by the Fed- eral Bureau of Investigation shows that the age of persons arrested for vandal ism ranges from very young to quite old, and there is a signi- ficantly large group between the ages of 13 and 14 years. Attempts are made to measure vandal- ism by the amount of money we spend for repair. My department budgets $50,000 per year; however, we had $87,000 damage reported in 1975. I would say that a minimum of double that amount is the true figure: we probably suffer over $180,000 vandal ism damage per year in our de- partment. I base this on the fact that no one likes to make reports. In our system, there is one crime report to be made on the vandal ism Vandalism at Red Rock

John C. ~inolanderl

Vandalism calls are an everyday problem in the National Forests and Parks. experience for a law enforcement officer. In the Santa Barbara District of the Los Usually acts of vandalism are perpetrated Padres National Forest, there is an area by juveniles. Vandalism, along with all. known nationally among young people as "Red other crimes, is on the increase. Last Rock." This canyon area has a 10-mile wind- year, the largest rise in crime was in the ing stretch of two lane rough road along the rural areas, where we saw an increase of Santa Ynez River. The river is surrounded by 21 percent. Vandalism is not new to our rugged mountains, and entry to much of the area modern society. It has been a problem in is restricted during the summer months because our cities and towns for centuries. The of the extreme fire danger. The official name term vandalism is derived from Vandals, a of the area is "The Lower Santa Ynez Recrea- Germanic people who sacked Rome in 455 A.D. tional District." There are ten campgrounds, The legal definition of vandalism is "will- of which three are for daytime use only, and ful or ma1 icious destruction, injury, dis- seven are for overnight use. The area is de- figurement, or defacement of property with- signed to accommodate approximately 4000 per- out consent of the owner or person having sons for recreational day use, and a maximum custody or control." This crime is class- of only 1500 for overnight camping. Over the ified as a misdemeanor, and is punishable last 6 years, in this small area, both day and by a fine, a short term in jail, or both. overnight use has increased phenomenally. On heavy-use weekends during the summer months Vandals can strike at any location. over the past few years, as many as 15,000 However, their favorite targets have been people entered the canyon on a single day. The city schools and parks. In the past 10 crowds heavily overloaded the facilities and years, the monetary loss from acts of van- the reasonable capability of the terrain to dalism has risen to 3 to 4 billion dollars support use. Along with the increased use cane a year. As every victim and every law a large rise in city-type problems, and city- enforcement officer knows, it is often ex- type crime~trafficcongestion, family fights, tremely difficult to apprehend vandals. drunkenness, narcotics use, shootings, thefts, Many cities have devised innovative robbery, and assault, along with litter pol- methods to prevent and detect vandalism, lution, and a tragic upsurge in vandalism. only to find that methods to circumvent detection are quickly devised in turn. Here are only a few examples of what has Expensive electronic sensors and closed- occurred in the small recreation area of "Red circuit television systems have been Rock" : installed, but with only marginal success in many areas. As an experiment, Washing- Spray painting of cliffs, rocks, toilets, ton, D.C. installed $365,000 worth of signs, trees, and tables with obscene words or sodium vapor lighting equipment in certain person's names areas. They were rewarded with a 22 per- cent reduction in vandalism. Washington Chopping down of trees, shrubbery, and has greatly increased the area covered s igns by their sodium vapor lighting program. This is apparently one method that has Mutilation of buildings, toilet met with success. facilities, water pipes and water systems, camp tables, stoves, and anything else Although vandalism is not at all that can be destroyed new to the cities of our United States, it has become a new and ever-increasing Destruction of vegetation by driving motorcycles and other vehicles through the campsites and across the natural country- Sergeant, County of Santa Barbara, side and spinning the wheels or sliding Sheriff's Department, Santa Barbara, sidewise (commonly known in city lingo as Cal i fornia 'yard farming") Shooting of holes in buildings, toilets, driven over, moved, and mutilated. Grim? tables, trash bins, and trees You bet it's grim! The Forest Service estimated that during the year, in this small Burning of anything in sight that can area alone, there was $25,000 damage to the be chopped down and burned, including camp recreational facilities. tables and other facilities Campsites are expensive, material and man- In those we have apprehended for acts of hours for repair or rebuilding are expensive, vandalism, we have seen a strange, don't-give- and patrol time for law enforcement is expen- a-damn attitude. One group was caught in the sive. Is there an answer on how to solve this act of burning their camp table in the camp wanton destruction of property? I don't know stove, piece by piece. Their comment was the answer. We seem to be losing the battle. I twasn't worth much anyway." One man, chop- ping down a live tree, states, "Well, how else Of the methods used in the Red Rock area can I get my camper backed next to the camp to try to stem this type of vandalism, some table?" A 28-year-old, who had blocked the have proved to be fairly successful: road by rolling large rocks across it, said, It's too damned crowded, and I wanted to keep Sheriff's Deputies and Forest patrolmen, some of those nuts out of here." Two men in uniform, driving marked vehicles, patrol who were arrested for shooting into an the campsites at random times throughout the occupied toilet facility stated, "Aw! We were day and night hours just having a little fun. He didn't get hurt." On a dark, moonless night, in a crowded camp- Sheriff's Deputies on foot, in uniform, ground, one fellow fired 40 rounds from his walk through the camps during the day and night 30.06 rifle in random directions. He claimed hours at unscheduled times that he had heard ominous rustling in the surrounding bushes, and he thought somebody Deputies on horseback and on foot patrol was going to get him. the river banks and out-of-the-way spots where campers congregate (horseback patrol appeared In order to help maintain the peace, and to be a good psychological deterrent to acts to preserve the facilities in the Lower Santa of vanda 1 ism) Ynez Recreational District, the Forest Service contracted with the Santa Barbara County Sher- Problem areas were staked out with camera iff's Department to assist them. Sheriff's equipment, to take photos of vandals in action Deputies began working weekends during the so as to apprehend them summer months of 1970. This first summer, one full-time Deputy and several reserve officers ' The Forest established a temporary check patrolled throughout the area. The recrea- station at the entrance to the canyon. Each tional population increased, and the crime car was stopped, its license number recorded, increased to a point that in 1975 it was nec- and the driver provided with a copy of the Fed- essary to have as many as twelve Deputies eral camp regulations patrolling on the weekends just to maintain an acceptable level of order. It also be- The Forest tried camp sitters who lived, came necessary to maintain two to four full- rent-free, in trailers, and reported any sus- time patrolmen throughout the winter months picious activity because of the increase in mountain area use. Enforcement of the rules and regulations, both State and Federal, was used as a method I said that as many as twelve Deputies of prevention. Sheriff's Deputies issued ap- were required to maintain an acceptable level proximately 1200 citations, arrested 350 of order. We were unable to stem the acts of people, wrote 800 crime reports, and issued vandalism. In the summer of 1974, the Santa thousands of verbal warnings Ynez Campground, which provides nice, wide- open tree-covered campsites with toilet It is very clear that vandalism is a big facilities, camp tables, stoves, and running problem in the National Forest. I see no end water, was damaged to the point that it had in sight. The projections state that an ap- to be closed. proximate 15 percent increase in use of the National Forest lands will occur each year. In 1975, summer campers destroyed the This means more vandalism. At the rate we are Red Rock Campground, and it was closed. In seeing the camp areas destroyed, we may face both these camps, toilets were smashed, tables limiting camp use to a select few, or closing were burned for firewood, and steel stoves were campgrounds during certain periods. cut from their 2 1/2-inch pipe mounts and stolen. Trash cans were run over or shot up, A solution to the vandalism epidemic must and some were also stolen. Trees were chopped be found. Otherwise, it will soon mushroom down, and rock and wood camp barriers were to such outrageous proportions that out- door activities and camping in our National Forests will be only a memory. Law Enforcement and Vandalism in Our National Parks

Nicholas ~helanl

National Parks were established in the supposed to consider important, nicely summed United States in 1872, with Yellowstone our up in these few words, "to conserve the sce- country's first public pleasuring ground. nery and the natural and historic objects and From that time on, areas of the National Park the wildlife therein and to provide for the System have been bothered to a greater or - enjoyment of the same in such manner and by lesser degree by problems of vandalism. Our such means as will leave them unimpaired for first visitors shot Yellowstone's wildlife, future generations." cut trees, marked up or tore down geyser formations, and in general acted in an irre- Now we have about 3W areas and almost sponsible and short-sighted manner. 2000 permanent rangers; we were visited by millions of persons last year, and investi- Initially we were absolutely powerless to gated thousands of cases of vandalism. Our stop any of these actions because we had no National Park Service rangers are authorized people in charge and no laws (a common com- by Title I8 of the U.S. Code to be Federal Law plaint amon3 many ajencies even these days). Enforcement Officers, and the laws pertaining If a Park was lucky, it had a superintendent, specifically to National Park Service areas assuming someone could be found who would work are contained in Title 36 of the Code of Fed- for notiiincj, because that was the pay for the eral Regulations (naturally, these are all mis job. If a violator was actually caught doing demeanor offenses). Our role, in other words, something seriously wrong, the only power is much better defined than it was during the superintendent had was to put the person those first few years at Yellowstone and out of the Park. The problems became so over- Sequoia. Nevertheless, National Park Service whelming that in 1886 the Secretary of the law enforcement remains a bit enigmatic to Interior asked the Secretary of War for help; many outside of the service because it is not for the next 30 years the army controlled the absolutely structured and contains several Parks--not an ideal solution, but at least variables. during that time these areas were protected. For instance, our Park areas may be qov- In 1894 Congress passed the first pro- erned by any one of three different kinds of tective law for the Parks, an "Act to Protect jurisdiction. Some Parks have "exclusive'' the Birds and Animals in Yellowstone National jurisdiction, whereby Federal law is the only Park," and in 1906 the Antiquities Act was law and Federal officers the only law officers. passed to protect archeological sites; both Most older Parks have this type of jurisdic- of these gave the Parks laws pertaining to the tion (or a slight variation of it). Most protection of specific features. of these Parks were established before the States they are in were admitted, so it's It was not until 1916, however, that easy to see how this type of jurisdiction the National Park Service was established, and developed. the enabling act also gave us a general idea, finally, about what the Park Service was A second and quite common type is "con- current" jurisdiction, in which the Parks are governed by Federal laws (not just the Code l Park Ranger, Channel Islands National 8 Federal Regulations but also the U.S. code) lonument, National Park Service, U. S. and by State laws equally, and both Federal Department of the Interior, Ventura, and State officers can enforce them. Parks California which have this type of jurisdiction fall under the Assimilative Crimes Act, which means number of visitors, especially in the spring that laws other than Federal laws within that and fall, and most of them, it seems, are from particular political area are automatically the Los Angeles-San Bernardino area, from which assimilated into the laws of that Park. it is a 2-hour ride over Interstate 10 to the Monument. When I worked there, we had our Channel Islands National Monument has fair share of vandalism, primarily such activ- the third type of jurisdiction, "proprietary," ities as driving motorbikes off the roads and which is in many instances the least desi rable painting the rocks. The problems were not in- of the three from the viewpoint of the Federal ordinate, but they were always there. officer in the field. Under this type of ju- risdiction, the Park Service has no more Conditions were different at Isle Royale. power than the owner or proprietor of any A person wanting to visit the island had to other piece of land. We may, as proprietors, make reservations in advance for a 73-mile modify State laws to make them more restric- boat trip from Houghton, Michigan, which cost tive, but we may not make them less so. The a minimum of $20 and took 8 hours, over one of one concession we have to the fact that our the roughest freshwater lakes in the world. role differs slightly from that of other It seemed to follow that only people who really landowners is that we may levy legal punish- cared about the kind of place that wilderness ments when our rules are broken. Within our island was would take the time to make the rules, Title 36 of the Code of Federal Regu- trip out. We had so few vandalism problems lations, there are sections which enable the that it was truly idyllic. Oh, occasionally Parks to assimilate State fishing and motor someone might throw down a piece of paper, vehicle laws and U.S. Coast Guard boating but the next visitor coming along would pick regulations. This leaves quite a few laws it up; and every once in a great while some --for instance, any State felony laws-- young person (usually a boy in an olive green which Park Rangers may not act upon with uniform in the company of several more young any more authority than that of a private men dressed similarly) might carve upon an citizen. To rectify this situation, many aspen tree, but woe to be to him if some other rangers in Parks with proprietary jurisdiction visitor saw the act. arrange to have themselves deputized by the local sheriff. There are various reasons why some places are more prone to vandalism than others. Per- To return to the problem of vandalism haps those which are harder to visit attract --this is covered under various sections of mostly those who care; consequently, problems Title 36 of the Code of Federal Regulations are minimal. Many other factors also appear and is handled by a citation if this ap- to have an influence: the design of a faci 1 ity;' pears warranted. The citation, a Nation- the appropr lateness of a sign (often a regu- al Park Service form, can specify that the latory sign that isn't really necessary seems violator either appear in court or not; if to attract abuse as the only means the public the citation does not specify that the has of expressing their frustration and indig- violator appear, he still has the right to nation); and the degree to which an area is do so, or he may simply mail in the bail kept up (we a1 1 know that one broken window forfeiture. This bail is sent, in our in a building seems to lead to many more or case at Channel Islands National Monument, that one set of initials on a rock seems to to the Central Violations Bureau of the U.S. overnight--literally--propagate several District Court in Los Angeles. If a vio- others). lator wishes a hearing, however, he is directed to the nearest U.S. magistrate. Frustration is probably one important In most of our vandalism cases, the mag- reason for vandal ism. Perhaps a desire for istrate hearing functions as the trial, and immortality accounts for the names and initials the Ranger who issued the citation has the on many rocks and trees. And, of course, many dual role of prosecutor and prosecution acts of vandalism result from simple lack of w i tness. appreciation or understanding of those features that we who work in a park consider so impor- National Park Service areas differ tant. greatly in the amount of vandalism they receive. I have had the privilege and It is no closely guarded secret that we pleasure of working at some of our more in the National Park Service are understaffed, remote areas, including Isle Royale Nation- and we long ago found out that we don't have al Park, a 210-square-mile island in Lake enough Rangers to place one behind every tree Superior, and Katmai National Monument, a in the hope of catching some violator. We 4200-square-mile wilderness in Alaska. I also long ago discovered that if we could have also worked at Joshua Tree National talk to a visitor before he commenced his park Monument, a beautiful desert area north of experience, the chances were good that he Palm Springs. Joshua Tree has a large would have a more enjoyable visit, all other things being equal, if we could gain the communication with a visitor, whether it's visitor's interest and give him some know- talking about the values of an area, or ledge, chances were good that we would have even just reminding him of our more commonly no problems with either deliberate or in- violated rules and regulations, stands a good advertent vandal ism (or any other law en- chance of insuring that your next contact will forcement problem). not be a law enforcement one.

Interpretation has several meanings, In parks where personnel are spread so but in its purest sense it seems to me a thin that law enforcement Rangers must con- very Socratic principle: to help someone stantly patrol just to cover the assigned else understand better an idea or an object 'beat", I will admit that their presence alone or a value--not to explain it to the other is a deterrent to a certain extent. But, in person, but to be a vehicle by which he may the long run (and often even in the short run), discover the proper answer himself. This it is not enough. Ultimately, those visitors is often a lengthy process and one which who understand what you are trying to provide we engaged in law enforcement may not have in an area, and who are even a bit protective time for. But in the National Parks, at about it, are the ones who will help to lessen least, we simply cannot afford to divorce the problem of vandalism. To my mind, law interpretation from protection. We have enforcement, by itself, will never be enough. found that just % form of positive

A Magistrate's View of Vandalism

Willard W. ~c~wenl

As a comparatively new U.S. Magistrate it We have worked out a sentence sys- has been a real "eye opener" to view my cal- tem similar to that of the Valyermo endar on the third Friday of each month and Ranger District~paythe fine, serve time see from 50 to 150 arraignments set for mis- in jai 1, or work off the fine ($25.00 per demeanors allegedly committed in the Nation- day) in the Los Padres National Forest. In al Forest area behind Santa Barbara. Approx- a few "hard core" cases I utilize the Proba- imately 40 percent of this number relate to tion Department to supervise the defendant's vandalism. conduct.

I was raised in Santa Barbara and spent A major concern I have relates to the much of my youth in Boy Scout and Explorer fact that the majority of those defendants activities relating to the "back country.'' who elect to "work off" their fine are those I own a small cabin on Figueroa Mountain and who are not charged with the aggravated of- I'm quite familiar with the geographical fenses. Usually they have camped in an un- area within which these offenses are com- designated area or entered a closed area, etc mitted. A defense attorney might consider and they are more or less the "good kids"; filing an appropriate affidavit of pre- their offense was inadvertent or unintentiona judice on that basis, but thus far it has I rarely receive these defendants back before not occurred. I readily admit that I am me on a repeat offense. I do, however, re- 'prosecution" oriented; that is, I find ceive an increasing number of defendants who it difficult to tolerate the treatment are charged with, and ultimately found guilty which public facilities receive from the of, aggravated offenses (destruction of pub1 ic majority of the defendants who appear property, assault on Forest officers, use of before me, and I continually search for narcotics, etc) . We' re now averaging seven appropriate lectures and dissertations trials per month and approximately 90 percent to express my concern when passing sen- of the defendants are found guilty. tence. Concurrently, I search for a sentence that will be meaningful to the I can only conclude that the sentencing defendant and perhaps serve as an ex- procedure which I have adopted is not serving ample to friends and acquaintances, a meaningful purpose as a deterrent, and that thereby discouraging similar conduct the law enforcement and Forest Service officers on their part. (and employees) concerned should, perhaps, make some recommendations to the Presiding United States Magistrate, Santa Barbara, Magistrate and to me personally on this sub- California. ject. I feel that we have reached a state where didn't know that any fee was due," or "There the "majority" of campers who use our back was no sign showing this to be a closed area.'' country are no longer the "good guys." I I always advise them that it is their obli- think that a majority, or at least a substan- gation to visit the nearest ranger station tial minority, are "bad guys"; i.e., vandals and ascertain the rules and regulations that and others who can only be properly discouraged govern the recreational use of the area and by the establishment of an entrance and exit conduct themselves accordingly. This "sounds'' gate system with appropriate fees charged to good but in fact demonstrates that the Forest absorb the administrative expense. We no Service has insufficient funds and personnel longer live in a country with a substantial to post these areas with appropriate signs con- number of poor people. Almost every camper taining the rules and regulations, whereas the would be happy and able to pay a reasonable camper who stops at a road stop gate can be fee for use of nicely maintained camping and immediately advised and will have little or no recreational faci l ities. The most important excuse for deviation from the said rules and factor is that the campers' nanes and license regulations. numbers would be registered as they entered, and this, I believe, would discourage them It is quite apparent that some changes from indulging in destructive activities. must be made. I would strongly support the establishment of check stations and fee struc- One last important point is that I con- tures that would properly defray the overhead tinually listen to the defendant relating expenses, including the necessary assignment ''extenuating ci rcumstances" that wi 1 I, he of local police and sheriff employees to these hopes, soften the sentence to be imposed. Al- areas. Santa Barbara is fortunate in having most inevitably the defendant will state: good men available, but hob; long the County 'There wasn't any sign prohibiting nude swim- budget will be able to Day for their services ming," or "We just pulled in to the camp and is a matter of continual concern.

Creative Justice Glenn Harnptonl

The subject I will briefly d iscuss is one judge and thanked him for the fair sentence. we, as resource managers, have no control over Since that time, the program has saved tax- but should have positive input to--the justice payers well over $500,000 on this one Ranger system. A number of years ago a very creative District. This does not include dollars judge in Antelope Valley, California, initiated saved in reduced costs of maintaining penal a Court Referral Program, by which persons inmates, or in such activities as fire pre- guilty of certain misdemeanors were allowed to vention, resource management projects, and work off their sentences on the National Forest. human resource rehabilitation. It also The judge gave offenders three choices: pay a doesn't include dollars saved in other areas fine, go to the slammer, or work off their where the program is in orogress. The most sentence in the adjacent Angeles National dramatic proof of its success lies in the fact Forest. Most violators chose working in the that many other judicial districts throughout National Forest. California are now in the orogram. For years many jurisdictions were reluc- The Court Crew Program started on the tant to employ the program because of the lyermo District of the Angeles National cloudy legal area of compensation for injuries rest in 1964, when two high school boys We've solved this problem with passage of the who had chopped down an oak tree were sen- National Volunteer &. All court crew person. tenced to plant and water seedlings over their Christmas holiday. Both boys wrote to the nel are now fully covered in case of an acci- dent. The accom~lishmentsin environmental qaim and overal l improvements are numerous. Example District Ranger, Valyermo Ranger District, are reforestation, wildlife habitat improvement Angeles National Forest, Forest Service, fire prevention, road maintenance, trail con- U.S. Department of Agriculture, Pear- struction, and campground construction and mair blossom, California. tenance. Although I've mentioned the dollar sav- servation and expanding his environmental aware- ings I think the real value of the program lies ness is worth many times more than the project in the human values. Here are a few advantages value. of the program to the offender: Work accompl ished by court crewmen does 1. For an individual who is unable to not duplicate and/or replace work contracted pay a fine, it removes the burden and stigma between Congress and the Forest Service. Per- of a jail sentence. manent government employees are not replaced by court crewmen. Most of the work is re- 2. For young offenders, it takes the fi- source-oriented work that must be accomplished nancial burden of paying a fine off the pa- in the years ahead. rents' shoulders and lets the offender serve his own sentence--thus teaching him personal The Court Referral Program is not an al- responsibility. Many young people are excep- ternative to the rehabilitation of a convicted tionally antagonistic toward the law enforce- criminal. It is designed as a form of reha- ment agencies and officers. This program helps bilitation for misdemeanors. And as sta- them to feel that law enforcement sees them as tistics point out, over and over again, most individuals, and that the system is not unfair f irst-time youthful offenders are only guilty or harsh with the first offender, who may have of a misdemeanor. A11 too often they feel committed only a minor offense. Also, not being they received a raw deal and a jail sentence treated as a criminal sometimes helps put in only increases their bitterness. Or, their check an otherwise rebel 1 ious young person. parents pay the fine and the young person goes f ree--f ree from financial and personal respon- 3. Families already receiving County sibility. Because we have long rejected the aid or some other form of public assistance goal of retribution as a legitimate aim of the need not further tax the public moneys by criminal law and of sentencing, the only re- having a family member in jail. maining method by which the general public may be protected is the reformation of the indi- 4. The work accomplished is pro- vidual offender into a law-abiding citizen. ductive and important and the person doing the work knows he's doing something con- The Court Referral Program has been in structive. It often gives him a feeling existence for 10 years. Returnees make up of pride in accomplishment and strengthens less than 5 to 10 percent. That's an out- his "work ethic." standing record when compared to the national one. Many court referral people return, but 5. The program allows people to work on as volunteers--to work on conservation pro- their days off or vacation time, so that they jects with their four-wheel drive clubs, etc. are not in jeopardy of losing their liveli- This is a testamonial to the human value of hood. the program.

The court crews have been a tremendous help Legally, the rational application of the in doing nontechnical tasks and freeing doctrine of the "least drastic alternative" Forest Service personnel for more highly preserves both of the conflicting values: the ski 1 led and technical activities. When need of society and the integrity of the Con- skilled people are sentenced they are fully stitution. The United States Supreme Court utilized in projects needing carpenters, con- has often used the phrase "less drastic means" tractors, pa inters, etc. in a First Amendment context.

There are also advantages to the com- It appears inevitable to me that courts munity: ultimately will adopt, in one form or an- other, the doctrine of the "least drastic 1 There is a minimum cost to maintain alternative." The doctrine is hardly ex- the program--clerical time at court and on the treme. The American Law Institute has recom- Forest district. mended a presumption in favor of probation of every offender. The American Bar Association 2. Instead of costing the County for a has declared that nonconfinement is to be day in jail, the offender benefits the County preferred over total or partial confinement and local community in labor for each day he in the absence of affirmative reasons to works. the contrary.

3. Every offender personally contributes All the National Forests and some of the his time to a constructive work project, thus Ranger Districts represented here today are compensating society for his offense. located in communities where there are Muni- cipal Courts. Go visit the judge or District 4. The educational value of introducing Attorney or Magistrate and see if you can work the court crew member to the practice of con- out a Court Referral Program.

DESIGN AND VANDALISM The Designer as the Vandal Michael ~orrisse~l

As our nation's population continues to of carving, burning, spray painting, 1 itter- increase and our cities become more overcrowd- ing, breaking, dismantling, or shooting. ed and impersonal, the desire to get away from These acts are most often directed toward it all and get back to nature becomes more and signs, trash cans, restroom facilities, and more important to everyone. Our increased af- other man-made facilities. Frequently, nearby fluence has directly affected our mobil ity and trees and vegetation are also the target of indirectly resulted in reduced time spent on the vandal. the job. In recent years, we have been expe- riencing a trend toward shorter work weeks and Vandalism is an act directed toward a longer annual vacations, enabling more people particular object or serving to make a philo- to travel further away from population centers sophical statement. If the act is committed and in larger numbers than ever before to out- against an object, then the object must be door recreation facilities. This available examined to determine the reason it is pro- free time and new-found mobility now gives us ducing deviant behavior. The designer and more leisure time for outdoor recreation. A managing agency are responsible for determin- byproduct of this increase in people fleeing ing why the vandalism is occurring. This form to the National Parks and Forest has been a of vandal ism is agency/designer initiated, and steady rise in vandalism. The increase is can be reduced or eliminated when a method is partly due to overuse, to inadequate, improp- implemented to identify and resolve the prob- erly designed faci 1it ies, and to the ignorance lem. The method is the development of a com- or ma1 ice of the user. munication feedback system, one that will facilitate a dialog between the designer, The National Parks and National Forests management, and the recreational user. Be- do not in themselves contribute to these phe- cause the user and operating agency are usual- nomena, but they directly suffer from it. ly in direct contact with each other, a form They represent the authority and provide the of communication already exists--it is the de- essentials for an active vandal ism program: signer who is usually isolated. Too often the soft workable material such as tree bark and designer's responsibility ends with the com- picnic tables; and metal signs--excellent tar- pletion of construction. gets for the catchless hunter. The sign be- comes the aggressor in the wilderness experi- Vandalism as a philosophical statement is ence or even on a day hike. Recreationists go a sociological problem. At best, the designer to a great deal of trouble and expense to re- can only facilitate this type of activity or move themselves from their daily routine and ignore it. The designer can not prevent soci- surroundings. They are looking for a differ- ological vandal ism. When it is stopped in one ent exper ience--"nature." Man-made struc- place it usually appears in another. tures, of which the sign is an example, are all-too-familiar reminders of what they are If shot-up signs and toilet structures trying to get away f rom--d irect ives. Man- represent aggression and hostility directed at made structures in a natural setting are an authority, the parks and forests, and the mutations, recognized by the visitor as tar- government, then designing bullet-proof signs gets to be shot at and defaced. and toilet structures does not solve the ini- t ia1 problem. The vandal on1 y moves on to What is vandal ism? Vandal ism is destroy- more vulnerable targets or changes his style ing or defacing someone else's property. At of vandalism. publicly operated facilities, vandalism is the mod if icat ion of a given object or landscape to Vandalism is also a form of communica- suit the needs of the individual, be it for tion. The vandal is saying to the designer, pleasure or purpose. Vandalism takes the form management, or even to society--"! don't 1 ike what you have done and I 'm going to change it." Assistant Professor, Department of Natural Resources, California Polytechnic State Uni- The people who rip off the top of the versity, San Luis Obispo, California. picnic table or the loose board on the storage shed to build a campfire are not vandals. wood and a whittling block. The operator and They are recreationists looking for firewood. maintenance crew feel the concrete picnic What is a camping trip without a campfire? If table solves many of the repair and mainte- a recreationist has to do this, then vandalism nance problems created by the vandal. The de- is purposeful and necessary, though purposeful signer searches for indestructible material only to the vandal. that looks and feels like wood, but won't burn and can't be carved. Yet, all the recreation- Many general izat ions could be made about ists wanted was a flat area to put their blan- who vandals areÑteenagers those people from ket on or a simple seating arrangement to keep the city, etc.--but this would serve no pur- them off the ground. At times, we have let pose in increasing understanding of the causes the vandal become the designer and inadvert- of vandalism for the designer. Each individu- ently the designer has become the vandal. al and type of vandal must be examined because vandalism is an act committed by individuals, Where do we go from here? We must first not by a homogeneous group. On the other accept that vandalism can not be stopped; it hand, there is one group of vandals who can be is here to stay. At best, we can only mini- examined more closely than the others because mize the discomfort to the user and the cost we know more about them. They are the design- of vandalism. We must recognize there is no ers and planners of outdoor recreational fa- absolute solution to vandalism. What appears cilities. Their selection of inappropriate as a solution in one situation, may not work material, their acceptance of poor construc- in another. tion and poor site design, and their misunder- standing of maintenance needs and durabil ity One problem confronting National or State has lead to a substantial amount of the damage agencies is that each jurisdiction covers many called vandalism. Misunderstanding and igno- different and varied types of subcultures, rance on the part of the user and the opera- each one producing its own form of vandalism. tion and maintenance crews results in vandal- The most practical path toward a solution to izing of newly constructed facilities. The vandalism is to open communication between the picnic table is an example. The vandal sees designer, the operator, and.most important of the wooden picnic table as a source of fire- al I, the recreationist.

Control of Vandalism--An Architectural Design Approach

John Grosvenorl

In discussing the Forest Service archi- The earliest Forest Service toilet struc- tectural design approach to vandalism in rec- tures were very primitive and simple, with reation structures, I will touch on three rough sawn wood, concrete block, or stone ma- types of abuse. The most obvious is overt sonry exteriors. The interiors were of simi- human actions, such as defacing buildings and lar character. Public use was low; therefore, breaking items. But there are also two addi- vandalism was slight. After World War II and tional types to consider. One is covert human in the early 19601s, many more people were actions~unthinkingdestruction and mistreat- using National Forest campgrounds, and with ment of facilities, such as flushing down toi- this increase of usage came more vandalism. lets objects that disrupt sewage septic action The architechtural designs became larger and or plug the waste lines, pouring gasoline or more sophisticated and the materials more fin- other volatile liquids into vault toilets, or ished, so that the repair costs of vandalism leaving doors or windows open to the elements increased greatly. Attempts were made to use to be damaged by wind, rain, snow and ice. materials and finishes that might deter or The third type of vandalism is nonhuman damage stop abuse. These included plywood interior created by natural agents, including water in walls with joints sealed and flush, then its various forms, earthquakes, or various painted with a two-part epoxy paint. Extra animals and birds. blocking and backing were added to toilet en- closures, doors, and windows, and details were simplified to keep repair costs down. Floors Architect, Cal ifornia Region, Forest Serv- were treated with epoxy and exterior finishes ice, U.S. Department of Agriculture, Pleasant were natural. Hill, California. As we moved into the late 19601s, public held the electrical equipment and allowed usage was increasing even more, so even bigger space for storage of suppl ies. Interior and more compl icated buildings were designed lights were also placed in the pipe chase to and constructed. We were st i11 looking toward keep pub1 ic access down and reduce damage and preventing overt vandalism in the designs and theft. Exterior lights were specially design- materials, but at this time we also began to ed for our buildings to be vandal-resistant. face the other two types of vandal ism. Over- Floors were drained fnto the pipe chase with sized waste lines were put in to accommodate onlyonefloordrainperbuilding. Natural rocks, sanitary napkins, and plastic bags. light was brought in through the roof to keep The height and location of water closets and the interior of the buildings well illumi- urinals for use by children and the handicap- nated. Ventilation was introduced at the top ped were considered. Larger door closers were of the block walls, with closure panels to be used to resist wind damage. Windows were installed in the winter. The designs were eliminated and sky1 ights or clearstories were again moving towards the simple but rustic ap- added to bring in natural 1ight. To provide proach with heavy flat wood beam roofs and heat to keep pipes from freezing in spring and rough concrete block walls. fall, tamper-proof electric heaters were found. The type of glue used in the plywood, Up to this point, I have been talking the species of trim, and the type of roofing only about toilet buildings, but the Forest materials were considered in areas where ani- Service has many other types of public use mal vandal ism was prevalent (porcupines have recreational structures. Our play structures eaten exterior plywood and woodpeckers have are simple, rugged, and very natural. Native ruined trim and roofs. materials are used with natural finishes. The scale of these structures is designed for the As we entered the 19701s, the cost of users. We have had very little vandalism. maintenance and the amount of vandal ism had Foot bridges in our campgrounds have been de- again increased, together with the number of signed using low maintenance, damage-resistant pub1 ic users, to a point where new design ap- materials, cor-ten steel open-web joists, proaches were needed. With the increased con- heavy natural redwood handrails and decking, struction costs, we found it necessary to re- and exposed aggregate concrete abutments. Our duce the size of the buildings to stay within designs for drinking fountains again are sim- our budgets. About this time, we discovered ple and natural, using heavy timber or stone that esthetics were a factor in deterring van- pedestals and stainless steel bowls. dalism; more pleasing buildings, lighter inte- riors, and good quality materials seemed to A fairly recent addition to our camp- keep the public from vandalizing our build- ground has been entrance stations. With these ings. On the other hand heavy, dark, dank buildings we have tried to establish an archi- spaces seemed to increase public misuses. tectural style for our campgrounds. They have With the decrease in the size of the building been in character; therefore, we have used and to keep the scale of the structure appro- lexon-type plastic windows to deter vandalism, priate for the location, we tried turning the with shutters for the winter season. The ma- axis of our roofs 45', giving us what we call- terials have been rugged (heavy timber or con- ed the "handkerchief roof." crete block) with natural finishes. Another new addition has been overlook structures a- In 1972, the Forest Service began an ex- long road systems and along reservoirs. These tensive water-pollution abatement program, have been designed to invite people to use during which hundreds of old toilet buildings them, and have been open and clean to reduce were replaced with modern sanitary structures. vandalism. Again, natural finishes and van- Again construction and maintenance costs were dal-res-istant materials have been employed. soaring much faster than money was becoming available. In order to better utilize the In our visitor center we have been aware funds available, the concept of separate men's of the possible effects of natural elements as and women's toilets was dropped, and the water we1 1 as human vandal ism. Native stone, con- closets assigned to a campground were placed crete, and heavy timber are used to create a in separate cubicles, each with an exterior building which is resistant to all three types lockable door. Once more materials were care- of vandalism. Materials and design concepts fully studied to give functional, attractive, have been used to create many structures which easily maintained buildings. Split-faced con- express a rustic bold character and invite the crete blocks with integral coloring selected public to use them. Hopefully, the new de- for the specific campground was used for the signs will not only invite use, but vandal ism- exteriors. Easi 1y cleanable interiors (facto- free use. ry-applied epoxy .finish or ceramic tile) were chosen. The need for fragile toilet parti- tions was eliminated by the either-sex con- cept, and an easily accessible pipe chase also Design of Campground Facilities

Briar cook1

Why do people vandalize outdoor recrea- Building Interior tion sites~areasthat have been designed for their enjoyment? Many reasons have been of- The interior of the toilet building fered, and the following may be most appl ica- should be clean and odorless. This can be ble to recreation areas and facilities: accompl ished by proper vent ing, and by seal ing concrete floors, using monolithic fiberglass a. Facilities are poorly maintained or interior liners, and using proper paints for improperly constructed; the interior. The monolithic fiberglass inte- rior l iner is constructed much 1 ike a shower b. Attention-getting or competition is stall and is in one piece with the toilet stimulated when some groups of people get to- riser built in. The toilet seat is similar to gether; a household seat instead of a small metal camper-type seat. There are no cracks or c. Some people may have a bad feeling sharp corners where debris can collect. toward an organization and it is a form of Building design should allow for easy removal getting even;" of damaged Iiners.

d. Lack of activity in an area creates Paper dispensers should be designed to boredom; accommodate more than one roll of paper per toilet seat, depending on the frequency of e. Some people simply get a kick out of maintenance visits. A two-roll dispenser or a destroying things. simple locked bar that will accommodate many rolls, designed so the bar will not allow the The targets for vandalism in outdoor recrea- paper to roll off easily, could be used. tion areas usually include toilets, picnic tables, fire grates, garbage cans, buildings, A11 floor surfaces should be completely and virtually any other object. sealed to prevent staining and odor absorption and to make cleaning easier. There is no possible way to anticipate or stop vandalism without an inexhaustible budget If 1 ighting panels are used, they should and staff. The best approach is to examine be nonbreakable. Lights should be considered the most frequent vandalism occurrences and for night use, even if they have to be bat- design facilities to help eliminate any recur- tery run. rence or to lessen the extent of the vandalism. Floor-level vents on two sides of the The following recommendations are drawn building are essential for ventilation and from our recent work on toilet and table de- evaporation of cleaning water and urine depos- sign. its. These vents must be constructed of stur- dy material in order to be vandal-proof. The VAULT TOILETS screens should be located so as to prevent people from kicking them out. In a slump- Wherever possible, vault toilets should stone building, place the screens between two be converted to low-volume water or oil recir- decorative slump-stone blocks (blocks with many culation toilets. A booklet on maintenance holes). and design of vault toilets is available from the author. Bui 1d ing Exterior

Metal doors may prove more durable than wooden doors. Hydraulic door closures are Staff Engineer, Environmental, San Dimas being used to help prevent people from slam- Equipment Development Center, Forest Service, ming doors. U.S. Department of Agriculture, San Dimas, California. All exterior concrete slabs and concrete block or slump-stone should be sealed with a Fiberglass, concrete, or steel should not clear concrete sealer. This is to prevent be considered for the vault portion of the paint from being absorbed into the block or toilet unless the concrete is acting as a con- slump stone, and to make its removal easier. tainer for Hypalon or cross-1 inked polyethvl-, - If the concrete slab all around the building ene. is sealed, stains will not be so noticeable FLUSH TO I LETS when the interior is washed out or when the vau lt is pumped. Building Interior

A11 signs should be securely bolted to Wall-hung urinals should be adjusted so the concrete block, s lump-stone, or exterior that both children and adults can use them. wood frame. Floor-mounted units satisfy all needs. Part tions next to urinals should be designed to Vent ing Techniques withstand the corrosive effect or urine.

Proper venting can by itself eliminate If water closets for the handicapped are most odor problems during the use periods. used, a regular one should be installed also. The size of the vent should be the same as the Children and small adults have a hard time accumulative size of the vault toilet riser using the water closets for the handicapped. openings. For every vault toilet seat, ap- proximately 100 square inches of vent area is No wood paneling should be adjacent to required. The vent should go from the vault the water closets or urinals because users through the building and terminate at the will carve on them. All floors should be ce-iling level. Insulation should be placed on heavily sealed to prevent absorption of odors the joists within the attic so that the heat and to make cleaning easier. generated in the attic will not permeate the use compartment. The roofing material and All faucets should be foot or knee oper- construction should be such as to induce solar ated, with 1 gallon per minute flow control heat into the attic. A vent, a little larger devices placed in the lines. This will pre- than the vent terminating at the ceiling level, vent a great deal of cleanup maintenance by should be constructed through the roof so that keeping the bowls and fixtures cleaner. Paper it is above the ridge height. This vent dispensers should be designed for more than should be screened for f1 ied. one roll.

The sun will heat the attic causing the The interior should be well lighted and hot air to rise, and air will be pulled down easily cleaned. into the vault through the toilet seat. Thus, the odor in the use compartment will be el imi- Bui Iding Exterior nated. Some large rocks or other heat-absorb- ent material placed in the attic may keep this The material used on the exterior should flow of air going on into the early evening. be functional, locally available, and inexpen- sive. The privacy screens should be primarily A rain cap should be placed on the roof functional, rather than esthetic. If concrete vent to keep water out of the attic. The bot- or slump-stone is used, it should be sealed tom of the rain cap should be at least 3 inch- with a concrete sealer. es above the top of the vent pipe so that the PICNIC TABLES wind can flow easily between the two. The as- piration of the attic air due to wind is near- Fiberglass picnic tables or covers for ly as effective as the solar heat effect. existing wood tables can be made to very closely resemble wood, to be heat resistant, Vault Design and to resist carving with knives. The fiber- glass helps prevent food from being absorbed The vault should have an impermeable lin- into the surface of the existing wood tables er or container (either Hypalon or cross-l ink- and presents a cleanable surface: a damp ed polyethylene). It should be sloped 1 inch cloth will clean off most normally present per foot from inside the building to outside, food remains. should be no greater than 4 feet deep, and should have a minimum 24-inch-diameter manhole In conclusion, all designs should be cover on the outside of the building (to the geared toward the conditions in a given area rear or side). rather than to satisfy a designer's ego. Design vs. Vandalism Arthur C. Danielianl

Public schools, civic centers, public 1i- archi,tectural solution for a new teen center braries, youth activity and recreation cen- in an old and economically deteriorated commu- ters, and other public-use facilities in urban nity with high vandalism rates will be quite or suburban places are designed by architec- different from one designed for a new communi- tural firms in the private sector for various ty whose crime rate and related costs are not governmental agencies. Each project is de- as sensitive issues. Similarly, a toilet fa- signed in response to criteria, including bud- cility located in wildland areas, where the get limitations, developed by the administra- effects of vandal ism absorb perhaps 60 percent tive agency. The architect, during the design of the operating budget, is likely to require process on all types of buildings, must main- far more concern for durability than a teen tain a proper perspective and sensitivity with center in a new suburban community where van- respect to numerous design considerations, in- dalism might account for less than 3 percent cluding vandalism. The level or priority of of the operat ing budget. the design criterion related to the durabil ity or indestructibility of a structure must be Too often, buildings are designed with weighed carefully. Nothing prevents the ar- l ittle or no respect to considerations of 1 ife chitect from designing completely indestructi- cycle vs. initial cost. For example, the cost ble buildings, other than his desire to satis- to maintain a public school over its 1 ife span fy more heavily weighted considerations and of 50 years is some 10 times its initial con- budget restraints. struction cost; yet in most cases, the budgets establ ished for such structures preclude the Good architecture is the proper blending use of optimum quality materials, which may of basic considerations of function, econom- cost more initially but in the long haul save ics, and esthetics. In the absence of concern substantially more. Budgets for buildings, for economics, for instance, the designer especially high-public-use structures, should might produce a piece of sculpture, not archi- be determined from 1 ife cycle studies, not by tecture. In establishing priorities or arbitrary limits. The architect working with placing emphasis on any particular design con- his client can most effectively establish the sideration, whether it be concern for vandal- appropriate budget for any given project dur- ism or concern for delicate design, the archi- ing the initial or conceptual phase of design. tect must be aware of these underlying influ- ences related to the urban-setting: Let us examine a few good and bad con- cepts of site planning, architectural design Social -economic conditions material specifications, and landscape design, to high1 ight problems of vandal ism and some Age of community potential solutions.

Relative rime rate and trends Older communities, especially in deterio- rated and abandoned areas, become attractive Attitudes and values of the people nuisances or targets for vandals. Conversely, in lively areas, where multiple activities in- Density o the level of community anonym- volve people, the'people themselves become ity and natural deterrents to acts of mischievous van- dal ism. Existing eve1 and respect of urban qual- ity. It's unfortunate that some magnificent public spaces, such as the Santa Ana Civic The relat ve strengths of these elements Center, are planned for shamefully 1 imited have important influence on the design. The use. These vast-scale and richly developed urban spaces are used on1 y during normal work- President, Danielian, Moon, llg and Associ- ing hours. A mixture of pub1 ic, quasi-public, ates, Architects/Planners, Newport Beach, and private commercial uses could have en- Cal ifornia. hanced and expanded the use activities into

Preventive Planning to Reduce Vandalism

H. Ernest Reynolds!

The widespread and growing problem of allowed? You probably end up driving to the vandal ism can only be solved if we make dra- general store and paying a fancy price for matic changes in our planning process. The charcoal briquettes. Might the thought just old approaches are not working, so let's think run through your mind that you would sneak out creatively toward a new approach. into the woods and collect some wood for your fire? And thereby be considered a vandal? Our firm is currently compiling the re- sults of a questionnaire sent to park direc- Let's take another example in an urban tors in selected cities and counties through- park. The Planning Department of a city de- out California. So far we've had a 30 percent cides that a particular area should be mainly response, which is fantastic. It shows the inexpensive homes with three or four bedrooms. intense interest in park financing, mainte- This means that there will be many mothers and nance, and operat ion. The prel iminary data tots. This further means that the community also show the increasing problem of vandalism. park will likely be designed specifically for these users. What happens to the 11- to 15- Parks have been a very important part of year olds? If you have ever had any children my entire life. I've worked in them, played of junior high school age, I think you'll a- in them, planned them, and devoted years to gree that they are the most active and orneri- discovering ways to make them serve the public est group imaginable. Yet, we plan our parks better while at the same time preserving envi- so that they have little appeal to this group ronmental values. It's because of my sincere during the daytime. Instead, they gather in personal and professional interest that I groups at night, where the temptation is great value this opportunity to share 10 ideas for to show off their budding maturity by acts of reducing park vandal ism. vandal ism.

]--Identify your vandal. Remember that Aren't we as planners, foresters, and your vandal is also your park user. Who are park officials often guilty of laying the the groups who desecrate our parks? Have you groundwork for park vandal ism? Think about ever tried to identify them? I know from my it. experience that some of these are interest groups we have ignored over the years. There 2--Listen to the land. Before putting probably isn't any park manager who hasn't your pencil to paper, get to know the land you turned his back on permitting two-wheeled are working with. If it is a wilderness or bikes, four-wheeled off-readers, skateboard- forest land, sleep with it. Know every tree, ers, hang gliders, gun clubs, even nudies from rock outcropping, drainage channel, and view using our parks. Perhaps some of the vandal- by heart. Know the soil, rainfal I, vegeta- ism is due to the people that we have kept out t ion, and compact ion and erosion potential . of our parks. We should ask ourselves whom we Identify views, amenities, and features on a have left out and why. base map and superimpose all elements of im- portance until the usable landforms stand out How would you feel as an urban resident clearly. Also, consider the less obvious con- if you arrived at a remote campground and you cerns, such as noise, wind, light patterns found the same system used as in the super from passing vehicles, etc. market checkout stand to gain access to a camping spot? Then, to make it worse, you 3--Listen to the people. When was the found that the camping area was designed for a last time vou went out into the ark and talk- different type of camping vehicle from yours. ed to the people using it? here may be a few What thoughts run through your mind when you of you who do this routinely, but I doubt it. go into a camp area planning to gather wood And yet, unless we get from behind our desks for fire and you find out that it is not to talk with men, women, and children deriving benefits from our parks, all our planning and Reynolds and Associates, Environmental A- operation philosophy is real ly theoretical nalysis Foundation, Newport Beach, California. rather than actual. I think you must realize that the vandal is not just another "turkey" The equipment is static, often understressed, from the city, but a person with needs that and has limited life. I am disheartened at are not being satisfied in our parks at the the trend toward fiberglass equipment. My ex- present time. Oh, yes, there are some vandals perience has shown this material to be highly who just don't know any better or they have susceptible to early aging and changes. Avoid destructive tendencies because of a psycholog- it wherever possible, and instead build ical problem. But I'm not really talking a- stronger and longer-last ing facil it ies--better bout them. I'm talking about the person who culverts, restrooms, and community buildings. vandalizes because he is angry. Angry because Don't hesitate to be a pioneer. I say this he feels that he has been left out. There is because in all sincerity I feel that is is up much that you and I can do, not just to hear to the planner and designer to be the source what people think about our parks, but to of new ideas. We should be the ones telling listen to their needs. There is a difference. the manufacturers what we need and what we Hearing is merely the physical act of receiv- want for long-range park usage. The manufac- ing a sound, whereas l istening imp1 ies under- turer and the workmen all look to the designer standing. for guidance. If we don't provide this, then we deserve the second-rate equipment and mate- 4--Kick your planner. Be sure your plan- rials we now have. ner is awake~gethim out of his office--be- fore, during, and after the park project. En- 7--Design for the centuries (not 1380). courage him to try new communication tech- So many thinas- Seem to have a lifespan related niques and workshop processes. Send him to to man's own; not so a park. Parks remain-- conferences and allow him to work with other they often last for centuries, and should. So professionals. Be sure the planner knows all will our pub1 ic lands and remote areas, if the operat ion and maintenance problems. Have history is correct. him spend a week with a crew, or find ways he can improve operations through design. But The question is what do we do with a par- most important, be sure he is awake--and cel of land that will be here for centuries, learning everything he can about your agency but which is part of a 1980 recreation plan. and its problems. The planner is the man in Well, 1 believe we must design for the longer the middle. He should be getting feedback period of time. We need heavier construction; from the bottom up and from the top down. Un- greater strength, durability, and usability; less he gets this, he cannot be effective. and less intensive use, but more durable ele- If you use outside consultants, kick them ments. We also need more sites with fewer, harder. They need to get more feedback from better placed, and more durable picnic and more people in less time in order for them to camping spaces. Each planner should ask him- offer added value. Don't be afraid to mix self what his solution will be like in 20 to outside consultants with staff on a given 50 years rather than 5 years from the date of assignment. The competition and interaction completion. can do wonders for both. Tremendously effec- tive problem solving can be accomplished in So what about materials? Vandals destroy short periods of time from this synergism. everything in sight if a park is not policed.

5--Throw out the budget. "Cheap is the In designing for the next century, we vandal's meat." The budaet~often< broken a- recommend a return to stone and other masonry, part and allocated before any of the above reinforced concrete, and hardwoods, as well as steps have been taken~becomesa catalyst to wood-imprinted concret". We suggest fewer vandalism. First, relate what you found out man-made elements, not more. Fewer signs, but from the land to the needs of the user. See better detailed; fewer log curbs, and no fi- if the site is adequate, whether boundaries berglass any place. We suggest reinforced need adjustment, whether the capacity to ac- concrete restrooms built into the hillside-- commodate exists. If the answers are affirma- opening only on one side--and that side to tive, then prepare at least three to five a1- public view. ternative concepts, any of which could be a solution. A word of caution: don't confuse What about policing at night? We suggest variations on a theme with alternatives. that County government, for example, use Coun- ty parks for fire station sites, particularly At this point, you should prepare a com- when gated park entries are impractical. This posite plan or synthesis. Evolve it using would place people and light within the park the workshop planning process. Based on this 24 hours a day. It is also a cost-effective "best1' concept, do a cost estimate and decision, in that fire stations are otherwise budget related to the life of the facility. placed on expensive land, purchased for a sin- gle use. Fire stations themselves can then be 6--Burn your standards. Most equipment multi-purpose park structures and enclose a standards and most catalogs are out of date. park office, pub1 ic restrooms, l ibrary, post office, etc. We can no longer afford single- ly and concisely through graphics. Using use, single-agency, single-purpose thinking. pages and placards full of rules summarized For multi-purpose structures we can afford in penalties is offensive communication. One vandal-resistant materials. Similarly, park- would not do that to a guest in his home. I ing and other facilities should serve multiple advocate simple, clear, friendly graphics that users. exude a welcome. Remember, the user still I think we are making unhappy users, and feels the pinch of financing public works, so hence more vandals, because of the current he views public land as "his" space. This should be emphasized in all agency policies. trend to a planning policy of keeping campers In fact, if the user realizes he paid for it, close together, with spaces more compact for he may respect it more. To be greeted with a control and less damage to the forest area. penalty clause at the front door and rules of Theoretically, it provides more safety, less use seems to be poor public relations. Ad- policing, etc. This to me is a formula for mittedly, this view is oversimplified, but the disaster. Too many people, overuse, small message given the public is extremely impor- spaces, too many controls, fiberglass benches, tant; and it is often the very first impres- catalog fireplaces, and regimentation cause sion received by the park user. Funds spent stress, just as too much noise, light, smoke, on professional graphics, concepts, and commu- dust, etc. result in complaints. nication techniques are usually not wasted-- A low-density campground, open and well nor is the time spent on a warm welcome. spaced, with free areas and fewer controls will result in a better long-ranged facility-- SUMMARY and allow flexibility for future adjustments. We planners are partly responsible for vandalism--and vandals are people, users whose I believe strongly that overcrowding in needs are not met. forest and park campgrounds is the cause of the worst vandalism of all--penetration and Decreased vandal ism wi 11 resul t f rom pro- destruction of the "back country" by those viding facilities that are rugged--yet satisfy still seeking to get away for a while. We all age levels in a friendly, uncrowded atmos- must provide that escape through planning pre- phere. sent spaces better. Facilities must relate to the site in a 8--Experience the errors. One serious functional yet sensitive manner, with an mistake we designers make is that we do not go understanding of the holding capacity of the back and experience our errors. We also make site. a lot of unnecessary excuses. We're human and Budgets and standards need to change in we are learning as we go. We become accesso- their relative importance, and research funds ries to vandalism, however, by not revisiting must be used in case studies. the work that we have designed. We should re- turn to the park and actually camp out. Min- Overuse is an extreme threat in the fu- gle with the users. Observe. Ask questions. ture, and crowding will cause stress and re- Certainly the users will appreciate the ex- sult in greater problems than can be easily pressed interest. Besides, we may learn some- solved. thing. And last, each planner has many choices 9--Correct your problems--be innovative. to make, and lots of room for growth to im- Once problems and errors (new and old) have prove his designs--it's a much broader ques- been identified, be aggressive and innovative tion than new coatings and finishes--it's pre- in solving them. Don't go on the premise, vention through process-oriented design ...and ''Well, we missed on that one; we'll not do the most eyes are on the planner. same thing next time," and then leave the REFERENCES problems unresolved. Instead, let me tell you Newman, Oscar what I think is an innovative approach that 1972. Defensible space. The MacMillan involves budgeting for innovation. Company, New York. 264 p., illus. How can you innovate? By borrowing a technique used in progressive industrial orga- Sommer, Robert nizations. They too set up budgets for capi- 1969. Personal space, the behav oral basis tal investment, operation, maintenance, etc. of design. Prentice-Hall, Eng ewood But they go one step further. They set aside Cliffs, New Jersey. 177 p., i lus. funds for cost-effective design research. We Proshansky, H. M., W. H. Ittelson, and L. G. can use the same technique, but with a minor variation. Instead of each individual city or Rivl in, editors county bearing the total cost of this program, 1970. Environmental psychology: man and agencies and counties should get together with his physical setting. Holt, R nehart and others having common needs. Set up a pool of Winston, New York. 690 p., il us. funds for test sites and learning workshops. 10--Communicate through graphics. Last, but extremely important--communicate informal- SOCIOLOGY OF VANDALISM

Photo: East Bay Regional Park District

Research to determine the kinds of recreational opportunities desired by different groups can help to ensure that varying cultural needs are satisfied. Vandals Aren't All Bad

Michael L. ~illiamsl

Vandal ism is one of many diverse activi- an early but influential sociologist, noted ties in the broad category of criminal behav- that crrme was a normal feature of a complex ior. For sociological analysis, then, both society. Crime, moveover, had a positive criminal behavior and vandal ism must be de- function in that detection and punishment of fined. violators served to reinforce collective be- lief in the social system and its values. Any behavior in violation of the criminal law is criminal behavior. If there is no Although it is difficult to condone statute covering such behavior, there can be, carving one's initials on a picnic table, given our constitution, no violation of the spray-painting a rock or tree, plugging up criminal law. Of course, practically speak- the plumbing in a restroom, or dumping over ing, matching statutes with concrete behavior trash cans, we nonetheless enshrine similar is not always a simple task. However, that is assaults on our environment when perpetrated not our problem. by a historical figure or an ancient unknown, or when the act itself reinforces a collective Vandalism is somewhat more difficult to or national consciousness. Thus, when an define. If we turn to the penal code we find enterprising hotel proprietor pushed some that there is no such offense as "vandalism,'' burning embers over the top of Glacier Point though the definition of "malicious mischief" in Yosemite, a tradition was begun that lasted closely corresponds to a commonsense defini- over seventy-five years and was halted not be- tion of vandalism. "Malicious mischief" is, cause it was wrong in principle, but because simply, the malicious or intentional injury to it was causing a massive traffic jam and law or destruction of real or personal property by enforcement problems. In the same National someone other than the owner. The law, Park, someone actually carved a tunnel through though, tells us nothing about how and why a Giant Sequoia. Until the tree fell down a people engage in acts of malicious mischief or few years ago, this was another highlight of a vandal ism. trip to Yosemite. Today we attempt to pre- serve the acts of Indians who defaced the There are several related issues here: walls of caves hundreds of years ago, an act that, if done today in the same location, 1. Acts of vandalism do not differ qual- would result in prosecution if the culprit itatively from other types of human behavior. could be caught. Finally, let us not forget the grandest act of all. First conceived in 2. Acts of vandal ism occur in the course the early 19201s, Mount Rushmore, with the of or as the results of social interaction. faces of Washington, Lincoln, Jefferson, and Roosevelt, is undoubtedly one of the most 3. The creation of laws and administra- revered examples of the sanctioned destruction tive rules (as in national, state, and local of the public domain. parks and recreation areas) serves to focus both official and public attention on the The question, then, is what distinguishes vandal ism problem. these acts from the senseless destruction and defacement normally associated with vandal ism? The first point, then, is that acts of The only response that I can defend is that vandal ism do not differ qua1 itatively from none of the last described acts were viola- other types of human behavior. Emile ~urkheim; tions of the law at the time they were commit- ted. It should be noted that the exact nature Assistant Professor, Department of Sociol- of the act did not go unnoticed by the propo- ogy, University of Maine, Portland-Gorham. nents of the "creation of a symbol of the na- Durkheim, Emile tional spirit." For work to go ahead on Mount 1933. . On the division of labor in socie- Rushmore, both State and Federal legislation ty. Macmillan. had to be enacted. Otherwise, by law the 1938. The rules of the sociological sculpting would have constituted the inten- method. Free Press, New York. tional destruction and defacement of the natural environment. Each of these acts, is the assertion that acts of vandalism occur though, were completely legal at the time in the course of social interaction. wade3 they were actually undertaken. has similarly noted, "...In actuality much property destruction by juveniles is a sponta- Yet if I maintain that the only distinc- neous outgrowth of group interaction having tion between vandalism and nonvandalism is social, cultural and ecological determinants." that the destruction or defacement of property Because vandals are seldom apprehended in the is illegal, then I am asserting that destroy- act, it is easy to suppose that the culprit ing a restroom is qualitatively the same as was acting as an individual--a supposition destroying "an old park headquarters" to make which, of course, reduces the visibility of way for the new, or that carving one's initials social interact ion. However, the research of on a tree is merely a small-scale version of Wade and Stanley cohen3 indicates that "van- what logging operations do to forests, namely dal ism is almost always a group rather than an deface and/or destroy. Clearly there is a individual offense." difference, albeit a culturally defined dif- ference. Namely, one class of activity is of It is this point, that vandalism most direct economic importance and the other is often is a group offense and occurs as the not. Another way of stating the distinction result of interaction between group members, is that one class of activity has utility but that remains remarkably unexplored by sociolo- the other does not. The reason the distinc- gists.4 By illustrating the interaction which tion is merely cultural is that our culture accompanies acts of vandalism, the similarity readily provides us with a rationale for the between vandalism and other action, such as destruction that necessarily accompanies log- play, will be illustrated as well. Two exam- ging operations, whereas we are usually hard ples immediately come to mind where the play put to discover logical reasons for the seem- situation merges with activity that could be ingly wanton destruction of property that we defined as vanda 1 ism. cal 1 vandal ism. The first was provided by a colleague. Recently, however, sociologists3 have When he was a boy back in Minnesota he went noted, based on 1 imited data, that such hunting with a friend. On the day in ques- 'senseless" and apparently nonrational vandal- tion, though, game was not to be found. Not a ism is, from the point of view of the perpe- shot was fired until one youth challenged the trator, a rational and instrumental act. To other, "Bet you can't hit that glass thing up return to the main point then: vandalism is there." The other boy could, and the rest of not qualitatively different from other types the day was spent shooting glass insulators of social action. It is clear from my per- off power poles. spective that there are many, many examples of destructive activity which differ from those The other case that comes to mind dates acts we refer to as vandalism only in that from my own boyhood. Once, I and the other they are not violations of the law. And if neighborhood children of the postwar baby boom the law is the only distinction one can make, were engaged in our usual after-school dirt then it is likely that from time to time the clod battle. This afternoon, though, we law will be violated. drifted into an orange grove. As might be ex- pected, dirt clods quickly gave way to oranges The second point I would like to address as symbol ic missiles of destruction. It was not until a mother, unfortunately mine, look- Cl inard, Marshal 1 B., and Andrew L. Wade ing for her wayward son, discovered the battle 1958. Toward the delineation of vandal- that it was brought to a conclusion. ism as a sub-type in juvenile delin- quency. J. Crim. Law, Criminal. and In both examples the destruction which Police Sci. 48~493-499. occurred was largely incidental to the act. Cohen, Albert Insulators were shot as demonstrations of 195.5. Delinquent boys. Free Press, New marksmanship rather than objects of destruc- York. tion. Oranges served as missiles rather than Cohen, Stanley objects to be destroyed. In addition, these 973. Property destruction: motives and particular acts were not solitary but occurred meanings. p. 23-53. In Vandalism. Co1 in Ward, editor. Architectural Instead they have focused on the epidemi- Press, London. ology of vandalism. Much has been written Wade, Andrew L. about the sociocultura1 variables associated 1967. Social processes in the act of with vandalism but little about the act of juvenile vandalism. in Criminal be- vandalism itself. See: havior systems. Marshall B. Clinard Bates, Wi 11 iam, and Thomas McJunkins and Richard Quinney, editors. Holt, 1962. Vandal ism and status differences. Rinehart, and Winston, New York. ~ac.Socio. Rev. 2:89-92. in the course of interaction between two or his indignation. Fired employees or persons more persons. By interaction I do not mean to prevented from entering a park (for whatever infer that extensive discussion must preface reasons) may perceive that they have been any act of vandalism. Interaction simply treated unfairly and seek to retaliate for the means the communication of information. Thus, wrong they have suffered. Though this type of in the first case the dare or "bet" consti- act seems to be qua1 itat ively different from tutes a tentative proposal for action. The those which occur as an extension of play, actual shooting of the insulator, then, re- there is no need to assume that it cannot be affirms the proposal as being appropriate. conceived of as normal or that it occurs in Similarly, throwing an orange can notify other the absence of interaction with others. First, participants of a new missile. Again the re- many people retal iate every day in l ittle ways sponse to the initiation of the act of vandal- against persons (husbands, wives, or close ism reaffirms the behavior as appropriate in friends, etc.) who have "done them wrong." So -that situation. the mere act of retaliation is not, intrinsi- cally, abnormal. Likewise, because the actual One need not propose, then, that juve- retal iatory act may be the work of a sol itary niles who engage in such behavior are defi- individual, there is no reason to assume that ciently social ized or are bad kids. In fact, a good deal of interaction did not precede it. if confronted with examples of good behavior It is easy to conceive of a situation in which and bad, I would expect the children would others convince a person that he has been un- know the difference and would choose to act justly treated and provide him with a course out "good" behavior over "bad," at least in of action. the abstract. But the point is that in the real, concrete situations children and adults It has been asserted that play and retal- must confront, "good" and "bad" are seldom so iatory acts are normal aspects of everyday clearly distinguishable. Iife. In addition, vandal ism occurs as the result of interaction between two or more in- Neither should the above examples be dividuals. When they jointly engage in acts taken to indicate that only juveniles engage of vandal ism, the interaction is fairly ob- in acts of vandalism. Adults have been known vious. However, even solitary acts of vandal- to carve their initials in tables, tear limbs ism are probably preceded by interaction. In off trees for campfire wood, and drive four- short, it appears that when one focuses on the wheel-drive vehicles in a manner which is de- actual act of vandalism and the interaction structive to terrain. Each act, in its con- which precedes such acts rather than the pro- text, can be normalized, and, like the acts ducts of vandal ism, apparently senseless de- of juveniles, usually occurs as the result of struction is not different from any other interaction with others. Thus, when on patrol social action. with a Deputy Sheriff I observed the following incident: This assertion returns our focus to ad- ministrative rules and laws which serve to A four-wheel-drive pickup with roll bars distinguish vandalism from other categories of and extra lights was stuck in the middle social action. Earlier I asserted that "the of a large, muddy bog in a field. When creation of laws and administrative rules the Deputy asked what happened, the owner serves to focus both official and public at- said, "We were just driving around and he tention on the vandalism problem." They do so said, (pointing to another man) 'Let's go in two ways. For example, a few years ago a through that field.' So I did." When back-country survey in Yosemi te noted that the Deputy said, "Don't you know this is there were literally hundreds of fire rings private property?" the man lamely said, around one of the Cathedral Lakes. This and "I didn't think it would hurt anything." similar findings led to the development of a policy which restricts the use of campfires in Though vandalism is frequently normal activity the back country to a limited number of camp- or an extension of normal activity, play, and sites. In addition, an attempt was made to though it is usually (according to the l imited break up many fire rings and a pol icy was im- research) a group rather than a solitary phe- plemented which allowed fires only in previ- nomenon, the possibility remains that it is ous] y constructed fire rings. sol itary. Thus, property may be destroyed or defaced as a form of retaliation or retribu- This example illustrates that a problem tion, especially when a person perceives that was recognized that resulted from legitimate he or she is impotent to bring about a legiti- but unwise or at least unesthetic actions of mate solution to a problem or conflict with previous backpackers and horsepackers. Crea- another. The person who plans and is bent on tion of the rules which restricted locations such an act is, of course, difficult to foil where campfires could be bu ilt and spec ified because (1) he develops a plan, and (2) he that they were to be built only in previously perceives he has a moral or just reason for constructed fire rings constitutes an ex post facto recognition that such acts constitute to occur. Other methods, such as design, may vandal ism in the form of defacing the natural be utilized to affect physical settings in environment. These rules then call attention such a way as to minimize vandalism. Proac- to the vandalism problem. But they do more. tive methods--programed activity--may be em- To the extent that the locations of existing ployed to channel park and recreation area fire rings and legitimate locations for camp- users into nondestructive courses of action or fires is known to officials, construction of even behaviors which benefit the recreational campfires in other than prescribed locations setting. Finally, reactive methods in the constitutes a persistent vandalism problem form of a traditional law-enforcement program, that could not exist before the enactment of may, from time to time, be the only solution the rules. A second consequence of the new to acute vandal ism problems. rules certainly was not intended by park offi- cials but occurs nevertheless. Because there Finally, as a consequence of the third are relatively few locations where campfires point, that the creation of laws and adminis- are a1 lowed, backpackers and horsepackers tend tration rules serves to focus both official to congregate in those locations. Firewood and public attention on the vandalism problem, soon becomes scarce and campers, expecting to it becomes apparent that officials should at- have a fire but frustrated in their search for tempt to formulate the expected results of any fuel, frequently lift their eyes skyward to proposed rule or pol icy. They might then a- still standing trees, both living and dead, as void the predicament of the doctor who had to sources of fuel. As a result of this, I have say, "The operation was a success but the pa- seen a magnif icent, knarled old snag reduced tient died." In other words, the proposals to little more than a great stump. for controlling interaction settings must be closely scrutinized for unintended consequences Thus, there are two ways in which the and the effects of such consequences should be creation of rules and laws in turn creates and closely evaluated. It seems that most people focuses attention on vandalism. The first is want to obey rules, but these are not always simply by labeling previously legitimate be- the rules you or I want them to obey; some- haviors as rule violat ions--vandal ism; the times they are the rules of their peers, second is by placing those people who attempt friends, or some other reference group. It is to act in compliance with certain laws and up to those to whom our parks and recreation rules in a situation that is conducive to facilities are entrusted to see that the rules their violation of other laws and rules. conducive to preservation and protection are relevant above all others when the public is It should be clear that acts of vandalism at play. cannot be easily controlled by those who are handed this task. Yet we can take a cue from A final note of pessimism is in order, the previous discussion to find a possilbe though. Do not forget that while camped near so1 ut ion. Glacier Point in Yosemite, John Muir, the man perhaps most commonly associated with the con- Consequences servation and preservation of our natural her- itage, once set fire to a large fir tree in The consequence of the point made that the middle of a meadow. His audience, then vandal ism is normal or, at least, an outgrowth President of the United States Theodore Roose- of normal, legitimate activity is that we can velt, the president instrumental in creating expect that, despite efforts to control or more National Park and Forest land than all of eliminate vandal ism, it will persist. the presidents who preceded him shouted, 'Bully, there's a candle that took five hun- The second point, that vandal ism occurs dred years to make." Though t imes change, al- in the course of or as a result of social most a11 members of society will on occasion interaction, provides some hope for 1 imited find themselves in a setting in which destruc- control of the vandalism problem. The solu- tion, or a spectacular display, or leaving tion lies in an attempt to gain control or one's mark, seems to be the most appropriate interaction settings. activity at that time. The problem then is not merely, "Can we el iminate or at least con- Many methods may be utilized. Some, such trol vandal ism?" but "Can we do so without as education, are not directly related to the eliminating the essence of the recreational actual situations in which vandal ism is 1 ikely environment we seek?" The Message of Vandalism

Arthur W. ~a~illl

The common perception of vandalism is of a1 Bureau of Investigation as contributing to a uniformly wanton, meaningless, and senseless vandal ism (Bennett 1969). Seeing human needs crime. When motives for such behavior are not as the basis of the problem, Cohen (1973) sug- readily apparent, we are quick to call it mo- gested the need to get money, to advance a tiveless and label it as deviant. Those who personal objective, to express social protest, are wronged or harmed by vandalous behavior to gain revenge for some imagined or real are likely to consider the deviant as sick or wrong, to gain release for hatred, and, in defective or the product of his environment children, to express curiosity and competition (~rmstrongand Wilson 1973). But, are persons through spontaneous play. who commit vandalism really afflicted with a pathology, are they defective people, and how Our willingness to write off vandalism as much does their physical environment determine senseless and wanton and to apprehend and pun- their behavior? ish vandals should be replaced by the desire to identify motives and modify stimul i. Un- In the musical play "Camelot," knights fortunately, if we learn that vandal ism on cry "Fie on goodness! Fie!" and long for war, wildlands is related to problems of cities-- some killing, and pillage to brighten their pollution, unemployment, poor housing, and lives. Isn't their rebellion closely akin to other inequities--we may respond by "external- that of the bored youths of a low-income hous- izing" vandal ism--we may see it as outside our ing project? Can we see in the knights, those area of inf1 uence. Greenberg (1974) found, 'good citizens" of another time, the counter- for example, that school administrators chose parts of today's vandals? And can we really to externalize vandalism because they believed say that the acts of either group are without its source was outside of the school system cause--motiveless? and not their problem. Resource managers could easily take such a course, but they Social psychologist Stanley Cohen (1973) would then face the need for frequent police has said that deviance is a social phenomenon. action, frequent replacement of facil it ies, It commences when vandalous acts become visi- and constant concern in facilities design to ble and create pub1 ic awareness. Various in- inhibit acts of vandalism. Greenberg also dividuals and groups then draw additional at- found, however, that school efforts to maxi- tention to acts they regard as threatening to mize security and harden facil it ies were their own system of moral values. When pub1 ic doomed to failure. The evidence clearly concern and support is stimulated through the points to the need to identify motives and appeals to common1 y held be1 iefs of causation, remedy problems at their source. such as immorality or emotional disturbance, those responsible for vandalous acts can be ENCOURAGEMENT TO VANDALISM labeled as deviants. At this point, a social problem is recognized and control efforts be- Despite some evidence to the contrary gin. The likelihood exists, however, that the (dark 1971), studies have found the majority 'deviants1' may have been condemned on the of vandal ism to be caused by youth, general 1y basis of unfounded beliefs; there may be no between 13 and 21 years of age enne nett 1969, attempt to help them by identifying the mean- Armstrong and Wilson 1973). This kind of in- ing behind their acts. formation tends to make adults regard any gathering of teenagers with suspicion. In ad- But just what is behind vandalism? Phys- dition, some adults regard young people as a ical and mental defects; broken homes; public kind of "nonpeopl en' or "not-yet-people," who indifference; and failure of parents, schools, are bothersome and have no feelings. Under and our social system to teach responsibility these conditions, the adults might be seen as and moral ity have been specified by the Feder- the true vandals, or more precisely, contribu- tors to vandalism. Principal Resource Analyst, Pacific South- west Forest and Range Experiment Station, Goldmeir (1974) found that parents tend Berkeley, California. to interfere with the squabbles of their children or to object to activities, innocent was, he replanted each time until the plants in themselves, which the parents find annoy- were finally established. ing. Consequently, simple conflicts of inter- est may grow out of proportion and lead to Design to serve the social and cultural vandalous acts by the children aimed at "get- needs of people is far more important than de- ting back" at those who originally interfered sign to gain the plaudits of one's peers. The or complained of their behavior. Calling in first should produce a more livable environ- the police only tends to intensify the prob- ment which is less l ikely to breed vandalism; lem; a nonthreatening third-party mediator is the second may only serve the designer's ego real ly needed. and perpetuate pub1 ic ilIs, including vandal- ism. In another study, British investigators A possibly more serious parent-child (ward 1973) found that residents liked histor- problem develops when the child acts out the ic old buildings which contributed an appeal- parents' deviant fantasies (ward 1973). For ing character to various districts. Time can example, if parents are unemployed and housing be an enemy of such structures if administra- is poor, there may be continual fights between tors allow them to stand unrepaired or unre- family members, and complaints and even placed, because they soon become targets for threats may be directed toward the social sys- vandal ism. Vandalous acts may be assured, tem. Children listen, observe, and then van- however, if historic structures are replaced dalize facilities that are symbolic of the without replicating culturally accepted sources of their parents' problems. Again, styles. Neglect and indecision by administra- arresting and punishing the children does not tors may be termed bureaucratic vandal ism; it reach the cause of the problem. The adult be- may stimulate acts of traditional vandalism by havior and its causes are the problems that residents (~ruickshank1973). need sol v ing . OPPORTUNITIES FOR CONTROL Let's briefly consider why police action is not generally acceptable. In Scotland Various means for control ling vandalism (where pol ice may not differ appreciably from have been suggested, and some of the proposed our own), researchers (Armstrong and Wi lson solutions have actually worked, though usually 1973) found that vandal ism and del inquency for specific problems. There does not appear were developed by police action. The police to be any universal remedy, but some approach- tended to harass teenagers when they were not es seem promising. Increasing the visibility causing trouble until the youngsters decided of vandals, developing means for two-way com- to give them reasons for "busting" them. A munication, and getting people involved in library search of newspapers would undoubtedly community programs are among the many tech- reveal numerous examples of simi lar pol ice- niques that may lead toward more universally youth conflicts. successful controls, possibly with decreasing need for punishment. Planners, developers, architects, and other public officials may also be considered Increasing Visibility ''vandals" as a consequence of poor design, failure to recognize social or cultural needs, Oscar Newman (1972) claimed the battle a- or indecision in urban development or redevel- gainst crime can only be won when people stop opment planning (ward 1973). Robert Sommer trying to protect themselves individually and (1972) indicated that good design should go unite as a community. He approached the prob- beyond mere physical structure and should con- lem through design; design that makes the s ider social consequences. Poorly designed criminal or any intruder cognizant of his vis- buildings and projects have nearly three times ibility and the resident capable of recogniz- the crime rate of adjacent we1 I-designed pro- ing and repelling intruders. It is design jects, even when densities and social charac- that binds individuals into a defensible com- terist ics of residents are identical (~ewman munity; he calls it "defensible space." The 19725. It may follow that if good building kev to his design is improved surveillance. design results in lower crime, then good fa- Buildings constructed in new housing projects cility layout design should reduce vandalism are arranged to be intervisible. Apartment in parks and other recreation areas. Just windows and entry ways are located to make ''hardening" facilities, though it does not grounds, entries and halls easy to observe. stop vandalism, may slow it, however. Simi- Landscaping is pleasing but does not provide larly, prompt repair or replacement when dam- good hiding places. Bu iIdings and external age does occur, can reduce repetition (ward structures, such as fences, are arranged to 1973). For example, Anselmo Lewis, retired separate pub1 ic from semipubl ic spaces. The ranger on the Mt. Baldy District of the Ange- entire design works to build a sense of cornmu- les National Forest, discovered that people nity. It not only makes the area easily ob- were digging up trees and shrubs planted to servable but encourages neighbor familiarity, beautify recreation areas. Frustrating as it thereby assuring that unknown individuals or undesirable activities are quickly recognized on his freedom of action imposed by people and control led. with a different ethic. His action may have nothing to do with disrespect 'for the environ- Newman's approach suggests that recrea- ment, as some believe it does, but it may be a tional areas may be designed to establish a way of "getting at" those who violate the de- 'temporary sense of communi ty" among users, viant's perceived rights or ethics. Thus, allowing them to respond to depreciative be- when tables, water systems, barriers, and toi- havior effectively yet without jeopardizing lets are destroyed in a campground, resource anyone's personal safety. The success of such managers might regard this as a message an- a design requires interaction among recrea- nouncing that somebody feels his rights have t ionists. Several years ago such interaction been violated. It may be advisable for man- may not have occured, but today evidence indi- agers to learn to listen, to identify causes, cates a new breed of wildland user; one who is to examine rules and restrictions, and to social ly oriented and therefore establ ishes change some rules, or to explain why other new friendships during his vacation (dark and rules are needed. If the first two of these others 1971). If developed recreation areas goals can be achieved, managers may finally are patronized by such visitors, then design- ''get the message." However, if changing the ing defensible spaces for their use may pro- rules and educating the users are necessary, vide the proper mix of ingredients to increase then managers must also learn how to send surveil lance and reduce vandal ism. their messages effectively.

Good design, design that is not only de- Effective communication with the public fensible but which effectively serves real hu- poses a problem for resource agencies. Re- man needs, should invite greater use of areas cently, Ross and Moeller (1974) found that now going unused. Increased use, in itself, campers on the Allegheny National Forest were may provide a deterrent to vandalism. For ex- not well informed about camping rules. The ample, New York's Central Park has been known least informed groups were adolescents, first- for its high occurrence of serious crime. In time campers, nonlocal users, and tent camp- recent years pub1 ic use was increased because ers. Messages needed general improvement and city authorities offered new and interesting required a positive tone. In Colorado, a programs and activities. The resultant large study of the effectiveness of a wilderness crowds provided a greater amount of defensible permit information program showed that news- space~defensiblebecause the greater numbers papers and television reached a large number of users made more park area visible. Crimi- of people, but that few of these people were nal elements soon recognized the park was no wilderness users (~azioand Gilbert 1974). longer an "unclaimed" space, but a public One study conducted by a State agency and two property on which they were now in jeopardy. studies by Federal agencies found that despite Crime in Central Park has decreased2 and increas- agency programs to inform campers about where ing use is recognized as a successful tech- to camp or about campsite reservation systems, nique for making parks and other areas safe most had obtained the information from their for pub1 ic use (Gold 1972, Ward 1973). friends (~a~lorand Knudson 1972, USDI Nation- al Park Service 1974, Magi1 1 1976). To reach Listening and Transmitting the public, the messages resource managers send must be more attention-getting, must be Failure to communicate may be a basic clearly written and precisely directed toward problem for both the victim and the vandal. well-identified audiences, must avoid irrele- Stanley Cohen (1973) said, "Vandalism is a vant attempts at regulation, and must recog- solution ...ugly and incoherent ...difficult to nize real human needs. explain.. .and it will continue to be used un- til society gets the message." The deviant is Getting People Involved transmitting but we are not 1 istening, and we are also transmitting, but because we do not Vandalism might be regarded both as a listen, we do not know what messages to send. symptom of illness in a segment of our socie- ty, and an effort by the afflicted segment to What are some of the messages expressed cure itself through the expression of hostili- by deviant behavior? Aldo Leopold (1966) de- ty, frustration, and helplessness. Psychia- fined an ethic in two ways. In ecological trist Matthew Dumont (1968) proposed this terms, he said, an ethic is "a limitation on symptomatic approach for examining the ills of freedom of act ion In the struggle for exist- cities. Dumont also enumerates people's basic ence," and in philosolhical terms it is "a need for a stimulating environment, a feeling differentiation of social from antisocial of personal pride of self-esteem, a sense of conduct." Possibly, the vandal's "unrecog- community, and a sense of control over their nized cause" or "anti-social act" is merely environment. When basic needs are not sup- his expression of disrespect for limitations plied in the ghettos, efforts to supply them assume the symptomatic form of riots. Personal communication with Charles Lewis, Horticulturist, Morton Arboretum, Lisle, Illinois. Vandalism may merely be a less violent symptom and possibly need to be changed or deleted. of the same pathology expressed with less risk It is quite unl ikely, however, that pub1 ic of apprehension or injury. Schools may also hearings will stimulate responses from persons contribute to the illness, especially if they who themselves show depreciative behavior, es- are meaningless to students who see themselves pecially those whose frustrations are the trapped by training that leads to futureless product of some institution other than a re- jobs and no chance to escape poverty ohe en source agency. The observational techniques 1973). Robert Sommer (1972) suggested for identifying relevant information for designing buildings Horticulturist Charles Lewis (1973) de- may prove useful for designing recreational scribed a program that seemed to successfully facilities and regulations. The technique re- rekindle stimulation, self-esteem, sense of quires the involvement of managers rather than community, and environmental mastery in resi- recreationists. The user's opinion is ex- dents of a very large housing project, where pressed only by his behavior, which is ob- crime, including vandalism, was high. The New served and recorded. Thus, use or misuse and York Housing Authority sponsored a qardeninq compl iance or def inance are the criteria for contest designed to encourage tenant partici- site, facil ity, and regulation design. Unfor- pation with minimal guidance. Remarkably, tunately, the observational approach doesn't most residents of the project got involved and get to the heart of depreciative behavior. As the results were heartening! Not only were previously mentioned, the source of vandalism beautiful gardens produced, but streets were is 1 ikely to be outside of the forest, but ig- cleaned and buildings were painted. The en- noring or externalizing it will not solve the tire neighborhood assumed a new look, and most problem. It may be necessary for resource important, vandal ism decreased! The gardens managers to work through State and Federal survived because the residents could identify legislatures to provide city officials with the vandals and gave them the job of guarding the kind of support essential for correcting the plants! the social ills of our society. The same technique proved effective for stopping 1ittering and other undesirable acts A universal solution for stopping vandal- by a group of youths at a recreation area in a ism has obviously not been revealed in this high-income Cal ifornia community (personal discussion, nor does a solution appear to be communication with Michael allo or an): A few on the horizon. Considerable research is of the suspected teenagers were hired to clean needed to develop and test the few approaches the grounds, and the problem soon disappeared. discussed. Possibly the greatest advantage of meeting to evaluate serious problems may be The basic human needs of people in cities the opportunity to expose myths and stimulate may also influence the management of recrea- new ideas. The knights of Camelot who cried tion areas. Speaking about planning for mu- 'Fie on goodness," appeared to be a wild lot, nicipal, state, and national recreation areas, not unlike the "hooligans" who ravage our cit- Lieberman (1970) claimed such areas may act as ies and recreation areas. Yet, despite our therapeutic environments where city dwellers wars and apparently increasing crime rates, can receive fresh stimulation and regain some perhaps we should take heart from the words of sense of control over their environment. But, Robert Ardrey (1361)--"The miracle of man is the resource manager needs to be aware that not how far he has sunk but how magnificently some urbanites may bring with them the frus- he has risen." If we consider the premise trations spawned in a repressive environment. that man descended from a killer ape, then Their desire to achieve stimulation, self- possibly our many efforts to achieve peace may esteem, and environmental mastery may not tol- signify the hope for achieving victory over erate the unexpected and seemingly irrelevant cr ime. regulations so important to the managers. The References unanswered question is, how can resource man- agers get recreationists involved, thereby Ardrey , Robert preventing depreciative behavior? 1961. African genes is. 384 p. Dell Pub1 . Co., New York. Another way to achieve involvement is suggested by resource agency use of public Armstrong, Gale, and Mary Wilson hearings to feel the pulse of concerned citi- 1973. Delinquency and some aspects of hous- zens on sensitive issues. The same technique ing. p. 64-84. In Vandalism. Colin may help to identify site and facility designs Ward, editor. Van Nostrand Reinhold Co., that most nearly satisfy the users' needs, or New York. to indicate which regulations are irrelevant Bennett, Joseph W. 1969. Vandals w Id. 238 p. Bennett Publ. 3~ersonalcommunication with Michael Co., Portland Oreg. Halloran, Director of Pupil Services, San Ramon Valley Unified School District, Clark, Roger N. Danville, California. 1971. Undesirabl,e behavior in forest 5 3 campgrounds. p. 150-155. In Recreation Lewis, Charles A. Symp. Proc. USDA Forest Serv., North- 1973. People-plant interact ion: a new hor- eastern Forest Exp. Stn., Upper Darby, Pa. ticul tural perspective. Amer. Hort. 52 (2) :19-24. Clark, R. N., J. C. Hendee, and F. L. Campbell 1971. Values, behavior, and conflict in Lieberman, Maury modern camping culture. J. Leis. Res. 1970. Parks and urban mental health. 3(3): 143-159. Trends 7 (3) :30-32.

Cohen, Stanley Magill, Arthur W. 1973. Property destruction: motives and 1976. Campsite reservation systems~the meanings. p. 23-53. In Vandalism.. camper's viewpoint. USDA Forest Serv. Col in Ward, editor. Van Nostrand Res. Pap. PSW-121, 15 p. Pacific South- Reinhold Co., New York. west Forest and Range Exp. Stn., Berkeley, Calif. Cruickshank, Dan 1973. Developers as vandals. p. 184-214. Newman, Oscar In Vandal ism. Col in Ward, editor. Van 1972. Defensible space: crime prevention Nostrand Reinhold, Co., New York. through urban design. 264 p. The McMillan Co., New York. Oumont, Matthew P. 1968. The absurd healer: perspectives of a Ross, Terence L., and George H. Moel ler community psychiatrist. 186 p. Science 1974. Communicating rules in recreation House, New York. areas. USDA Forest Serv. Res. Pap. NE- 297, 12 p. Northeastern Forest Exp. Fazio, J. R., and D. L. Gilbert Stn., Upper Darby, Pa. 1974. Mandatory wilderness permits: some indicators of success. J. For. 72(12): Sommer, Robert 753-756. 1972. Design awareness. 142 p. Rinehart Press, Corte Madera, Calif. Gold, Seymour 1972. Nonuse of neighborhood parks. J. Taylor, Charles E., and Douglas M. Knudson Amer. Inst. Plann. (Nov,) p. 369-378. 1972. The camper in Indiana state-operated campgrounds. Purdue Univ., Agric. Exp. Goldmeir, Harold Stn. Res. Bull. 888, 11 p. 1974. Vandalism: the effects of unmanagea- ble confrontat ions. Adolescence 9(33) : U.S. Department of the Interior, National Park 49-56. Service 1974. The campsite reservation system--a Greenberg, Bernard pilot program in six National Parks. 1974. School vandalism: its effects and USDI Natl. Park Serv., 104 p. paradoxical solutions. Crime Prevention Rev. 1 (2):l 1-18. Ward, Colin, editor 1973. Vandalism. 327 p. Van Nostrand Leopold, Aldo Reinhold Co., New York. 1966. A sand county almanac. 295 p. Sierra Club/Ballantine Books, New York.

A Psychoanalytic View of Vandalism Robert J. sokoll

The subject of vandalism is so broad and passed. There is no question of the tremen- includes so many different types and degrees, dously increasing cost--financial as well as motivations and methods, that almost every as- sociological. Historians will trace its ante- pect of human and social behavior is encom- cedents in history. Socialists and psycholo- gists will focus on the societal roots and the Phys ician/Psychoanal yst, Beverly Hi 1 ls, Ca. sociologic changes that produce and foster the destruction and outpouring of aggression. forms--the carving on trees, writing in men's Their contributions may well lead to an under- rooms, etc.--it may be a way of relieving the standing of the broad psychosocial forces and tension of being in a strange area and a d is- the societal changes that will be necessary torted attempt to maintain psychological con- for prevent ion. tinuity in a strange place, perhaps a subtle derivative of the homesickness of youth. The I am a different bird--not in anyway bet- point here is that hostility or aggression may ter, but different. I am a psychiatrist and not be a major motivational force. psychoanalyst. My concern is with what goes on between the ears of any one individual-- 2. Frustration-Aggression Motivation--In what goes on between these ears not only at a this broad category, a sense of frustration, level of awareness, that is, consciousness, which is really a combination of helplessness but at a deeper level as well, outside the and anger, acquires an aggressive release. It level of awareness, that is, the unconscious. is important that there is a displacement from What makes an individual destroy and deface in the original causative object onto a passive a wanton fashion? We are all aware of the recipient object. You get angry at the boss cultural change, the changing social mores, and come home and kick the dog. A child is the problems of the disadvantaged, the ghet- angry with a teacher (rightly or wrongly) and tos, TV violence, drugs, etc. But why does breaks windows in the school. We see this one frustrated school kid pout and another de- type of thing normally in children's play-- stroy? Why--and how to stop it? A complex boys smash toy cars together and chortle in problem indeed. glee. When the toy cars become real cars or the house of blocks becomes a school house-- Since, as I mentioned, I wear several then we have troubles. The point is that hats--as physician, psychiatrist, and a psy- there is pent-up tension within the person choanal yst-- I 'd 1 ike to approach the problem which is relieved by action and destruction. of vandalism as I would any medical problem. The passive recipient of this behavior, the I don't intend to convey that this is any bet- object--a building or a tree or a car--is not ter approach than a moral, legal, or sociolog- the provocative agent, merely the receptor. ic one--but only that it may be different and Indeed, ask a boy who has broken a window why in its difference, additive to the others. he did it, and he may we1 1 say, "I dunno" or 'I didn't think1'--unfortunately too often true. From my vantage point, vandalism, then, is the symptom, the endpoint of a disruptive 3. Purposeful--political--This is a cat- behavior. As for any symptom, although the egory of vandal ism that unfortunately is on final results are similar, the causative fac- the rise. Witness the bombs, the fires, the tors may be considerably different. Yellow "purposeful" destruction for some cause or jaundice may result from liver disease and the message. This is not just "letting off steam," backing up of bile products into the blood. but a planned and purposeful act with an ulte- The same symptom may result from a blood dis- rior motive. ease with the breakdown of red blood cells. The causes may be cancer, alcohol, certain 4. Psychotic Vandalism--This final cate- types of anemia, or the Anopheles mosquito and gory is a distinct one that results from what malaria--but a11 result in the same symptom. we classically describe as mental illness. So, the first thing is to attempt a classifi- Here the violence and vandal ism may be random cation of the different psychological determi- or selective depending on the nature of the nants which may result in vandal ism. If you illness. The differentiating point is that try to treat the jaundice from alcoholism as there is no avowed ulterior motive other than you would that from malaria, you're going to pleasure. The arsonist is one example of a have a large number of very dead patients. 1 imited psychosis.

I have searched the literature in vain These, then, are four categories that I for a classification of vandalism from this have separated. There may well be others and point of view, so what follows is an initial there is certainly overlapping. But what is attempt: the value of this classification--after all shouldn't diagnosis lead to treatment~orat 1. Territorial Imperative--The term de- 1 east to avoidance of unnecessary treatment? rives from observations by Ardrev and others Here, I think you can direct your treatment of animal behavior, namely, that all animals attempts to categories 1 and 2. The pol ice attempt to delimit their boundaries~their will play a major part with category 3, and 'turf" in modern venacular. This might be the mental health professionals with category cal led the "1 ifting the leg" or the "Kilroy" 4 (once the vandals are apprehended). Of syndrome. In its grossest fashion, it can be course this statement is an oversimplifica- seen in gang behavior and the various markings tion; all of us may be involved in different on buildings in our cities. In more subtle ways with each of these categories. Before I discuss the "treatment" phase Mind you, the link, distortion, or misconnection of my medical model, some further diagnostic may have no relation to the real father, but only criteria are necessary. This has to do with to that aspect of the father that was involved in the timing and frequency of the vandalism. Is punishment. it acute or chronic? Is it a sudden outbreak like an epidemic? Is the rate of increase grad- This seemingly esoteric phenomenon has ual or rapid? Is the type of vandalism chang- rather important practical ramifications, for the ing? Consideration of each may lead to diag- policeman's actual behavior may foster or dimin- nosis, treatment and, with early diagnosis, ish these kinds of distortions. For example, it prevention becomes more possible. The classic is widely known in police circles that involve- example is a sudden outbreak of vandalism at ment in a family dispute can often result in a school or park--if it is epidemic it always threats or injury to the policeman who intervenes. indicates some major dissatisfaction between When, as in many newer training programs, the of- students and faculty or young people and park ficer can be trained to depart from his usual administration. Almost always there is some firm or noncommittal expression--for example, to breakdown of communication which may need to be take off his hat, sit down and ask for a glass of reestablished by a variety of means. In Los water~theoutcome can be materially changed. To Angeles County and elsewhere in the country we put it more succinctly, when the officer can come have used teams of mental health professionals across as a human being, he diminishes the oppor- who have gone into schools as consultants and tuni ties to project unfavorable characteristics assisted in the reestabl ishment (or on some oc- onto him. To translate this into practical terms casions initial establ ishment) of school-com- for park and recreation area managers--what kind munity relations. Could these be useful in of uniforms should park or school pol ice wear and parks or other situations? how should they be trained? Some smaller police departments have experimented with replacing Now let me put on my other hat, the psy- the traditional uniform with blazers--with suc- choanalytic one, and get down to some things cess. In larger city departments it is often that go on between the ears, and particularly in felt that this would dilute police authority the unconscious. I want to emphasize two main to a degree that outweighs the advantages. I points already alluded to--these are (in our suspect they are right. Again, the point is terms) object distortion and the phenomenon of that these solutions must be individually tai- transference. I have chosen these two because lored for each specific situation. Attempts to they are universal ; they occur to greater or employ a single solution "across the board,'' lesser degree in all of us. The trick to it is, though it may be a good idea for a given situa- if we are aware of these phenomena then we may tion, may well lead to getting a bad name and be able to anticipate them and take measures to being discarded. minimize their effects on behavior. I want to emphasize that these are very complex phenomena I have attempted to show how these psy- and this will be only the briefest surface skim- choanalytic principles relate to people. But, ming. how do they apply to things? Is it by accident we call our schools "Alma Mater"? Is it by In its crudest form, transference means accident that we call our boats "she"? And the displacement of feelings or emotions from does this "accident" result in omnipotent distor- one person or object to another person or ob- tions that lead boaters, who are untrained or ject. In this process the perceptions of cur- cannot swim, to take their boats into situations rent person or object may be distorted in the for which they are ill prepared; after all, most subtle or gross fashions. I should mention mother is safe and she will protect us from harm. that this displacement of feelings or emotions, as What about a stately tree--what leads a usually it occurs in the unconscious, has no relation to nonviolentperson to carve his initials, muti- real time and indeed often links the past and late it, or even hack it down? Is it a tree he the present. The most obvious example would be is injuring (in his mind), or is it a symbol of that of a policeman who is the object of fear beauty or strength that one envies and must des- and hostility even when there is no immediate troy or deface to re1 ieve his envy and sensa- cause for guilt. He is not being responded to tions of inadequacy? In the simplest terms, is as that individual policeman--who may or may it a phallic symbol?--perhaps, but usually much, not be a nasty person. You might say he is much more. seen as a representative of a group by whom the person has been threatened in the past. Yet we Recently, I was in Yosemite sitting on a know that this same type of reaction frequently bench at the base of Yosemite Falls. Ten feet occurs in those who have had no bad previous ex- away a young lady sat on a similar bench care- periences with police. In the analyst's office, fully carving her initials. My friend berated the unconscious link between the police and the her and received a defensive, angry, and bel- punishing father can often be determined. ligerent response before she left--she was clearly embarrassed. When I walked over, I people. To understand and prevent this problem, noted two old sets of carvings next to where it is necessary to understand the forces within she was "lifting her leg." Did the presence the individual. Although broad societal changes of other carvings unconsciously allow or en- are involved, these are dealt with largely courage her activities? Would it be cost- through long-term planning and gradual and evo- effective to have some kind of removal crew?-- lutional processes. It is my firm conviction I don't know. that by dealing at an individual or small group level, significant changes and inroads can be Again, are these institutions--our parks, accomplished, often in a short time period. I our schools--symbolic of extensions of our should also mention cost effectiveness. Is it famil ies? Then, particularly if they are beau- more cost effective to replace all the glass tiful and the real families are not, will they windows in a school with high-tensile-strength become the objects of distortion and envy which plastic? Is it more cost effective to develop will necessitate mutilation to "cut them down and maintain a high-level security force at a to size" so to speak? Now the paradox is that school or park? Or is it more cost effective to if we canactually link our schools and parks have available a specifically trained mental (even, dream of dreams, our cities) to the real health consultant, one who is familiar with the family, then the controls of the family setting situation, to help develop programs or foster may be extended to these institutions and communications to avoid or minimize problems? protect them from distortion and destruction. I think the latter may be very cost effective These are some of the principles that underlie indeed--ask the Sausalito Police Department and the concepts of developing community involvement many other groups I could name. in schools and neighborhood parks. Finally, broad programs may be useful, but In closing, I want to emphasize that I have they will never replace an individualized prob- only briefly skimmed some of the very complex lem-solving approach. Psychiatrists and psy- phenomena involved in vandalism. Let me merely choanalysts do not have the answers. What we mention one other, that is, that we all need have is a specific vantage point~onindividual guidelines. It is only with full maturity that and group behavior. This vantage point is one the guidelines of behavior become fully inter- of the many that must be included in the plan- nal ized. Thus, during our long (and too often ning process if we are to deal effectively with perpetual) periods of immaturity, the firmness, these problems. The various programs I have a1- consistency, rationality of our external guide- luded to should not be taken as direct sugges- lines--our laws--must be maintained. It is tions. The final solutions must result from important that a system be developed whereby your creative thinking.2 transgress ions of the guidel ines are rapid1y and appropriately punished. Excessive punish- ment for a particular crime is as useless as an 2~sefulreferences include: inadequate reprimand and unsupervised probation. After all, the point is to foster growth and Hudson, Bob. 1975. Vandals, should they be internalization of reasonable and appropriate hanged? Munic. and Publ. Serv. J. 13 guidel ines so that external force and restric- (July). tions become less rather than more necessary. But this involves the whole criminal justice Pringle, Mia Kellmer. 1973. Property under system and will require considerably more study. attack. Munic. and Publ. Serv. J. 13 (July). Vandalism is a problem of and for society, but is done by individuals or small groups of Pringle, Mia Kellmer. 1973. Understanding the misfits. Munic. and Publ. Serv. J. 13 (July). Pringle, Mia Kellmer 1974. The roots of Ward, Colin, editor 1973. Vandalism. 327 p. violence and vandalism. Commun. Health Van Nostrand Reinhold Co., New York. 6:84. U.S. Senate Committee Report. 1975. Violence Ward, Colin. 1971. Vandalism and violence. in our schools. Current (Nov. issue). Natl. School Publ. Relat. Assoc.

Vandalistic Forest Fire Setting

William S, ~olkrnanl

VANDAL IST I C FOREST FIRES patterns, attitudes, values, and material objects which men employ in coping with their More than 90 percent of the 100,000 wild- environment--it is the social, as opposed to land fires in the United States each year owe the biological, inheritance of a people.) The their origin to man or some agency of man. cultural habits of indifference, carelessness, What percentage of these fires might be classi- and insensitivity that lead to our notorious fied as vandalism depends on the definition of littering behavior must surely extend to the this imprecise term. Wildfires are started by careless way in which fire is handled in our a variety of people and their motives are even forested areas. Hansbrough (1963) finds con- more mixed. Fire-start behavior ranges from siderable evidence that early white settlers the innocent play of a child to the deliberate, in the Southern region adopted the long-stand- premeditated act of an arsonist; from the un- ing burning practices of Indians of the area-- thinking carelessness of a novice camper to as a hunting aid, to clear the underbrush so the compulsive "acting out" of a pathological as to facilitate visibility and travel, to personality; from the conditioned reflex action increase the growth of preferred plants, and of a smoker discarding a match or cigarette to prepare seedbeds. The settlers soon found butt to the violent expression of a social pro- additional justifications for burning. tester. Activity more typically recognized as vandalistic~theso-called "wanton," "~enseless,~' Today, "woods-burning" is still a part of or "motiveless" setting of brush or grass fires the Cultural heritage of the South--despite by groups of youths--is a serious problem in efforts of professional forest managers to some areas, the rural complement of torching discourage the practice. Welch (1970) found palm trees or tossing incendiary material into that youths in high fire occurrence areas had parked automobiles. The harassment of fire absorbed parental attitudes supporting a control organizations by malicious setting 'burning1' culture. In some localities, woods- of fires is not uncommon. It is not unknown burning has become a retaliatory weapon. In for youthful off-duty firemen to annoy their addition to the traditional reasons for burn- comrades on another shift by setting a series ing, setting fires has become a method for ex- of nuisance fires. pressing antagonism toward governmental agencies and large timber companies--antagonism developed CULTURAL INFLUENCES in large measure from past efforts of these organizations to suppress establ ished customs .2 Incendiary forest fires are particularly characteristic of the Southern United States. Studies of residents in incendiary "hot There incendiarism accounts for almost 40 per- spots" (Bai rd 1965; Bertrand and others 1970; cent of all forest fires, in contrast to 25 Hansbrough 1961; Jones and others 1965) found percent nationwide. A cultural perspective is the following characteristics noticeable in helpful to understanding of the practice of 'woods burning" in the Southeastern United States, and also sheds light on careless fire starting in the rest of the country. (Culture 2~rofessionalforesters were slow in recog- is used here in a broad sense, for the behavior nizing the utility of fire as a forest manage- ment tool. Carefully prescribed burning for specific management objectives is now generally Senior Social Scientist in Fire Prevention, accepted, but indiscriminate private fire Pacific Southwest Forest and Range Experiment setting is still strongly proscribed. Station, Berkeley, California. heads of households: they tend to be older, to It is also necessary, however, to know some- have limited education, to be highly localized thing about the organizations conducting a in their orientation, and to be unemployed or fire prevention program. In our studies of underemployed, retired, or working in unskilled a State agency (Sarapata and Fol kman 1970) occupations. and of National Forest organizations (~hris- tiansen and others 1976) we have sought to Clearly, then, culture strongly determines find out how the organization is set up and incendiary behavior in areas of high forest staffed; the attitudes, values, and expecta- fire risk in the Southern States. The con- tions of the employees; and how workers at tinuing sentiment for burning, along with in- each level define the fire prevention prob- adequate understanding of forestry agencies and lem, perceive its importance, and evaluate their work, undoubtedly accounts in large part the effectiveness of the methods and tech- for the continuing high rates of incendiarism. niques used. A11 of these affect the type of program that can be mounted and the qual- In the West, incendiarism contributes to ity of its execution. the incidence of forest fires, too, but to a , much more limited extent. Generally, starting Our studies show that although success- fires is not supported by the culture, and is ful fire prevention work frequently requires considered antisocial, malicious, or patholog- considerable experience and training, the ical. The incendiarism that occurs in the West program personnel had received little spe- has a diverse origin, ranging from primarily cialized training and were expected to pick economic motives to social protest, to classi- up the needed expertise on the job. cal psychopathology. A study relating personnel characteristics Local opinion leaders, sharing many of the to fire prevention effectiveness4 found that same characteristics as the audience to be in- effective and ineffective employees did not fluenced, have been used successfully in Louisi- differ significantly in such socio-economic ana and Mississippi in dealing with their in- or demographic characteristics as age, race, cendiary problem. Of special importance in marital status, rural/urban origin, educa- this program were the choice of a "contactor", tional level and employment history. They and the manner in which the message was present- differed significantly, however, in 1) ed. The contactor's success was found to sense of community, 2) conformity, 3) des ire depend on his acceptance by both the local for self-improvement, 4) extroversion, 5) people and the fire prevention agency. He importance given to occupation, 6) accept- must be a leader, philosopher, and friend to ance of self and other, 7) abi 1 ity to com- most of the people in the community and one municate, and 8) achievement orientation. Al- who inspires rapport and trust. Similarly, though further testing is needed, these measures messages with negative connotations ("~on't appear promising for estimating the potential burn the woods") are difficult to sell. Mes- effectiveness of prospective fire prevention sages oriented toward the recognized needs of employees. the local people, including when or how to burn safely (if burning is necessary), or MASS COMMUNICATION what help is available (in plowing fire lanes, for example) are more successful. Agencies responsible for forest fire pro- tection depend upon the mass media~primarily The principle of face-to-face contact by radio and television~formuch of their preven- persons who have legitimacy with the group to tion effort. Mass communication is a highly be influenced appears to be widely applicable. complex process, and there are no simple for- "One of their own kind," with whom problem mulae for its use. The reception of the communi- groups of youths could more readily identify, cation is filtered by the recipient's own values, has been used in some Forests with moderate loyalties, identification, expectations, defenses, success. and frames of reference; by his total personality; and by the particular setting in which the message FIRE PREVENTION PROGRAMS is received. The message must be transmitted at a time when the recipient can receive it. Unfor- Most of our research and application tunately, public agencies have limited control efforts have been directed toward defining and over the timing of their releases, dependent as reaching the persons we desired to influence. they are on the commercial media for donated pub1 ic fluence. service time.

3~oolittle,Max L., and G.D. We Ich "~ercer,C.W., and M.H. Kootsher 1973. Evaluation of a forest fire preven- 1974. Personnel characteristics and fire tion program. Report on fiIe, USDA For- prevention effectiveness. Report on file, est Service, Southern Fores t Exp. Stn., USDA Southern Forest Exp. Stn., New Orleans, New Orleans, La. La. Most fire prevention effort assumes that The behavior of normal children in relation most of the forest-using public are basically to fire was studied in a group of 5- and 6-year- well-meaning and need only to be informed or olds attending school at the Harold E. Jones reminded of desired behavior in order to comply. Child Study Center of the University of Calif- Such an assumption is hardly warranted in deal- ornia, Berkeley. The study focus was their ing with vandalistic fire setters. Bernard! competence in potentially hazardous situations (1973) has done some experimental work with TV (Bloch and others 1976). This study was an spots specifically designed to appeal to high- outgrowth of a more extended investigation of risk youth and young adult audiences, the group cognitive competence and social or interpersonal in which vandalism seems most likely. Consider- competence. Base data was accumulated from the able success in changing attitudes and know- time they entered the school at age 3. ledge was achieved when the spots were used in a classroom situation, but results were not Wide individual differences in attitudes measurable when the spots were transmitted about fire were found, despite narrow age over commercial television channels. limits, relative homogeneity, and the small numbers in the sample available for study. No DELIBERATE FIRE SETTING particular theory of childhood fire-setting behavior was expounded in the research, however, The only research we have done to date on its primary value is in hypotheses suggested incendiary fires in the West was a study of for further study, and in implications for mod- children known to have been involved in one or ifying the prevention programs of fire protec- more fire incidents (Seigelman and Folkman tion agencies. 1971). Multiple firesetting was found to be a symptom of a number of associated problems The study findings suggest that fire play (such as excessive activity, aggression, in very young children is common and should be psychosomatic illness, and family and school viewed as curious, exploratory play rather than difficulties) rather than the basic problem. the psychologically driven, psychopathological In other words, these were troubled children who behavior that might be seen in fire-setting by happened to use fire as a means of striking back older children. at an unrewarding social world or as a cry for help in coping with overwhelming problems. The We found similarities in personality characteristics of fire make it a particularly characteristics between children with high effective means for achieving these desired accident liability and those showing a keen ends. The child himself may not be able to interest in fire. Both the hazards encountered verbalize the motivation for his actions and it and the abil ity to cope with hazards were con- may not be apparent to the unsensitized observer. sidered. We concluded that methods used in (I use the masculine gender here deliberately-- accident prevention may be adaptable to fire all the children in the study population were prevention efforts. males, and over 90 percent of all children iden- tified with any type of fire incident are males.) It is possible that increased control and Our study makes clear that the terms "wanton," risk avoidance would be gained at the expense 'senseless," and "motiveless" are hardly appro- of spontaneity and creativity. Therefore pre- priate for the behavior of these children. vention efforts might better be directed toward improving ability to cope with environmental For intervention, early identification of hazards than toward reducing exposure to risks potential problem children is essential. Fire by discouraging otherwise desirable behavior investigation personnel cannot be expected to patterns. The goal would be to help the child provide therapeutic assistance, but if their develop competence in handling potentially investigation reveals that a child shows sev- dangerous materials (or situations), as he eral of the symptoms in the pattern, community matures. resources should be called in. They can assist the child in resolving his problems before his Another suggestion drawn from this study is behavior becomes irreversibly fixed. Fire prob- that intervention programs must reach the child lem adults are notoriously resistant to therapy. early in his life. By the age of five, many children are already interested in and experi- The children in our study were chosen menting with fire. Parents have had little help because they were already associated with fire in understanding the process by which children setting. But most children who cause fires are learn to recognize and deal with potentially apparently normal. Fire has a universal fascina- dangerous situations. Consequently, parental tion, and most children at one time or another efforts vary in effectiveness. Many parents are engage in some fire play or experimentation. We particularly lax about teaching their children were interested in how such children learn the about fire--over one-fourth of those queried appropriate skills, understandings, and attitudes make no attempt to do so. It is apparent that that mediate against the misuse of fire. parents who are unsure of how to teach their children safety skills would benefit from being shown alternatives from which they might select or trend phrase ("future shock," "the naked a method suitable to the particular needs of ape," "the greening of America," "territorial their child and compatible with their own needs imperative") provides a catchy handle for a and capabilities. There are many difficulties simplistic view of uncomfortably complex in providing such help effectively, however. problems artin in 1972). One suggestion is a training film for parents illustrating various possible teaching strate- Vandalism, the focus of this symposium, is gies, an imprecise term that covers a variety of types of behavior and motivations. Public Other socialization emphases found in this repugnance to the highly visible "wanton," study to be associated with the development of "senseless," and "motiveless" destruction of competence in handling fire materials should be property; public "viewing with alarm," and considered. Parental child-rearing practices resultant pressures for action tempt many to are needed that encourage the child to assume accept schlock solutions. My hope is that the responsibility, to be independent, and to make members of this symposium will not succumb to rational decisions, in the context of clear the temptation. parental expectations, respect, and caring. Such practices may be expected to promote the LITERATURE CITED development of ego structures in the child that will both benefit growth and minimize play with Baird, Andrew W. fire. 1965. Attitudes and characteristics of forest residents in three Mississippi CONCLUSIONS Counties. Social Center Rep. 8, 48 p. State College, Miss. Fire has had a role in certain ecological systems, and highly trained technicians may use Bernard i, Gene C. fire as a forest management tool. Today, how- 1973. Fire prevention film spots for ever, an uncontrolled forest fire is almost television ...narrator influence on always a serious threat to important natural- knowledge and attitude change. USDA resource values as well as to human life and Forest Serv. Res. Paper PSW-94, 14 p. property. The majority of forest fires are the Pacific Southwest Forest and Range result of inadvertent, or negligent--not delib- Exp. Stn., Berkeley, Calif. erateÑact of man. They are accidents. Inter- ventive actions that are appropriate for acciden- Bertrand, Alvin L., William D. Heffernan, tal fires are probably not the most effective G. Dale Welch, and John P. OICarroll. means of dealing with fires of deliberate, van- 1970. Attitudinal patterns prevalent dalistic origin. in a forest area with high incendiarism. Bull. 648. 20 p. Louisiana State Univ., As administrators and as researchers, we Louisiana Agric. Exp. Stn., Baton Rouge. tend toward a somewhat parochial , pragmatic view of our problems. We are apt to focus, Block, Jeanne H., Jack Block, and William S. for example, on how we might deal with expected Fol kman vandalism at Bass Lake on Memorial Day Weekend, 1976. Fire and children: learning survival rather than on the causes of such social phe- skills. USDA Forest Serv. Res. Paper nomena. PSW-119, 14 p. Pacific Southwest Forest and Range Exp. Stn., Berkeley, Calif. Although 1 recognize the organizational restraints under which we operate, I have a Christiansen, John R., William S. Folkman, sense of futility in attempting to resolve a Keith W. Warner, and Michael L. Woolcott major social problem through local ized inter- 1976. Organizational factors in fire pre- vention. I hope that we can escape, to some vention: roles, obstacles, and recommenda- degree, from the limited perspectives we have tions. USDA Forest Serv. Res. Paper 116. forced upon us, or we force upon ourselves. 13 p. Pacific Southwest Forest and Range Exp. Stn., Berkeley, Cal if. 'Schlock" is a useful term that character- izes much of our material culture today. It Claiborne, Robert describes gadgets and products that are useless, 1971. Future schlock. The Nation 212 (6): unworkable, shoddily constructed, and sometimes 117-120. dangerous. It has also been applied to the products of some social scientists and their Hansbrough, Thomas camp followers who cater to the public's need 1961. A sociological analysis of man-caused for quick, easy answers to a seemingly unending forest fires in Louisiana. Ph.D. disserta- succession of threatening social problems-- tion, Louisiana State Univ., Baton Rouge. answers that are palatable but sl ick and super- ficial (Claiborne 1971). Often some key word Hansbrough, Thomas practices. USDA Forest Serv. Res. Paper 1963. Southern forests and Southern people. PSW-65, 10 p. Pacific Southwest Forest Louisiana State Univ. Press, Baton Rouge. and Range Exp. Stn., Berkeley, Calif.

Jones, Arthur, Jr., M. Lee Taylor, and Alvin Siegelman, Ellen Y., and William S. Folkman L. Bertrand 1971. Youthful fire-setters ...an explora- 1965. Some human factors in woods burning. torystudy in personality and background. Louisiana State Univ., Louisiana Agric. USDA Forest Serv. Res. Note PSW-230, 6 p. Exp. Stn., Baton Rouge. Bull. 601, 27 p. Pacific Southwest Forest and Range Exp. Stn. Berkeley, Calif. Martin, Malachi 1972. The scientist as shaman. Harper's Welch, Gilbert D. m. 244 (3) :54-57. 1970. The transference of attitudes of rural parents to their children. Ph.D. Sarapata, Adam, and William S. Folkman dissertation, Louisiana State Univ., 1970. Fire prevention in the California Baton Route. Division of Forestry ...personnel and

Control of Vandalism in Recreation Areas--Fact, Fiction, or Folklore?

Roger N. ~larkl

Fact: We know it is true. cribed vandalism problems, and I won't present a detailed analysis here. But a few examples Fiction: We know it is not true. may help put my discussion in perspective. Needless to say, vandalism is a common problem Folklore: We believe it is true, but it in many environments in th s country as well as may not be. in other countries. Vanda ism is a major con- cern for managers of recreation areas and is The purpose of this paper is to provide an recognized as a problem by many recreationists overview of the state-of-the-art of knowledge as well (dark and others 1971b). of vandalism in recreation areas and how it can be controlled. Selected literature on this top- The monetary impact of vandalism is stag- ic is evaluated for practical implications, and gering. The total yearly loss from vandalism procedures for controlling vandalism in recrea- nationwide is estimated at $4 billion (Ward tion areas are described. Research needs are 1973). School vandalism costs over $200 million out! ined. per year (Anonymous 1973a, 1973b). The U.S. Forest Service reports vandalism in the National This discussion is limited to vandalism in Forests cost the U.S. taxpayers over $3 million outdoor recreation areas. I have included in 1974.~ They also report vandalism costs are little material on the more general topic of up 50 percent since 1969. On the Los Padres deviant behavior in recreation areas. Specific National Forest alone, costs related to van- types of vandalism and possible variation by dalism were more than $170,000 in 1976. Other geographic areas are not discussed. As an over- agencies report equally large losses from view, this discussion is not a substitute for a vandalism in their recreation areas. thorough review of the available literature on vandalism and management practices for Discussions with several managers in the controlling the problem. Forest Service indicate that the costs reported may be underestimated. They feel that reported VANDALISM--ITS NATURE AND EXTENT losses are mainly due to type of damage that are easily observed and for which a dollar Other papers in this symposium have des- value can be determined. Minor impacts (often hard to distinguish from normal wear and tear) art Principal Research Social Scientist, Pacific figures compiled in the Recreation Information Northwest Forest and Range Experiment Station, Management System (RIM), USDA Forest Service Portland, Oregon. RIM Center, Washington, D.C. generally not recorded even though in total managers cringe at every initial carved in a they represent a substantial cost to repair or bench, written on a restroom wall, or spray replace. painted on a rock bluff.

The analysis of vandalism impacts from THE LITERATURE ON VANDALISM only an economic perspective underestimates the total loss. Perhaps even more serious than the For all the money spent on repairing or financial loss in many places is the impact on replacing vandalized facilities or natural the quality of the recreation environment, features of the environment, little written which has direct bearing on recreationists' information exists about vandalism. Our experiences. knowledge of why vandalism occurs or how it can be controlled is very limited. I have Some targets for the vandal cannot be as- reviewed much of what is available, and these signed a dollar value. Defacement of natural comments are focused primarily on the useful- features, such as trees, shrubs, and rocks, ness of the l iterature from a practical per- represents a serious loss in environmental spective; that is, does it help us understand qua1 ity. Even more troublesome is vandal ism and therefore control the problem? of irreplaceable resources such as cultural or historical artifacts, whether they are petro- The literature on vandalism can be divided glyphs in southern California or the famous into two general categories, that which is Tlingit totems in southeast Alaska. We all supported by data (research) and that which is lose when these are destroyed, but the loss not. The usefulness of each type is briefly cannot be measured in an economic sense. described here.

Recreationists lose in other ways when van- Literature Not Based on Data dalism occurs. Their recreation experience may be affected by the physical and visual destruc- Rhetoric or opinion--Much of what has tion. What is not so obvious is the impact on been written about vandalism is no more than the recreation management program of the agency rhetoric or ~pinion.~Such popular articles, concerned (~arrison1976)~~ For example, al- books, and even editorials seem to have a though the dollar loss from vandalism may be large market and are filled with outrage, in- insignificant compared with the total investment dignation, and diversity of untested opinions in recreation areas and facilities, vandalism about why vandalism happens and what should be and littering costs on National Forests in 1974 done to control the problem. Any "evaluation" represented over 15 percent of thetotal Forest of what works is often subjective, and most of Service recreation management and construction the popular writing focuses on selling the budget .4 The costs resulting from vandal ism may author's pet theories. Rhetorical discussions directly affect users when scarce budgets for general 1 y concentrate on spectacular acts and recreation must be used to replace or repair often ignore equally important smaller vandal- facilities rather than to build new ones or hire ism problems. Beyond calling our attention to additional rangers for pub1 ic service. For ex- the problem (a worthy objective), such material ample, the $1.5 million spent on littering and has little to offer the manager and may even be vandalism in California forests in 1974 repre- misleading and dangerous if the many unsubstan- sents the equivalent of building about 750 new tiated suggestions are taken seriously. camping or picnic sites.5 No wonder recreation Theoretical discussions--Another class of 3~eealso John Zeisel, 1974. Planning facili- literature, althouqh- not supported by data, ties to discourage vandal ism. American Associa- approaches vandal ism from a more logical , theo- tion of School Administrators, 106th Annual Con- retical perspective. Only a few attempts have vention, Feb. 22-24. been made to verify theories with data (Bates and McJunkins 1962, Bates 1962; Goldman (1961). "~e~ortedin Wi I1iam T. Schl ick. 1975. Cy 1974, The writings that fall under this general head-

vandalism and litterina< on the National Forest ing are commonly found in textbooks or academic System. Unpublished report, USDA Forest Service, journals. Usually the author describes or de- Washington, D.C. velops a particular theoretical line of reason- ing for explain ing why vandal ism occurs (for reported in the U.S. Forest Service Dai ly News Digest, August 15, 1975. This estimate is based examples of 1iterature containing primar- on the assumption that new sites cost $2 ,000 o or ily rhetoric or opinion, see Anonymous (19671, each. For some types of sites the costs may be Bennett (1969), Cardinell (1974), Donahue (1968), nearer $4,000 per site. Mannheim (1954), Nei 1l (1974), Robarge (1965) , Von Kronenberger (1976). example, aggression, frustration, hostility) what doesn't. As such, this research pro- and/or how it can be solved (Bower 1954, vides the single most important type of infor- Cl inard and Wade 1958, Cohen 1971 , L ippman mation from the manager's perspective because 1954). A1 though most papers of this type are he is trying to control the problem. But this devoted to a single perspective, a few have type of study is virtually nonexistent for van- attempted to analyze competing explanations dalism. Only one source could be found where (Jeffery 1971, Ward 1973). Most of the solu- an objective evaluation had been conducted; in tions for controlling vandalism proposed in this case, the author demonstrated the effec- theoretical discussions are logical extensions tiveness of a community education program (Pal- of the author's particular theoretical perspec- mer 1975). Often the "evaluation" of what works tive. As such, they are only as good as the and what does not is based on subjective cri- theory, and most must be judged as unreliable teria; that is, it "reportedly" worked some- on those grounds alone; that is, they have not where (Irwin 1975, Knudsen 1967b. Martin 1959, been tested. Some suggested solutions are Wilson 1964). Consequently, what really works described later. and what doesn't--when, where, and why--is impossible to say. We just don't know. More Research-based Li terature evaluative studies by managers as we11 as re- searchers are necessary to provide important Discussions falling into this category answers that can help reduce vandalism in a imply that reliable data support the conclusions variety of settings. drawn by the author. Objectivity is a key con- cept, although theoretical perspectives usually Guidelines for Using the Literature play an essential role in designing the research and/or interpreting the findings from a study. The watchword in using the l i terature on There are two general types of research-based vandalism is "caution." If the content of ar- articles, descriptive and evaluative. ticles or books could be easily classified into the categories I've described, then evaluating ---Descriptive studies their worth from a practical perspective might are the most common type of research on vandal- be relatively easy. But many papers contain ism. Questions about the nature of the vandal- elements of all types, making it difficult to ism problem, who is involved, when and where separate fact from fiction from folklore. vandalism occurs, and how much exists have been addressed in several stud ies7 (Campbel l and The buyer must truly be cautious when it others 1968, Clark and others 1971a, 1971b; comes to finding a solution for vandalism in Cardenuto and McCrea [n .d.] ; Cardinel I 1969; the literature. Even when a solution seems David 1971; Fandt 1961; Mannheim 1954; Martin to work in one case, it won't necessarily work 1959; Matthews 1970; Perk and Aldrich 1972). everywhere. Variation from situation to situa- This type of information is a starting point and tion requires some evaluation to test the essential to establishing a baseline for time- effectiveness of proposed control procedures. series studies if the work is well done. Un- fortunately, most of this type of research has A useful approach for using literature been based on reported rather than observed is to identify all the unsubstantiated claims behavior, and what is reported is often unreli- made by the author. Much of what is written able. Only a few studies report direct observa- is not supported by fact, and a great deal is tion of the problem (for example, Clark and not even supported by rational arguments. others l971a). Most ignore the many smaller acts of vandal ism. Descriptive research is Even papers with "data" must be viewed an essential first stage in understanding and with caution. The work may be misleading if thereby controlling vandalism; but in the ab- the problem under study is couched in differ- sence of further evaluative research, it really ent terms from yours, or it may be based on doesn't directly help control the problem. poorly conceived research. Interpret the data yourself to see if you agree with the Evaluative research--This type of research author. Would you invest your money in a involves explicit evaluation of the effective- program to stop vandalism based on what you've ness of specific programs or strategies for con- read and the solutions proposed? If not, trolling vandalism. The experimental demonstra- keep looking! tion of cause and effect allows the manager and researcher to establish what really works and ISSUES RELATED TO VANDALISM

Two issues commonly discussed in the literature have important practical implica- 7~aulPetty tions for understanding vandalism and thereby 1966. Vandalism. Taken from his thesis, reducing its impacts: What vandalism is and "Vandalism in Natural Forests and Parks." what causes it. Colorado State University. Definitions of vandalism--a great deal of 1968b, Eliot 1954, and Ward 1973).1Â Usually a confusion exists concerninq what vandalism real- reason can be found for vandal ism; for example, ly is (Clark and others 1971b, Cohen 1968, Eliot play, lack of alternatives, vindictiveness (Cohen 1954, Harrison 1976, Smith 1966, Ward 1973, and 1968c, Madison 1970, Ward 1973). And, although Wilson 1964).8 Although there is 1ittle dif- vandalism with a reason behind it is still inap- ference of opinion about the major acts of propriate, understanding the underlying motives destruction, considerable differences do seem and causes is important in its eventual control. to exist concerning some actions in recreation settings.

What is "proper" behavior is not clearly Education defined; many times an act of vandalism as defined by a manager may be very appropriate A common approach proposed for control from a user perspective. In some cases, rec- of vandal ism is to educate the pub1 ic (recrea- reationists who have little contact with the tion users in this case) about vandal ism; that environment may really not know what is defined is, make them aware of why it is bad and the as vandalism by managers. In other cases they need for their help in solving the problem. may know but disagree. Examples include throw- Traditional educational programs have focused ing axes into trees, carving on tables and on instilling proper values and attitudes re- garding vandalism. The basic assumption is that benches, chopping down trees in campgrounds for firewood or for more space. Even though rules proper behavior will then result; people won't exist which prohibit such activities, the fact - vandalize or let vandalism occur. Much evidence, that users don't understand or agree with them however, suggests that attitudes about an issue or problem may be different from one's behavior. may result in vandalism by definition only. Considerable research has documented this For example, attitudes regarding littering have been shown to be very different from actual difference in perspective between recreation littering behavior--we may believe it's bad but managers and users (Clark and others l971b; Hendee and Campbe I1 1969) . Understanding litter anyway (dark and others 1972, Heberlein the basis for this difference is essential 1971). for any approach to controlling the problem. In review of the sociology literature on For this discussion, vandal ism is the result of any act (intentional or unintentional) research concerning attitudes and behavior, which damages either natural or manmade features Wickler (1969) concluded that only about 10 percent of the variation in actual behavior of the environment. could be explained by knowledge of attitudes! Motives for and causes of vandalism-- The basic reason for the discrepancy is that Understanding the motives for and causes of many factors are related to actual behavior in addition to attitudes, especially features vandalism is an important part of controlling the problem, and many authors have dealt with that vary from one situation to another and make different behaviors attractive or avail- these topics (Clark and others 197Ib, Harrison able. The social group one is with, for example, 1976, Hendee and Campbell 1969, El iot 1954, can either increase or decrease the likelihood Jeffery 1971, Murphy 1954, Perk and Aldrich of acts leading to vandalism. Therefore, in 1972, Scott 1954, Schaffer 1975, and Ward terms of the problem facing managers of recrea- 1973) .9 But there is no proven theory of the tion areas, this educational approach has causes of vandalism. Many theories or'per- limited potential for solving the vandalism spectives attempt to explain the problem from biological, psychological, or sociological problem since we're primarily concerned about behavior. If Wicker's conclusions are val id perspectives. No one that I know of has tried as applied to vandalism, traditional educa- to integrate these approaches, and most authors tion (focusing on attitudes and values) would ignore the extremely important-effects that result in no more than a lopercent reduction the environment and specific situations play in vandalistic behavior, even if the targets in explaining vandal ism (Jeffery 1971). One perspective inherent in many of the discus- sions of motives or causes warrants comment here. Although many people fai 1 to recognize losee footnote 3 any rationale behind vandal istic acts (they are often thought of as strictly a wanton, ^~olutions to vandalism are discussed by malicious activity), several writers have Anonymous (1 967, l973a, 1973b, 1973c) , Bennett argued that this is not so (Campbell and (1969), Cardenuto and McCrea (n.d.), Irwin others 1968, Clark and others 1971b, Cohen (19751, Kel ly (19731, Knudsen (1967a, 1967b) , Martin (1959), Matthews (1970), Neil1 (1975) Petty (19661, Ward (19731, Weinmayer (19731, ^See footnote 3. and Wilson (1964). (Also see footnote 3).

^ee footnote 3. for the educational programs are potential or driven around, often damaging natural en- vandals and the intended attitudes and vironmental features. Why? Perhaps in some values are generated by the program. Cohen cases this vandalism occurs not for its own (1968a) even thinks that pub1 icity about a sake but to allow the "vandal" to achieve problem may backfire; it may even elicit some other goal--getting to a favorite lake problem behaviors. For example, publicizing or campsite, for example. Publ ic campgrounds a campaign to remove graffiti from rock walls are often closed entirely or in part during in a recreation area identifies a target for the "off-season" to save scarce recreation future vandalism: "Wouldn't it be fun to management dollars, a worthy objective. But spray paint the same wall the day after the vandalism (or at a minimum, extreme frustration) cleaning crew leaves!" can occur for some users when they feel con- fined and crowded without apparent reason in Regardless of the approach used in educa- certain areas not to their liking or when a tional programs, some general rules of thumb favorite, more isolated site may be just be- may make them more effective: yond a gate or sign over a barrier post or pile of dirt. Who is guilty? Certainly we 1. An effective educational program will cannot excuse the vandalism, but understand- require that the manager understand user mo- ing why it happens may help us identify con- tives and desires. Considerable evidence ditions where management actions can lead to suggests that managers and users often dis- vandalism. agree on what is appropriate, including things which are labeled as vandalism by managers We need to continue to ask why we are (Clark and others l971b, Hendee and Campbell doing what we do and will it make sense and (1969). Managers are often misled when they be agreeable to users. Conflicting goals and interpret user motives and desires by their values must be identified and effective two- own value systems. Identifying areas of dis- way communication and education initiated agreement (and reasons for them) is an impor- to minimize the impacts from such disagree- tant starting point for understanding the ment. problem and developing effective educational programs. 3. Attempts to control vandalism or other problems with messages lacking rationale 2. Users must also understand the man- are often doomed to fail. If people don't ager's motives. Managers often forget that understand the "why" behind the do's and they may be part of the problem. Both individ- dont's conveyed in signs, vandalism can result. ual and organizational attitudes (and behaviors) are important and may have an impact on users' Why can't cars be driven off parking perceptions and behavior. Attitudes about pads? recreation in general (is it legitimate or Why can' t tables be moved (even when not?) and toward specific users (motorcyclists, chained down)? hikers, etc.) affect our behavior in ways that Why can't more than one family camp may either reduce or increase problems. Do at each campsite? you favor "hard or soft sell approaches"; that Why can't a tree be chopped down for is, educate or arrest? Do you ignore minor firewood or to get a pickup camper acts of vandal ism (or other problems)? If so, into a site? you may be condoning the problem in the user's Why can't initials be carved on benches mind. or tables or trees?

Division of responsibilities on a func- Signs (or other communication mediums) should tional basis within an agency can result in a convey the reason for the regulation whenever disastrous situation if, for example, patrolmen possible. Such "positive signing" would, I responsible on1 y for fire prevent ion ignore think, help eliminate some vandalism in many other recreation-related problems in their areas. Certainly, effective enforcement pro- areas. The public may be misled by agency be- cedures will still be necessary for people havior if inappropriate acts are ignored in who ignore the most rational rules. one case but acted upon in another. Different management policies between agencies further Direct Management confuse and frustrate users. A variety of ways exist for directly Many well-intentioned attempts by managers managing a'reas, faci 1 i ties, or natural envi ron- to help solve important problems may result in mental features to reduce or prevent vandalism. vandalism. This often happens when management Some of these approaches have been covered in actions conflict with user goals. For example, other sympbsium papers, and I will only brief- roads are often closed for lack of maintenance ly review them here. budgets, concern over erosion, fire hazard, etc. Gates or signs which are an attempt to implement Design of sites or facilities--Consider- the manager's decisions are torn down, shot up able effort has been expended to design vandal- proof sites. Much has been written about this topic (Anonymous l973c, Miller 1973, Spalding Removal of opportunity--Eliminating the 1971, Weinmayer 1973). A1 though there have opportunity for vandalism by removing facil- been many successes (Weinmayer believes proper ities, closing areas, or hiding what can be design can reduce vandal ism by 90 percent) , my vandalized has been proposed as a solution impression is that we often fail in this ap- and is done in some places. We can take away proach. Many times it seems that when a par- or not provide wooden posts, tables, restrooms, ticular type of vandalistic act is prevented signs, etc. We can close access to large areas through design, another unanticipated problem such as commercial or public forests, and results. For example, in a campground I recent- we can close entry to specific areas by ly visited, restroom walls in the area were barricading roads (subject to problems discus- made of material harder than knife blades to sed earl ier). Or we can hide valuable objects prevent vandalism. Indeed, carving and scratch- such as cultural or historical artifacts. In ing with knives was eliminated. But the problem general, this approach will work. Indeed, it's was not solved because the native rock in the about the most predictable solution available. area was harder than the construction material, However, in doing so, we must consider the and carving and scratching with rock resulted. negative impacts on other users who are not Although design may be an important element in responsible for the problem. If this prescrip- preventing some vandalism, little evidence tion were followed in areas with major vandalism exists for a foolproof solution through design. problems, in most cases, the majority of well- New ideas emerge daily, but many have not been intentioned users would suffer because of a evaluated for their effectiveness in different relatively few people. In the case of irre- locations. placeable objects such as historical artifacts, perhaps we have no solution but to remove or Maintenance~Replacingor repairing the hide them until such time as they can be pro- evidence of vandalism as quickly as it occurs tected. For other things which can be replaced, is proposed as another strategy for solving the the relative advantage gained from this remedy problem. The assumption is that by keeping the is not so easily ascertained. area nice it will stay that way. A great deal of folklore exists about the effectiveness of Detection and Enforcement this procedure, but little has been verified. To the extent that the problem continues (which Increased detection and strict enforcement it often does) maintenance is not a complete of laws, policies, and rules are often proposed solution. We often have to "re-repai r" (car- as a way to deter vandalism (Anonymous 1973a, denuto and McCrea n.d.). Perhaps vandalism Thomas 1964). To be most effective as a deter- may be reduced to some extent by maintenance, rent, this approach must result in punishment; but the evidence available does not allow a the potential vandal must realize he will prob- clearcut answer for every case. ably be seen, caught, and punished (Jeffery 1971) Unfortunately, this is often not the case for -Fees--Some managers believe vandalism and most crimes against the environment in this other problems such as littering are reduced country (Jeffery 1971) and certainly not in most when fees are charged. The belief is that users recreation areas (Clark and others 1971a, 1971 b) . tend to have more at stake and greater feelings This is not to say, however,that enforcement of ownership in an area where they pay to stay. programs are worthless, only that they are a An alternative view is that when fees are small part of the solution. Possible ways to charged, users may feel they have more right to increase the effectiveness of detection and 'tear it up." There is no reliable information enforcement programs in recreation areas to support or refute either viewpoint. U.S. include increasing the number of patrols, adjust- Forest Service figures indicate that costs for ing patrolmen's hours (or those of cooperating vandalism and littering in the National Forests law enforcement agencies) to match recreation were greater per user in areas where fees were use and problem times, hiring watchmen (Matthews charged. l2 However, reasons other than the fee 1970), and establ ishing entrance stat ions where itself may explain this difference: Some For- each party is contacted and, perhaps, registered est Service managers feel that these data under- in particularly bad areas. estimate the true cost from vandalism, perhaps more in one type of area than another; more Public Involvement people general ly use fee areas; fee areas gen- erally have more facilities to be vandalized; Involving the recreating public in helping and the introduction of fees may affect the to solve vandalism is a new approach which has type of clientele an area receives. Other been recently proposed and used in some areas. unidentified factors may also be involved. A few authors have dealt with this approach (Anonymous 1967, 1973b; C?ark and others 1971a, 1971b; Neil1 1975; Ward 1973; Wilson 1964). The focus is to find ways to change users' be- havior to reduce their own vandalistic acts as 12see footnote 2. well as those of other people. Research on depreciative behavior, includ- (Clark and others, 1972). And in a forested ing vandalism in outdoor recreation settings, area in Spain, youths suspected of vandalizing indicates that this approach has tremendous birdcages for protecting certain species were potential for reducing the problem, tn one involved in constructing new cages; vandalism study nearly 80 percent of all depreciative ceased, l3 Other s tmi lar management approaches acts occurred in the presence of other people, seem possible. yet no one got involved (Clark and others, 197Ia, 197Ib; Campbel l and others, 1968). Why? Pos- Involve people in formal programs--The sible explanations for the noninvolvement two approaches described above focus on in- include apathy, fear or threat from getting in- volving people informally. In some cases, volved, lack of agreement on the definition of programs for specific individuals assuming what is proper, and lack of knowledge about how some formal responsibilities may be useful. In- one can get involved. The point here is that divtduals or couples may be selected and trained we can't assume people won't help. There may to perform some of the duties of agency personnel. be things we can do to encourage their involve- Their presence in problem areas can increase the ment without threat to them. manager's visibility and allow one-to-one contacts with users. A variety of ways can involve people, de- pending on the objective. Some basic assump- In the West, a "campground host" program has tions and approaches are briefly described here. been implemented in several areas. The volunteer hosts, usually retired married couples, live on Involve the victim~Onpublic recreation campgrounds, and their presence is reported to lands, the victim of vandalism and other types have decreased.vandalism problems. The public has of depreciative behavior is the public. Since enthusiastically supported this effort, and many the research described above indicates that people have volunteered their services. Other often people are present when these acts occur, problems have also been reduced. For example, in what can they do to help? How can managers in- one U.S. Forest Service location where the host crease user involvement? Alternatives range program was in effect, local managers indicated from encouraging users to handle problems them- that as vandalism and other depreciative behaviors selves (and showing them how) to contacting decreased, voluntary compliance in turning in over- proper authorities and giving them essential night camping fees increased. Other formal ly es- information. Others advocate paying people for tablished programs such as the "Older American'' information about vandals they observe. Per- program have been used in other locations for simi- haps some sort of "help the ranger" campaign lar purposes. might encourage people to help reduce vandalism. Part of the solution certainly will be to de- Although campground hosts usually have no velop procedures whereby the public can get in- formal enforcement authority, they have been suc- volved with little personal threat. cessfully used when problems in selecting appro- priate people are overcome. In Austral ia, formal Involve the culprit--The objective here is authority has been given to a ranger force made up to provide a constructive alternative to des- of citizens, and some successes are reported. l4 tructive behavior. This approach has been used for both adults and children in a variety of A public involvement program should be focused areas. It seems to work because it givespeople at a variety of levels. It can include year-round involved a stake in the problem. For example, in involvement through organized groups as well as response to vandalism of recreation cabins dur- routine, ongoing efforts during the main recrea- ing the winter season by snowmobilers, the sus- tion season such as the campground host program. pected culprits were organized and asked to help The public that moves through the area and stays protect the homes; they did and vandalism ceased. for short periods only should be involved. So should Two boys in a developed campground who were sus- both culprits and victims. Identifying and evalua- pected of vandalizing restrooms and nature trail ting ways to accomplish public involvement at all of signs were involved in a litter pickup program these levels are important concerns for both managers to he1 p the campground ranger; vandal ism ceased12 and researchers.

^~o~erN. Clark. How to control litter in rec- "^personal communication with Antonio Nadal Amat. reation areas: The incentive system. In prep- Head of the Department of Environmental Analysis, aration for publication, Pacific Northwest For- Madrid, Spain. est and Range Experiment Station, Portland, Oreg. ^personal communication with Al Ian Viney, member for Wakehurst, Legislative Assembly of New South Wales. Sydney, N.S.W. Treat Vandalism as a Cost of Doing Business RESEARCH ROLE AND NEEDS

A final approach to vandal ism is to treat Several authors have recognized the need it like shoplifting: We do all we can to stop for more research on vandal ism (MacNei 1 1954, it, including proper design, maintenance, and Palmer 19751, particularly the need for evalua- replacement; but we assume some will occur and tion a avid 1971). To be maximally useful, charge the consumers (users) the resulting cost. research on vandalism and other forms of de- In this view, vandalism is accepted as a fact, preciative behavior would be based on close one of the impacts from recreation use. communication and cooperation with managers. Researchers and managers both learn in on- Available statistics indicate a relative- going consultation. Researchers must maintain ly small cost per visitor for vandalism in out- contact with on-the-ground managers in a variety door recreation areas. On the National Forests, of areas to insure an appreciation of real- the average cost for vandalism and littering world problems. was approximate! $0.03 to $0.10 per visitor day during 1974.K6 An effective research effort to provide useful information for understanding and con- Although many legal and political problems trolling vandalism should be based on a broad exist, establishing a user surcharge for van- level involving several regions of the country dalism would insure that other options are not and various agencies and private land managers. foregone if the scarce recreation management This will allow for analysis of both common budgets are used in repairing or replacing and unique problems. But we also need to focus damaged facilities. Such a surcharge would on specific situations to control specific make users clearly aware of the financial impact problems. Although different kinds of vandal- of vandal ism. istic acts and recreation areas are similar, much variation exists that may affect the use- SUMMARY OF POSSIBLE SOLUTIONS fulness of "proven" solutions in one area when FOR CONTROLLING VANDALISM applied in another.

A variety of procedures for controlling An important need is establishment and vandalism have been proposed and readers are implementation of procedures for objectively encouraged to make their own judgment about identifying and measuring the impacts (physical, the relative advantages and disadvantages of as we1 1 as those on the users' experience) from each. My conclusion is that none of the alter- vandalism &other depreciative behaviors. natives I've described offers a complete so- Good descriptive baseline data are essential lution to vandalism, problems are still in- for evaluating the effectiveness of procedures creasing, and the level of uncertainty for to control the problem. complete success in using any of the approaches is high. We don't know at this time what works Another need is development of an under- best. when, where, how, or why. A great deal standing of the dynamics of specific locations of folklore exists about the "best approach," (and sites) and the needs and behaviors of and many of the alternatives may be costly and specific user groups as related to vandalism risky. But any long-range solution will re- and other problems. We must design, test, and quire a variety of approaches. evaluate programs to fit the needs of specific areas and users of those areas. Prevent ion programs should focus on the various social, political, and physical-envi- CONCLUSION: A CHANGE IN ORIENTATION IS NEEDED ronmental factors to reduce vandalistic be- havior and increase antivandalistic behavior. In the absence of any definitive solutions, We know little about how all the possible con- what can planners and managers do to minimize the trolling factors interact, and research is vandalism problem? Although no one has the en- necessary to identify the important factors tire answer to this question, I want to offer and evaluate their relative advantages and my perspective on several important points. disadvantages in a variety of conditions. The vandalism problem should not be con- Some vandal ism problems may be control - sidered separately from other depreciative lable, others may not. In the absence of se- behaviors such as nuisance behavior, rule vio- vere restrictions on use and users, we may have lation, and littering. The causes for and to accept some forms of vandalism because the solutions to these other problems may hold im- controls may be worse than the problems they portant clues for reducing vandalism. The camp- are meant to solve. ground host program, for example, demonstrates the impact one procedure may have on a variety of problems including vandalism. Past research ^see footnote 2. on litter control indicates that by involving Bennett, Joseph W. the public in control of litter, vandalism and 1969. Vandals wild. 238 p. Bennett Publish- other problems may decline. ing Co., Portland, Oreg.

We need to develop a program that inte- Bower, Eli M. grates a variety of approaches (Jeffery 1971, 1954. Vandal ism: an outgrowth of host i 1 i ty, Harrison 1976, Weiss 1974). There is no single aggression and frustration. Fed. Probation best answer now and there probably never will l8(1) :12-14. be a blanket solution without considering others (Wilson 1964). A1 1 the procedures des- Campbell, Frederick L., John C. Hendee, and cribed in this and other papers in this sym- Roger N. Clark posium should be objectively evaluated for 1968. Law and order in public parks. Parks their usefulness. and Recreation 3(12):28-31, 51-55. illus.

And a variety of perspectives must be con- Cardenuto, Joseph R., and Edward J. McCrea sidered to understand and control vandalism. [n.d.] Vandal ism on private campgrounds. Dep This includes the social scientist's (psycholo- Agric. Econ. and Rural Sociol., Penn. State gist, sociologist, etc.), the designer's the Univ. Rec. 2, Res. Ser. 202. manager's, the planner's, and, most important, the user's perspectives. Cardinel 1, Charles 1969. Relationsh,ip of interaction of selected Above all, it is important when faced with personality characteristics of school princi- a problem as tough as vandalism to keep a pos- pal and custodian with sociological variables itive attitude. There are no magic answers to school vandalism. Diss. Abstr. Int. (~arrison1976). The problem isn't going to go 30(11-A):4710-4711. away, and the danger is that the manager will become so frustrated with day-to-day problems Cardinel I, Charles that he will deal ineffectively with recreation- 1974. Another view: let's get at the causes ists who nay not recognize the magnitude of the of youthful vandalism. Amer. School Board problem. Recreation is legitimate and worth- J. 161 (1):68-69. while, but it has impacts and costs like all other resource uses. Clark, Roger N., John C. Hendee, and Robert L. Burgess Literature Cited 1972. The experimental control of littering. J. Environ. Educ. 4(2):22-28. Anonymous 1967. Wreckreation: what can teenagers do Clark, Roger N., John C. Hendee, and Frederick about vandalism? Senior Scholastic, May 12, L. Campbell p. 21-23. l97la. Depreciative behavior in forest camp- grounds: an exploratory study. USDA Forest Anonymous Serv. Res. Note PNW-161, 12 p. Pacific 1973a. Four alternatives for school security-- Northwest Forest and Range Exp. Stn., Port- a counterattack on vandalism. Am. School land, Oreg. and Univ. 45(10):43-44. Clark, Roger N., John C. Hendee, and Frederick Anonymous L. Campbell 1973b. Vandalism--$I per ADA = kids' incen- 1971b. Values, behavior, and conflict in mod- tives. Nation's Schools 92(6):31-37. ern camping culture. J. Leisure Res. 3(3): 143-159. Anonymous 1973~. Vandalism: take tempting targets out Cl inard, Marshall, and Andrew Wade of washrooms. Nation's Schools 92(2):44-45. 1958. Toward the delineation of vandalism as a sub-type in juvenile delinquency. J. Crim Bates, William Law, Criminal. and Pol ice Sci . 48(5) :493-499. 1962. Caste, class and vandalism. Soc. Prob. 9(4):349-353. Cohen , Stanley 1968a. Can it be controlled New Soc. Bates, Wi 11 iam, and Thomas McJunkins 12 (324) :377-378- 1962. Vandalism and status differences. Pac. Sociol. Rev., Fall, p. 89-92. Cohen ;Stanley 1968b. The nature of vandali sm. New Soc. 12(324) :375-376. Cohen, Stanley Knudsen, George 1968~. Politics of vandalism. Nation 207 l967a. Summary of 1967 AIN meeting workshops (NOV. II) :497-500. on vandalism. In Papers by George J. Knud- sen, Paper I I I ,Assoc. Interpretive Cohen , Stanley Naturalists. 1971. Directions for research on adolescent group violence and vandalism. Brit. J. Knudsen, Georqe- Criminal. 11 (4):319-340. l967b. Techniques to reduce vandalism on nature trails. In Papers by George J. David, James Edgar Knudsen, Paper 11, Assoc. Interpretive 1971. A survey of major incidents of vandal- Naturalists. ism, causes and preventative measures em- ployed in Texas public junior high schools. Lippman, Hyman S. Diss. Abstr. Int. 32(09-A):4866. 1954. Vandalism as an outlet for aggression. Fed. Probation 18(1)5-6. Donahue, Ron 1968. How to handle vandalism. Camping Mag. MacNei1, Douglas H. 40(May) :24-25. 1954. Is vandalism actually on the increase Fed. Probation l8(l):l6. El iot, Martha M. 1954. What is vandal ism? Fed. Probation Madison, Arnold 18(1) :3-5. 1970. Vandalism-the not-so-senseless crime Seabury Press, New York. Fandt, Edward L. 1961. A study of the practices of New Jersey Mannheim, Hermann boards of education in protecting school 1954. The problem of vandalism in Great property against losses due to vandalism Britain. Fed. Probation I8(I):I4-I5. and malicious mischief. Diss. Abstr. Int. 22 (9) :3055. Martin, John M. 1959. The vandals: a study of malicious Goldman, Nathan mischief. Diss. Abstr. lit. 20(10) :59-6226. 1961. A socio-psychological study of school vandalism. Crime and Delinquency 8(1):221- Matthews, Robert P. 230. 1970. Thefts and vandalism in western Wash- ington forests. J. For. 68(7) :4l5-416. Harrison, Anne 1976. Problems: vandalism and depreciative Miller, Alexander behavior. In Interpreting the Environment, 1973. Vandalism and the architect. p. 96- ch. 24. ~r=t W. Sharpe, editor John Wiley 1 1 In Vandalism, Colin Ward, editor and Sons, New York. Van ~ozrandReinhold Co., New York.

Heberlein, Thomas A. Murphy, Joseph P. 1971. Moral norms, threatened sanctions, and 1954. The answer to vandalism may be found littering behavior. 253 p. Ph.D. disser- in the home. Fed. Probation 18(1):8-9. tation, University of Wisconsin, Madison. Neill, Shirley Boes Hendee, John C., and Frederick L. Campbell 1975. Violence and vandalism. 80 p. Natl. 1969. Social aspects of outdoor recreation-- School Public Relat. Assoc., Arlington, Va. the developed campground. Trends in Parks and Recreation, October,4 p., illus. Palmer, John L. G. 1975. A study of the community education Irwin, Frank Gordon program as a determent of violence and van- 1975. A study of features for lessening van- dalism in a small rural Michigan community. dalism for consideration in the planning of Diss. Abstr. Int. 36(06-a):3243-A. educational facilities. Diss. Abstr. Int. 36 (7-A) :4 l63-A. Perk, Richard A., and Howard Aldrich -1972. Patterns of vandalism during civil dis- Jeffery, C. Ray orders as an indicator of selection to tar- 1971. Crime prevent ion through envi onmen ta l gets. Amer. Sociol. Rev. 37(5):533-547. design. 290 p. Sage Publ., Bever y Hills, Ca1 if. Robarge, Margaret . 1965. Don't be a "wreckreator .I' Recreation Kelly, Ralph L. 58 (6) :274-276. 1973. Vandal ism safety and security School Bus, Aff. 39(7):164-166. Schaeffer, E. B. (Mrs.) Ward, Colin, editor 1975. The roots of vandalism. Royal 1973. Vandalism. 327 p. Van Nostrand Rein- Soc. Heal th J . 95(2) :79-82. hold Co., New York. Scott, Chester C. Weinmayer, Michael 1954. Vandalism and our present-day pattern 1973. Vandalism by design--a critique. 5 of living. Fed. Probation 18(1):10-11. Reflections In The Recreation and Park movement. David Gray, editor, Wm. C. Brown Smith, Donald Charles Co . 1966. Vandalism in selected southern Cali- fornia school districts: nature, extent, Weiss, J. Norbert and preventative measures. Diss. Abstr. Int. 1974. Vandalism: an environmental concern. 27(05-A) :1 236-A. NASSP LNatl. Assoc, Secondary School Prin- cipals] Bull. 58, p. 6-9. Spalding, Thomas L. 1971. Door hardware to check vandalism. Wicker, Allen W. School Manag. 15(10) :30-31. 1969. Attitudes vs. actions: the relation- ship of verbal and overt behavioral responses Thomas, Gerald to attitude objects. J. Soc. Issues 35(4) :41- 1964. Chicago park district reduces vandalism. 78. Parks and Recreation 47(Sept.) :410-41 I. Wilson, George T. Von Kronenberger, G. R. 1964. Vandalism--how to stop it. Am. Inst. 1976. Vandalism: a national dilemma. Elks Park Executives Management Aids Bull. 7, Mag. 54(9):12-14, 20, 36, 55. 40 p.