Trends 1984 Volume 21 Number 1 Vandalism Cl^

Home , The Vandals

U.S. Department of the Interior National Park Service and National Recreation and Park Association Trends 1984 Volume 21 Number 1 Vandalism cl^.

Contents

Volume 21 Number 1 1984 Vandalism

Trends

A publication of the Park Practice Program

The Park Practice Program is a cooperative effort of the National Park Service and the National Introduction Recreation and Park Association.

Russell E. Dickenson, Director National Park Service 3 Vandalism Control Management John H. Davis, Executive Director Offers Effective Cost Savings for National Recreation and Park Association Tight Park Budgets EDITORIAL STAFF by Monty L. Christiansen U.S. Department of the Interior National Park Service 8 Vandalism and Its Relationship to Design

Kathleen A. Pleasant, Managing Editor by Brian J. Mihalik, Ed.D.

12 Vandalism: Law, Violations, and NRPA PRINTING STAFF Intervention in Recreation Albert H. Ziegenfuss, Manager Settings by Harriet H. Christensen, Ph.D.

The Park Practice Program includes: and Nanette J. Davis, Ph.D.

Trends, a quarterly publication on topics of 17 Vandalism: Taking the Offense general interest in park and recreation manage- by Richard Kauffman ment and programming; Grist, a quarterly publication on practical solutions to everyday Central Park Graffiti Removal problems in park and recreation operations in- 20 cluding energy conservation, cost reduction, Program safety, maintenance, and designs for small by Robert M. Powers and structures; Design, a quarterly compendium of plans for park and recreation structures which David A. Rosen demonstrate quality design and intelligent use of materials. 25 A User-Orientation to Managing Vandalism Membership in the Park Practice Program in- by John L. Heywood, Gary W. cludes a subscription to all three publications and a library of back issues arranged in binders Mullins and Sally Blower with indices, and all publications for the re- mainder of the calendar year. 28 Park Watch in San Jose by Jay Castellano

The initial membership fee is $105, annual renewal is $45. A separate subscription to Trends 31 Effectiveness Evaluation of is $25 initially, and $18 on renewal. Subscription Management Alternatives for applications and fees, and membership inquiries should be sent only to: National Recreation and Dealing with Park Safety and Park Association, 3101 Park Center Drive, Alex- Security Problems andria, VA 22302. by James E. Fletcher

The information presented in any of the publica- 36 Vandalism-The Continuing tions of the Park Practice Program does not reflect an endorsement by the agencies spon- Menace soring the program or by the editors. by Carl E. Schoening

to the Articles, suggestions, ideas and comments are 41 Sensitizing Youth Effects invited and should be sent to the Park Practice of Vandalism Program, National Park Service, Washington, Girtch D.C. 20240. by CM. "Bud" 43 Vandalism: A Research Priority by Laura B. Szwak 46 Who Can You Turn To? Introduction

The willful or malicious destruction of public or private property is a problem that affects everyone — the owners and/or managers of the property as well as those persons who want to use the property or facilities. Although vandalism to public property has increased in the last two decades, it is certainly not a modern-day phenomenon.

In the 1700's, a Philadelphia Street Commissioner by the name of Benjamin Franklin was concerned about the city's fish bowl- type street lamps that were being destroyed by vandals. These lamps were imported from London at considerable expense and were costly to replace. Franklin developed a new type of lamp known as the Franklin Street Lamp which consisted of several glass panels. If one panel was broken, the lamp could still function until it could be repaired, at much less cost than the imported ones.

Over the years, park and recreation areas and facilities have experienced considerable amounts of property damage and destruction which have severely impacted on operating budgets. However, substantial research into the causes, effects and public perceptions of vandalism, along with determined park managers to combat this problem, has resulted in new approaches to controlling and mini- mizing vandalism.

This Winter 1984 issue of TRENDS shares some case studies, research projects, design strategies and community out-reach programs that have recently been developed throughout the park ana recreation community to effectively deal with vandalism. Also, the Who Can You Turn To? section on page 46 provides a resource for publications relating 1 variety hi ' years, over 30,000 square fet I of graffiti have been reim m a to this topic. surfaces in New York's Central Park. — Park Vandalism Can be Reduced:

Vandalism Control Management Offers Effective Cost Savings for Tight Park Budgets by Monty L. Christiansen

Vandalism has become a perennial These processes are briefly de- tions are compared to those of the drain on the budgets of park and scribed here. moved furniture upon arrival at its recreation agencies throughout the destination, or the apartment upon evacuation United States. Nationally, the cost First, Determine the of the leased premises, so also does the park facility con- to these departments because of Specific Problem vandalism has been estimated to be ditions inventory provide a basis over $500 million a year. Too Before making any investment, for comparison. often the actions of park visitors an assessment should be made of The facility conditions inventory sometimes as recreators, frequently the type and extent of vandalistic is a standardized, uniform and as trespassers —cause damage to damage which occurs in each park. reliable method of recording the the environment, facilities, equip- This assessment can determine vandalism location, the item dam- ment, and areas which have been which facilities are most frequently aged, the type and the extent of entrusted to public park and vandalized, identify the predomi- damages noted. The type of recreation agencies. nant kinds of damage, establish damage can be quickly noted from priorities for repair or removal, a uniform generic classification Park vandalism is as varied as and provide data necessary to system such as the one shown in the multitude of wrongdoers who develop a park vandalism control Table 1. are involved, the activities they are management program. A priority rating scale should be engaged in, their motives, and the For comparative purposes, it is established as maintenance policy damage caused. In other words, necessary to have a program initia- for the agency. This rating should vandalism is an umbrella description or baseline facility conditions be based upon the impact the van- tion of problems. It is many survey. Examples of similar dalism may have upon the safety unrealistic to expect to find 'THE damage surveys are those done of people and wildlife, the disrup- solution' (singular) to such a col- prior to packing and loading furni- tion or suspension of park services lection of complex problems, but it ture by a moving company or by a or programs, and the creation of is possible to eliminate some forms landlord prior to leasing an apart- social, moral, or aesthetic dis- of vandalism and minimize others, ment. Just as these 'baseline' condi- pleasure of the public. as well as reduce the damage and cost of those forms which in- evitably will occur. Table 1 RECOMMENDED UNIFORM The ultimate objective of a VANDALISM DAMAGE management system for vandalism CLASSIFICATION SYSTEM control is to reduce unnecessary expense by using the most cost- Category Type of Damage Due to effective approaches, including Vandalism both appropriate social and physi- 1 Breakage 4 Disassembly or Removal Fracturing, shattering. Unfastening screws. cal strategies. There is no single smashing, or crushing ap- bolts, nuts, nails, or universal solution; because vandal- paratus, equipment or hinges to take apart a istic behavior (actions) and its con- facilities, or parts thereof. piece of equipment, apparatus or facility. sequences (damages) are separate 2 Surface Graffiti or Mark- Burns but related aspects of the total ing 5 Superficial writing or Combustion, charring, problem, to modified both need be drawing on, or discolor- scorching, or singeing of if vandalism is to be reduced. ing the surface of a wall. flammable materials. door, partition, panel, 6 Blockage Vandalism Control Management sign, or other facility or Obstructing, plugging, or apparatus. (VCM) is a comprehensive process stopping utility supply or waste lines. for park and recreation depart- 3 Disfigurement ments. It offers a systematic pro- Scratching, cutting, dent- 7 Vegetative Damage gouging, or gram to reduce costs through prob- ing, carving, or Loss penetrating through the Breaking, chopping. lem definition, behavior interpreta- surface, either exposing burning, nailing, making tion, objective setting, data collec- the undersurface or mak- ruts or removing trees. ing a hole completely shrubbery, tion, strategy selection, implemen- flowers, turf through the item. or groundcover. tation, assessment and follow-up. —

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Breakage, such as /'/is lavatory basin, is just one of seven recognized major categories of van- Souvenir collectors quickly strip common bolts dalism. Strategies to reduce vandalism should be based upon the susceptibility, vulnerability of and other fasteners to remove expensive signs. the facility.

The following maintenance liability litigation in case of injury solution'), will make a comprehen-

priority scale is one example: to park users due to the vandal- sive VCM program which may in- Priority 1: Vandalism presents ism. clude preventive measures, in imminent serious danger to park Information from these forms which the park department takes users, employees, or wildlife can help determine where VCM ef- the initiative before incidents oc- Priority 2: Vandalism presents forts would be most cost-effective cur, as well as reactive measures, potential danger to park users, by identifying the most expensive which provide corrections or employees, or wildlife incidents, the most frequent targets adjustments to previous efforts. Priority 3: Vandalism disrupts of vandalism, the most common There are two approaches that, or suspends major park programs type of damage, the highest aver- when used together, have been or services age cost of repair, the period when effective. These have been called Priority 4: While not disrup- most incidents occur, etc. Instead the social and the physical vandal- tive of use, vandalism has high of using a costly "blanket ap- ism control strategies. visibility or social impact. proach" for all facilities throughout Priority 5: Vandalism is not the entire system, VCM emphasis Social Approaches Reduce upon specific objec- disruptive of use and has low can be focused Vandalism as Behavior visibility tives which can then be measured and evaluated. There are five principal social Keep the Facts Current 'tools' that have been effective in After a baseline status report of Set Measurable reducing vandalistic behavior: publicity and public relations, all the parks and facilities has been VCM Objectives education, rule enforcement, obtained, it is possible to accurate- After the initial information ly note and document changes general operations, and coopera- gathering, the next step is to set both positively as adaptive main- tion. realistic, achievable objectives to tenance corrects the damages Publicity. It is important that a reduce vandalism expense. originally identified as well as park department have a clear An agency which can meet its when preventive VCM strategies policy regarding publicity about objectives demonstrates that its re- are implemented; and negatively, vandalism. It is recommended that sources — natural, fiscal, and per- when more vandalism occurs. publicity be used in conjunction sonnel — are being managed in a Two procedures are necessary to with a public education campaign business-like manner and that there to people do this. First is the completion of a make aware of the ef- is demonstrable success in reducing thorough, periodic inspection forts of incidental vandalism, in- vandalism. which is documented by an item- cluding the loss of recreational op- ized inspection form. Next is the Choose Appropriate portunity, loss of facility use, as establishment of a mandatory van- Vandalism Control well as provide examples of what dalism incident reporting pro- the repair cost might have provid- Strategies cedure, again documented by a ed instead. If the agency has a clear report form. Park vandalism control manage- policy authorizing a reward for in- These forms are not just paper- ment must be cost-effective. This formation leading to the conviction of work — they insure accurate rec- should be the key to VCM strategy individuals causing deliberate ords, aid good communications to selection. This can be planned just vandalism, publicity can be an the proper maintenance supervisor as carefully as other aspects of effective tool as well. Positive for work scheduling, and — very park management. publicity about vandalism reduc- important today — provide a track- Using a well-chosen set of tion cooperative programs can pro- able log of actions taken by the several, rather than just one vide recognition to helpful groups and organizations well as illus- agency for evidence if necessary in strategy (the elusive 'final as — trate how the department is taking gram have found this 24-hour pres- The second is the rehabilitation of preventive measures to control ence to be an effective deterrent to offenders through work programs vandalism. nighttime vandalism. such as the Court Referral Pro- Public Relations. Staff should be Rewards. Some agencies have gram. trained in positive public contact been successful in offering a and public relations. All staff— reward for information leading to whether providing program ser- the arrest and conviction of van- Physical Approaches Reduce vices, maintenance, protection, or dals charged with acts of destruc- Vandalism as Facility law enforcement —should treat the tion resulting from a specific inci- Damage park user as an individual and help dent. It is most effective when the create a social atmosphere of agency is able to obtain a decree to The previous VCM strategies friendliness between the park restitution as well as the imposed were social approaches. Design visitor and the agency. fines or imprisonment. and maintenance are physical ap- General Operations. Three proaches. Physical and social strategies are best applied in con- Education. Agencies should pro- general operations strategies may junction with one another as part vide staff training about vandal- help reduce vandalism: of a complete vandalism control ism. To be effective, it is essential (1) Full use of park facilities management program. that park and recreation agencies by the public actively engaged in A well-documented record of have sensitive, understanding, and recreational activities is a deterrent vandalism-caused repairs and the responsible staff who know how to to loitering and surreptitious van- effects of adaptive maintenance anticipate and prevent instances of dalism. In effect, large numbers of can help update agency specifica- vandalism before they occur, how people using a facility usually pro- tions of standard park facilities to minimize existing opportunities vide an inherent self-policing func- such as benches, tables, drinking for vandalism, and how to modify tion to ensure that it is not abused. fountains, lights, sanitary facilities, vandalism targets to reduce the facilities are avail- (2) When etc. Building to these updated possibility of repeating incidents. able on a permit or reservation specifications will prevent previous Employees should become aware basis, it be practical to obli- may mistakes, omit easily vandalized of vandalism causes and types, gate damage liability to the users facilities, and provide 'hardened' social and physical vandalism con- as part of the permit contract by facilities from the start. trol strategies, how to use incident requiring a damage deposit when Park departments can establish a periodic inspection procedures, and the permit is issued. procedure of prompt maintenance etc. (3) Where revenue-producing to vandalized facilities. This pre- Users of particularly vulnerable programs or facilities exist fee ac- — vents exposing the damage to or susceptible targets of vandalism tivity centers, concessions, and other, perhaps impressionable, can be informed of the conse- especially unsupervised pay tele- park visitors who might feel the quences of avoidable or preven- phones or vending machines agency does not care, and thus table acts of incidental vandalism. agencies should have a daily pro- might add more damage to what is Examples of ways this can be done cedure of removing all money already there. It also has the effect include eye-catching posters at from these facilities and leaving the of denying the deliberate vandal common gathering places in parks empty cash drawers wide open the pleasure of having his or her (wash houses, visitor information before closing the building. This handiwork exposed to the public. centers, registration booths, etc.), fact should be well publicized inclusion of a message as part of a through prominent signs at each An adaptive maintenance pro- permit application or park point of money collection. gram, which improves vandalized brochure, and interpretive explana- Cooperation. Several park items by changing or strengthening tion at the site of vandalism during departments have joined forces broken parts, is better than repair- the period of unavailability and with other community crime ing a damaged facility back to its repair, and through daily casual reduction programs or volunteer previous condition. If this practice personal contact with visitors by surveillance systems. Perhaps best is based upon the type and severity park personnel. known is the National Community of vandalism, facilities can be Rule Enforcement. These are the Watch Program. In addition, be- economically upgraded on an 'as basic guidelines for rule enforce- cause so many civic and service needed' basis instead of doing re- ment: organizations have contributed storative repair with the possibility All rules should be realistic, funds, labor, and materials to of frequent re-repair or a blanket clear, positive, and understand- public parks, there is an obvious replacement program to substitute able. Ineffective rules go ignored proprietary or vested interest in all possible targets with extra-duty when the agency does not have the the care of these facilities. These facilities. enforcement resources or does not organizations are often willing to The generic types of vandalistic have a consistent interpretation of undertake vandalism reduction damage are breakage, burning, dis- what constitutes a violation. campaigns to help. assembly and removal, surface The mere presence of park There appear to be two benefits graffiti and marking, disfigure- employees helps reduce vandalism. from court-park department ment, blockage and vegetative Staff uniforms provide a non- cooperation. The first is the possi- damage. See the damage classifica- conspicuous 'employee presence.' bility of receiving equitable restitution table for descriptions. Parks with staff living in the park tion to pay for the necessary There are six principal physical or using a campground host pro- repairs due to vandalism incurred. vandalism control strategies: more durable products, and heavy- duty construction. The initial extra cost is cheaper over the life of the facility than frequent and costly repairs to unhardened targets damaged by vandalism. Obvious examples are those facilities which are easy to break. Colorful graphics— reflections of imnder. . . images of flowers, butterflies, and beauty— these lire apparently preferred to unadorned walls. This mural on a park building lias survived Glass mirrors in park restrooms three years without defacement while other walls gathered reoccurring graffiti. can be replaced with polished stainless steel or acrylic mirrors, Incident Prevention: out proper tools or techniques. glass windows and lamp refractors these special bolts, screws, can be replaced with polycarbon- Stop 'em from doing it! While or nuts may be more expensive ate plastics, porcelain sanitary fix- The ultimate protection from than common fasteners, they may tures can be replaced with stainless is to prevent it from oc- steel or aluminum, wooden doors vandalism be worth the extra cost if they pre- can be replaced with steel doors, curring at all. This may be ac- vent removal of expensive signs,

. . . The list can go on and on. complished by either removing the etc. probable vandalism target or by controlling accessibility to them. Repair, Cleanup, or Activity Deflection: Let 'em If it is impossible to control ac- Recovery Implementation: do it, but to something else cess to the park after hours, it is Make it easy to fix or find recommended that buildings which There are various fun activities, afterwards! contain probable vandalism targets seemingly innocuous and insignifi- be strongly secured at night. cant by themselves, which can Certain forms of vandalism are Architecture may be designed with individually or collectively abuse unpreventable, or prevention may clerestory windows for natural facilities and dilapidate an area. In be prohibitively expensive. In these lighting to eliminate lower win- some instances, it would be more situations, periodic repair or refur- dows and unnecessary interior effective to provide a tempting bishing is an acceptable, cost-effi- lighting. Some parks remove all legal alternative or expendable cient VCM procedure to provide a lamps from all sports or area light- targets for such actions. specific level of maintenance. ing after the use season. Others Even the simple provision of These facilities should be modified have a 'no glass' development bulletin boards outside camp- to make these periodic restorations policy for the park. ground restrooms and shower- quick, convenient, and houses have been effective in re- economical. Park restrooms are almost rou- ducing graffiti on those building tinely vandalized graffiti, disfig- Process Hindrance: Make it walls. Erecting and clearly desig- by urement, and fixture blockage. By difficult and time-consuming nating a totem pole for carving in sealing wall a park may save numerous trees surfacing, using special Much incidental or opportunistic and picnic tables from disfigure- materials and fasteners, and by vandalism is the result of impulsive ment as well. providing a convenient pipe chase actions which, to the individual, for plumbers, these constantly re- appear to be so easy to do without Damage Reduction: Protect peating forms of vandalism can be threat of disclosure or punishment. quickly and economically cor- and strengthen the targets! By increasing the difficulty or risk, rected. it is possible to make some vandal- No park is vandalism-resistant. Conspicuously branded' por- ism not worth the effort required. Some facilities are inherently sus- table items make park ownership This is especially true for signs ceptible to damage. Others are obvious and helps in the recovery and other items which are popular conspicuous and tempting targets; of items removed from the park souvenirs. These should be still others routinely receive dam- and later discovered elsewhere. mounted above reach when possi- aging abuse or misuse. Often it is Picnic tables, benches, sports ble or secured with special fasten- cost-effective to harden these facili- equipment, and other portable ers which cannot be removed with- ties by using stronger materials. items can be imprinted with a VANDALISM COSTS YOU... £3?*.

BEAUTY . . CONVENIENCE

i pa* to rtecrt I tot tefxm

Why facilities are vandalized needs to be determined to prevent reoccurrence. youngsters Here a fence enclosing a basketball court was cut open because locked. felt justified in providing their own entrance when the gate was woodburner, router, or other de- vice so that stolen items can be readily identified.

Perpetrator Detection: Take away their masks of HELP STOP VANDALISM! secrecy Please report all incidents to the Park Rangers

There are instances — for exam- ^NAnONALittRK SERVICE rf| U ple, when stolen property might be &?' United States Department of Interior \j/ recovered, repair would be very Educational campaigns to reduce park vandalism must be personal. expensive, health and safety of in- Visitors need to know how vandalism diminishes their own enjoyment. dividuals could be impaired, or when restitution by convicted vandals is a principal source of funding for repairs —when it is recommended that vandalism-prone facilities be sited and maintained for easy surveillance. This article is a synopsis of Van- Facilities within sight of park dalism Control Management for work stations, neighbors, sheriff or Parks and Recreation Areas, a police patrols are less frequent tar- 130-page manual which was gets for vandalism than those out prepared under contract to the Na- of sight. For the latter, electronic tional Park Service. Copies (xerox systems may be warranted if prob- or microfiche) are available from able vandalism would be expensive the National Technical Information enough to justify the expense of Service (NTIS). To promote wider the detectors. In either case, the distribution, NPS has permitted loss of anonymity may be suffi- Venture Publishing, Inc. of State cient to deter vandals. College, PA and E. & F.N. Spon, Ltd. of London, England to print a more economical paperback edi- Evaluate Strategies to Keep tion. VCM Program Effective

A combination of social and physical strategies should be selected as a concerted package or Monty L. Christiansen is a park program; no single solution will planning and management control the complex variety of specialist at Penn State University. problems jointly described as 'van- Previously a landscape architect dalism.' By comparing previous for the National Park Service and and current conditions, these Chief Landscape Architect for the strategies can be evaluated. Those St. Louis County (MO) Depart- strategies which are successful may ment of Parks and Recreation, he be combined with modified, re- has been a consultant to the NPS, vised, or completely new strategies USPS, HCRS, COE, and numerous to replace unsuccessful approaches. state and municipal park agencies. Vandalism and Its Relationship to Design

by Brian J. Mihalik, Ed.D.

Today's architect is trained to users of a structure or park, should address many considerations when address vandalism in the areas of designing public facilities such as planning, building site location, civic and recreation centers, grading, pedestrian and vehicular schools, and parks. However, the circulation, material specifications, architect's training needs to assume restroom design, ease of supervi- different proportions today sion and maintenance, site furnish- because of rising operational costs ings and landscaping. which can exceed ten times the initial construction costs. Therefore, an architect, although an artist, Planning, Site Location must assume the role of a building and Grading supervisor, maintenance person, custodian, security guard, user and There are basic considerations / xtensive pedestrian traffic betii

There is no way to totally stop a structure .s located on a site to another. Determination of logi-

vandalism in our public facilities. where eye contact with passing cal pedestrian flow patterns is

At best we must try to understand vehicles is combined with high essential. The planting of attractive the reasons behind vandalism and pedestrian flow, vandalism to this flower gardens or turf areas be- anticipate methods and procedures structure may be reduced. tween two heavily visited sites by to limit vandalism. Much can be Grading is often overlooked in pedestrians is a design flaw that done through thoughtful and the planning process as a deterrent should not be tolerated. The archi- creative designs. A designer, in to vandalism. Slopes and berms tect or designer should use changes conjunction with the appropriate can be utilized as a multi-purpose in materials, levels, or landscaping sion windows, doors, and other vulnerable openings. Illegal entry to buildings is most often gained through windows. This phenomenon is easily ex- in that glass windows are Pedestrian traffic across the turf is discouraged by the proper use of berms and trees with plained low-lying branches. very vulnerable. Windows are like doors in that use should be limited or eliminated when possible. When windows are necessary, place them where they overlook circulation to produce interesting but logical heights. Corridors and restrooms areas. and workable lines of movement. should have a minimum ceiling Plastic windows are now widely Earth berms may be used to con- height of ten feet. Offices and used because of their high impact tain pedestrians to circulation classrooms should be a minimum strength. There are two basic kinds paths. of eight feet. of plastic acrylics and polycar- Pedestrians should not be domi- Mechanical equipment is often — bonates. Acrylics have good opti- nated by vehicles. Reduce vehicle the target of vandalism. Receding cal properties and last about circulation to a minimum by using mechanical equipment into the thirty-five years. Impact strength one-way circulation when possible. wall has proved to be a successful of acrylics is 17 times the strength The use of gentle curves and speed deterrent. Mechanical controls of plate glass. However, the price barriers may keep drivers alert and should be located in a secure cen- of acrylics limits its use as it costs driving at a safe speed. In park set- tral area with additional security about two times as much as plate tings, however, the multiple use of provided through a locked panel. Polycarbonates, the second pedestrian paths by maintenance Mechanical and custodial rooms glass. source of plastics, is very prohibi- vehicles should be encouraged. Not should be provided with deadbolt tive as it costs three to four times providing maintenance vehicles ac- locks. as much as plate glass. It does, cess only encourages maintenance Due to use and abuse, doors suf- however, have the highest impact crews to improvise service routes. fer considerably. When it is pos- strength, as it is 100 times as The maintenance crew that drives sible, avoid the use of doors. How- strong as plate glass. The life of across wet athletic fields because of ever, if doors must be used, two polycarbonates is placed between inadequate maintenance vehicle types of doors are common: 1) a five-to-ten-years according to the paths is a type of non-malicious solid-core wooden door, and 2) manufacturer. vandalism caused directly by poor metal doors devoid of glass sur- Plastic panes do, however, have design. faces and set in metal frames. The a few drawbacks. They will mark, door should have non-removable totally Materials Specifications yellow, scratch, and are not pins in door hinges with hydraulic vandal-proof. Plastics, although Certain materials used inside of door closures to prevent doors having a high impact strength, buildings are vandal-prone if the from being slammed. Glass and have "play" in the frame. A blow facility is unsupervised. Avoid the aluminum doors present a problem in the corner of the window may use of fabric-covered accordian as these doors provide a substan- pop the plastic out of its frame walls, sheetrock walls, suspended tial amount of breakable space allowing entry. accoustical tile ceilings, and all through which entry may occur. Often architects desire to en- other soft materials in hallways Use these only where adequate hance the interior environment and restrooms. Concrete block supervision is provided. Seasonally with natural lighting from sky- walls painted with epoxy paint are used buildings should be equipped lights. However, because forced simple, durable and washable. with a limited number of doors entry is often sought on the roofs Ceilings receive both malicious and windows which are centrally of buildings, skylights should be and non-malicious vandalism. This located. Overhead doors made of avoided unless: a) there is no ac- problem may be reduced through steel may then be used to form a cess to the roof, b) they are the use of two minimum ceiling double barrier, protecting conces- capable of resisting attack, c) they

9 are really necessary. Prevention of Ease of Supervision Signs, Fences, Picnic Tables access through skylights is possible and Maintenance and Vending Machines through the use of security grills Because signs often bear the installed in conjunction with sky- brunt of vandalism, there are steps lights. The skylight may be shat- that can be taken to help reduce tered by a vandal but entry is still vandalism. Signs should be attrac- difficult because of the grill. sensitive A designer must be to tive, durable and carry positive the problems of supervision be- messages. Avoid the use of signs cause he or she can easily create a with negative instructions when nightmare for the supervisor of a Restrooms possible. However, if you must use facility or create a vandal's para- signs, include the reason for the One of the most commonly van- dise. Designing buildings with re- regulation. Informing the public dalized items in a park or building cessed doors or enclosed external may help prevent vandalism to the is perhaps the restroom because of staircases which may act as a hid- sign. lack of supervision. Therefore, two ing place for vandals who desire to design methods have been used to detec- damage property and avoid The latest trend in signs is the curb vandalism in restrooms: 1) tion should be avoided where pos- use of bulky materials such as use vandal-proof materials, and 2) sible. Supervision is a key element wood with routed letters. These design locked utility corridors. The in preventing vandalism. signs are to architect must be aware that the easy maintain and can and bulkiest materials are often be made in-house. Color- simplest A community center in southern and partitions should coded plexiglass sheet is another better. Walls New Jersey was designed specifi- reinforced concrete good material to use for signs be made of cally so a minimum number of with epoxy paint be- because it is colorful, attractive, block painted supervisory staff could control the and inexpensive. Avoid the use of it durable, washable, and cause is facility. A single central supervisor floor should be signs made of formed letters be- resists odors. The area provided 360° viewing of all sealed cause they are easily broken by constructed of concrete and corridors, gymnasium, and game absorp- vandals. The letters may find to resist staining and odor rooms. Where walls restricted sight themselves in a vandal's bedroom tion. lines, shatterproof glass was in- as wall decorations. stalled to allow control. The archi- The architect should design a restroom with a central utility cor- tect made a concentrated attempt Because fences are like doors through design to control un- ridor so that all hardware, plumb- and windows, use them only when ing, drains, wiring, etc. may be wanted acts. necessary. The most vandalized concealed and secured. Equipment portion of a fence is the gate. in the restroom should be minimal, Because inadequate maintenance Therefore, unlock gates or remove them if possible. Number 11 chain consisting of vandal-proof designs. is related to increased vandalism, link fences clad zinc Vandal-resistant electric hand the architect must design from this with heavy dryers mounted flush are recom- viewpoint as well. Because main- coatings and equipped with extra mended over paper towels. Mirrors tenance crews can see flaws that vertical supports are preferred should be made of stainless steel. may be easily corrected, their ad- where people climb or lean on the

Because toilets and sink faciliLies vice in the design process is in- fence. When building athletic

are easily damaged, stainless steel valuable. Once more, if the design fences, account for windscreen toilets and sinks have often re- is not efficient the maintenance load and use appropriate materials, placed vitrous china equipment. If departmen may not maintain the proper depths for poles, and suffi- the price of stainless steel is pro- facilities adequately. Experience cient concrete footings to minimize

hibitive, commercial grade or has shown that there is a high cor- wind damaged fences especially prison grade vitrous china is relation between the appearance of when adding wind screens. another alternative. Because con- public facilities and the incidence Because wood picnic tables will trols are often broken or removed of vandalism. Therefore, mainten- always be targets for wood car- from the water faucets, wall ance must not be inhibited but en- vers, concrete table tops offer sev- mounted pushbuttons may save couraged by designers to reduce eral advantages over wood; they repair cost and the use of water. vandalism. are not easily moved by vandals,

10 they are easy to maintain, and spills are easily cleaned. Table legs and tops can be pre-manufactured by in-house crews in the offseason with the use of commercial picnic table molds. These tables should withstand most acts of vandalism but will be difficult to move once This library sign is difficult to vandalize because of its location above a pond. It replaced a ground-level sign that ions constantly vandalized. located at a given picnic site.

Many vending machines are fre- often easier to use undesirable or The Dean did not feel it was the quently vandalized to obtain mature weed trees that already ex- responsibility of the architect to money that is enclosed in them or ist on the site rather than young design around vandalism. In his because they malfunction. Colum- plants which are susceptible to view, his students would compro- bus Metro Parks in Ohio has vandalism. mise design values for a fortifica- found a solution to this problem. When planting trees use as tion ethic. They place their vending machines mature a plant as possible. A nine in a recessed sheltered wall with centimeter diameter tree is more Obviously, there is no universal the machines enclosed by a 1 3A capable of withstanding abuse. solution or even agreement as to inch solid core door with slots cut Trees are best planted with a clear the role of academic preparation as to provide an adequate view of the stem of two to two-and-one-half a deterrent to vandalism. How- merchandise. Doors are fronted meters and an overall height of at ever, some professionals have pre- with Formica for appearance and least four meters which will put dicted that 75 to 90 percent of all ease of maintenance; frames and branches out of reach of most peo- vandalism could be eliminated jambs are made of metal; security ple. Use prickly plants like holly, through design. Although these fig- is provided by the use of locks at hawthorn and berberis around sus- ures are high in certain instances, the top and bottom of the door. ceptible plants to provide protec- selected government agency ar- The machines are then secured at tion. When thorny plants are used chitects know from experience that night by the use of a roll down near buildings, provide plenty of design does reduce vandalism. steel door. room for access by custodians or Hopefully, this article will assist trash will accumulate and possibly the reader in solving some of his increase vandalism. Landscaping or her problems. Report and share experiences with design successes and failures with your fellow pro- Plants suffer from both Conclusion malicious and non-malicious van- fessionals. One of the best possible The architect can no longer solutions is for landscape archi- dalism. Grass should never be used design in a vacuum. Magill (1976) tects, educators, users, and admin- where sharp changes in direction stated that designers must create to istrators to be creative, to com- occur or under acidic trees. Pedes- serve the social and cultural needs municate, and to be willing to trian paths appear quickly as peo- of people rather than the plaudits work together to eradicate or mini- ple cut corners. When selecting of one's peers. Planners, architects mize vandalism. trees for public places choose ma- and developers could be considered ture trees with the following quali- vandals as a consequence of their ties: lacks falling fruit, deep rather design failures. than surface roots, low maintenance requirements, an attractive Presently vandalism prevention Brian J. Mihalik, Ed.D., is Assis- appearance both in the spring and through design receives mixed re- tant Professor, Coordinator of Ex- fall, and tolerance of heat, dirt, views from academia. Selected tension for the Department of and pollutants. Trees with smooth landscape architects are being in- Parks, Recreation and Tourism bark such as beech are easily structed to prevent vandalism Management, College of Forest carved and should be avoided. All through design, but the words of a and Recreation Resources, Clem- species have specific qualities and southern School of Architecture son University, Clemson, SC preferred locations. Therefore, it is Dean also indicated the opposite. 29631.

11 Vandalism: Law, Viola- tions, and Intervention in Recreation Settings by Harriet H. Christensen and

Nanette ]. Davis

Recreation managers report van- A tree chopped down and water polluted by litter and garbage represent a loss environmen- dalism as a growing problem that of tal quality that is hard to restore. affects budgets, natural resources, and enjoyment of an an assumption that vandalism is important research on vandalism, area by users (Alfano and Magill an offense against property but they leave unanswered issues 1976, Christensen in press, U.S. perpetrated by a willful offender of law and official control. Such Department of the Interior 1978). who shares a propensity for empirical studies have failed to Because so few studies have been misbehavior with other members clarify the social sources of van- conducted, the true nature and of his or her age, race, social dalism. In Western culture, the extent of vandalism in outdoor class, family background, and exact amount of vandalism, recreation areas remain social status. These are called the precise costs, and a profile of the unknown; for example, how opportunity or means-end theses, or vandal are unknown. We know much vandalism occurs, what subcultural perspective. For a that the vandal is still perceived kinds, costs incurred by agencies, more thorough discussion, refer by some as malicious and and so forth. However, there are to Clinard and Wade 1958, destructive. In fact, a stereotype studies that document perceptual Cohen 1966, Greenberg 1981, and vandal does not exist; the differences between users and Merton 1957. Both the opportuni- w orking-class male adolescent managers. For example, studies ty model and the subcultural has been invalidated as a have demonstrated approach offer a limited view to stereotype. Vandals have been disagreements between users and deviance. Most delinquency found in urban, suburban, and managers about what is ap- studies obscure the meanings of rural areas, in working class to propriate and what is inap- vandalism because they upper class families, in various propriate in a recreation setting homogenize the behavior; for in- ethnic groups, and in both

(( Kirk et al. 1971a; Roggenbuck stance, they presume a subclass genders (Bates and Mcjunkins et al. 1980). Although the nature of deviant youth to be the 1962, Donnermever and Howard and extent of the problem is im- primary culprits. They neglect 1980, U.S. Dept. of Justice 1982). portant to identify, fewer studies the larger structural and en- While the social sources of van- have dealt with questions such as vironmental factors that con- dalism remain shrouded in "what works to combat these tribute to lawbreaking, such as uncertainty, the literature does problems, where, when and laws, enforcement procedures, offer some insights about who under what conditions?" and other types of official reac- commits these acts, what targets (Christensen and Clark 1983; tion. are involved, why the acts occur,

Clark 1976; Samdahl et al. 1982). Another approach to under- what behavior constitutes van- This article describes managers' standing deviance relies on dalism, and what and how social perceptions of vandalism and societal reaction, also known as audiences are reacting. their beliefs about the relative ef- the labeling or the interactionist is missing in these studies fectiveness of various interven- perspective. This suggests that it What is a focus on law and social con- tion strati'gies used in developed is the interaction of the person control theory sug- campgrounds in California, who commits the rule infraction trol. Early gested that vandalism occurs Oregon, Washington, and and of those who respond to it because it is not prevented Alaska Specifically, we will (1) that defines vandalism (Becker controls within describe managers' concern for 1963, Kitsuse 1962). An exclusive through personal social different types of vandalism; and focus on societal reactions and the individual or through as interventions (2) indicate some oi the preven definitions o\ vandalism, controls such tion and control approaches cur- how ever, ignores both the larger (prevention and control rently employed and their social implication and changing strategies) initiated by others law perceived etfei ti\ eness. norms and practices of control. In (peers, recreation managers, officials)(Reckless the cast- ot vandalism, it is im- enforcement portant to consider the resource 1972). Vandalism and Social and facility depreciation, and to Theory find- understand specific managerial In evaluating impacts and responses to these impacts. ing ways to mitigate them, Most sociological theories thai conflict-control theory has practical address vandalism as crime make These theories have generated

1? in collaboration value because it is concerned tributing factor to some of the en- Washington, with rules and their impact on vironmental impacts is that at- with university cooperators and users. More recently, some titudes and behaviors regarding other public and private agencies, theorists have begun to focus on rules may be inconsistent among is conducting a series of studies conflict-control theory which users; users may be unaware of to develop appropriate and cost- stipulates that there are inherent the rules, not agree with the effective programs to potentially conflicts between those who rule rules or violate the rules for reduce vandalism. Our approach and those who are ruled, and various personal reasons, such as is to develop descriptive informa- that violations are more ade- making a political statement or tion on the magnitude, quately understood in the context acting out a personal frustration. dynamics, and importance of of official actions and policies Vandalism in some respects vandalism across environmental rather than as the result solely of may take on the characteristics of settings and variable conditions. the individual violator's behavior. a "folk crime"; that is, crime that Based on an analysis of the inter- of the above, ex- Davis (1975) proposes that we (1) is prevalent among a large relationships examine law and violations as number of persons in similar perimental programs will be situational. In circumstances situations; (2) does not violate developed and tested to deter- where control and intervention mores, that is, there is little social mine what works and what does are legitimate (appropriate, effec- support for the relevant laws and not. Programs determined effective, and participatory) deviance rejection of the violators as bad tive will be applied and will be minimal. or criminal persons; and (3) is monitored in selected settings. often dealt with outside the con- In other situations, where law ventional criminal justice system. During autumn 1982, question- and official actions can be iden- Ross (1960-1961, 1973) argues that naires seeking basic information tified as illegitimate (inap- folk crimes relate to the kinds of on the nature and extent of van- propriate, ineffective, and laws created in modern times to dalism and other types of isolating) by significant public deal with the increasing complex- depreciative behaviors were sent sectors, deviance rates can be ex- ity of modern life, rather than to five federal agencies responsi- pected to rise, often beyond the emerging from grassroots ble for providing outdoor recrea- carrying capacities of the system. pressures (see Gibbons 1981a, b). tion opportunities. Agencies par- that in in- Research shows many We assume that there is a spec- ticipating in the assessment regulatory situations, laws favor trum of vandalism from "not so cluded the USDA Forest Service; the more powerful over those serious" to acts that are "very USDI Fish and Wildlife Service, with little political power, and serious." The folk crime, or "not National Park Service, and public officials may remain aloof so serious" kind of vandalism, Bureau of Land Management; and indifferent in their relations may comprise many incidences of and the U.S. Army Corps of with clients or users (Davis and vandalism in outdoor recreation Engineers. Anderson 1983). In outdoor areas. Social control in this in- recreation settings, this A complete census was con- means stance is aimed at more benign ducted of personnel working in that effective laws and interven- forms of intervention, such as the areas of recreation or tion strategies should (1) be local- education or visibility of official resource management, law en- ly appropriate — responsive to personnel, as opposed to coercive forcement, planning, local norms and values, (2) be approaches, such as law enforce- maintenance, and cultural diverse — adaptive to various ment. Our data seeks to clarify resource management in Califor- area conditions and user ac- these alternative approaches in nia, Oregon, Washington, and tivities, and (3) invite citizen par- terms of intervention by Alaska. This assessment included ticipation. managers and their beliefs about people at various management Lucas (1982, 1983) points out the relative efficacy. that in recreational settings ex- levels. The mailed questionnaire cessive regulation or over- Methods had an overall return rate of 90 regulation can produce reverse In response to managers' con- percent. See Table 1 for a sum- effects; for example, more rather cerns, the USDA Forest Service, mary of participating agencies than less rule breaking. One con- Recreation Research Unit, Seattle, and number of managers.

13 Table 1. Participating agencies and number of respondents (N) from each state

Agency State

California Oregon Washington Alaska Total

Forest Service 66(1X1 = 181) 60(1X1 = 135) 55(N = 58) 43(N = 28) 60(N = 402)

National Operational Definition of Park Service 10(N = 27) 3(N=7) 14(1X1 = 15) 15(N = 10) 9(N = 59) Vandalism Bureau of Land The dictionary definition of Management 11(1X1 = 30) 29(N = 65) 5(N=5) 19(1X1 = 12) 17(1X1 = 112) vandalism is: "deliberately mischievous or malicious destruc- Fish and tion or damage of property . . . Wildlife of willful or ignorant destruction Service 5(N = 14) 4(N = 8) 9(N = 9) 23(N = 15) 7(N = 46) artistic or literary treasures" (Random House Dictionary of the Corps of English Language, 1973). To Engineers 8(1X1 = 21) 4(N = 9) 17(1X1 = 18) 7(N = 48) understand vandalism and eventually develop prevention and 41(N = 273) 33(N = 224) 16(N = 105) 10(N = 65) 100(N = 667) control strategies, however, it is necessary to focus on three components: law or regulation, viola- mal reactions occur through in- frame of reference is different for tion, and current intervention direct management approaches managers reporting from various practices. Because of a lack of such as educational programs. states — e.g., what is perceived consensus, some social scientists as serious vandalism in Alaska today are returning to a dic- Results and Discussion may not be viewed similarly by tionary definition of vandalism, To evaluate impacts of and con- managers in California. formulating their own definition, trols for vandalism, two kinds of Table 2 summarizes managers' or borrowing from others (Matza information are needed: (1) perceptions of the importance of 1968). Following suit and relating magnitude or objective measures the three kinds of vandalism this to outdoor recreation, the of the problem such as costs and found at developed campgrounds operational definition for our specific and measurable informa- — vandalism to public facilities, work follows: tion about who is vandalizing, natural resources, and users' property. Examples include: safety Vandalism is a social definition where, when, why and so forth; of the prob- signs shot to the extent that the (not absolute) and includes the and (2) importance message is unreadable, demolish- range of perceptions, attitudes, lem to both users and managers — judgments. ed restrooms, carving on trees, labels, or interpretations attached subjective value and fires built in restrooms. to inappropriate (non-normative) Ideally we would want objective Other impacts include vandaliz- behavior in recreation settings by and reliable measures of the illegal firewood managers, administrators, magnitude prior to measures of ing geysers, gathering, molesting wildlife, and resource specialists, users, plan- importance (Clark and Stankey ners, and researchers. 1979, Stankey 1982). damaging vehicles at trailheads. In this article we deal with Managers in California reported Vandalism is behavior that reports from managers on the in- public facility vandalism as more depreciates the physical and cidence of the problem and their serious than managers in other aesthetic qualities of the environ- experience with what works to states, and Alaska officials

ment and recreational experience mitigate impacts within their ad- reported it as least important.

in recreation settings (Clark el al. ministration. Certain cautions are California has more developed

1971b, C .eneral Services Ad- in order: (1) here, we are basical- campgrounds than Alaska, ministration 1982). ly reporting subjective measures thereby providing more facilities Intervention to vandalism may of the importance of the problem; to vandalize, but this disparity be formal or informal prevention however, some responses In between the two states may be and control strategies. A formal managers ma\ be based on the due to other contributing factors intervention occurs when a warn- culmination of objective informa- as well higher human density, ing is expressed or citation is tion in addition to available different values, and so forth. issued to a violator by the ranger records or administrative studies; More managers in Alaska or other authority figure. Infor- and (2) we are reminded that the reported vandalism to users'

14 Table 2. Perceived importance of vandalism by managers in developed campgrounds

Vandalism targets in developed campgrounds

Perceived as very much of a problem1

National Bureau of Fish & Forest Park Land Wildlife Corps of Service Service Management Service Engineers

Vandalism of public strategies. Anonymous reporting facilities 50(N = 265) 33(N = 30) 37(N = 30) 50(N = 14) practices have a long history in Oregon and this belief in the Vandalism effectiveness of reporting may of natural reflect previous success stories. resources 37(N = 265) 37(N = 30) 22(N = 32) 18(N = 28) Likewise, Washington managers favored increased visibility and Vandalism public report- to users' also held that the property 12(N = 253) 48(N = 29) 8(N = 25) 15(N = 27) ing of witnessed infractions is an effective strategy. The data are limited in that we N = Number of respondents do not know what specific prob- strategies are address- Managers were asked to report their perception of the problem. The three lems these response categories provided were: not at all, somewhat of a problem, or ing. For instance, in Alaska van- very much of a problem. dalism of natural resources is reported by managers as a prob- property as a problem than did the public about expectations lem, more so than vandalism of managers in California; likewise, may take place either at the site public facilities or vandalism of more managers in Washington (at a fireside chat) or away from users' property. perceive it as a problem than in the site (at clubs and schools). Managers believe that entry Oregon. Reasons why are Enforcement, access to the area, stations, hosts at the site, and unknown at this time. Vandalism and fees are strategies some more enforcement are very effec- to natural resources was perceiv- managers believe to be effective. tive in reducing impacts. In con- ed by managers as more of a con- Generally, managers in all four trast, fees and closure of sites are cern in California, Alaska, and states reported visibility practices perceived as ineffective. Because Oregon than in Washington. to be effective in reducing prob- of the lack of observational and Managers were provided with a blems. Managers in California specific data for specific prob- list of specific intervention believe visibility of agency people blems, however, we do not know strategies and asked to report the to be most effective but other which strategies are really effec- perceived effectiveness of each practices were believed to be tive and under what conditions. practice. Although many prac- working well. For instance, work- tices were perceived as effective, ing with users to determine their Conclusion actual effectiveness of most of needs and desires was reported these strategies is unknown. One to be very effective wnich may Studies of social control often kind of intervention strategy in- reflect managers' experiences identify single intervention volves actions taken directly by a with working with users in the strategies to account for the user or group of people. This past. Closures of isolated and reported increase or decrease in might include the participation of problematic sites was a measure rates of deviance. Conflict-control users in monitoring areas or favored by managers to reduce theory, however, points to the reporting witnessed infractions to impacts. Managers also asserted difficulty of enforcing laws under the authorities. that site and landscape design as conditions of widespread viola- well as vandal-proof materials are A second kind of intervention tions and emphasize that there effective in the revolves around management management of are no regulatory panaceas. Some inappropriate behavior. In con- taking action, and it includes vandalism is so common as to be trast they had expectations practices whereby agency person- fewer nearly invisible in terms of that users would monitor their nel are visible. Examples include: official reaction (e.g., littering, area. on-site host; entry stations with graffiti). What Gibbons calls attendants; or visibility of agency Considerable numbers of "mundane crime" and Ross personnel conducting main- Oregon managers regarded in- refers to as "folk crime" may be tenance, interpretive work, fire creased visibility, as well as the customary activities of people control, or other kinds of tasks. public reporting of illegal in- with little access to political chan- In addition to visibility, educating cidents, to be very effective nels. If much of this vandalism is

15 folk crime, then we need to be cautious about the type of intervention employed to avoid alienation by users. Under these ambiguous conditions of social regulation, control theorists recommend flexible or "adaptive control" (Lemert 1972). Vandalism to public facilities extends across the recreational opportunity spectrum from well- developed to primitive settings.

In our study, the response of recreation managers to intervention is evidently a broad-based, diverse approach ranging from user participation to education, official presence, reduced opportunity, and enforcement. Whether managers actually employ these practices or not cannot be discerned from these data. Managers may be express- ing their ideological preferences rather than practices actually employed. We argue for more benign approaches in that these mitigate any potential alienation between managers and users. How do managers balance formal and informal control and what circumstances influence one ap- Involving users at recreation areas visibility personne the many manage proach over another? Do less and of }f merit strategies perceived by managers as effective in combating vandalism. populated areas require less rigorous law enforcement and more dependence on local norms and values? The authors are, respectively, An earlier version of this paper titled The expectations and Research Social Scientist, USDA "Social sources of vandalism: a arguments of adaptive control Forest Service, Pacific Northwest theoretical inquiry" was presented at suggest much leeway for more Forest and Range Experiment Sta- the American Society of Criminology volunteerism and other existen- tion, Seattle, Washington; and Pro- 35th Annual Meeting, November tial approaches. Where a flexible fessor, Department of Sociology, 9-12, 1983, Denver, Colorado. to both system can be shown use Western Washington University, appropriate interventions and in- Bellingham, Washington. tegrating users, then we would argue we can talk about reducing vandalism. Future research

should focus on the questions: This work is based on a cooperative What are "folk" as opposed to agreement between USDA Forest serious kinds of vandalisms? Service, Pacific Northwest Forest & What intervention strategies Range Experiment Station, and should be used for these different Department of Sociology, Western kinds of vandalisms? Washington University. Vandalism: Taking The Offense by Richard Kauffman

It is no secret to park and recrea- Division Chief, decided to launch a tion directors all over the country campaign to make the public more that vandalism to property and aware of the extent of the vandal- equipment is an extremely costly ism problem. As a first step, the crime. Though no hard figures are Department developed a slide available, it is safe to assume that show depicting various park and literally millions of dollars in labor recreation areas and/or equipment and material are spent annually that had been vandalized. Using just to undo the damage that van- the department's speaker's bureau, dals have caused. Vandalism by they took the "show on the road" definition is the willful or to various citizens groups. Even- malicious destruction of property. tually the slide show was able to In park and recreation areas these depict vandalized areas in each realities extend beyond this ex- area of the city so that the show JVi/s door fc> a Recreation Center was destroyed pected definition of smashed picnic was more dramatic in its appeal to by vandals. tables, cut swings, broken win- the citizens organizations in a dows, etc., to include the destruc- given area of the city. tion of trees, natural areas, and The original goal of increasing other more passive kinds of prop- the public's awareness of the extent erty. of the vandalism problem was reporting acts of vandalism was achieved. With that success came solicited. Common vandalism experiences other benefits: complaints regard- Once the awareness program in our field include damage to ball- ing the conditions of parks or was implemented, the Department fields from kids joyriding; broken equipment were reduced and/or set two other goals to achieve in glass in our play areas; security persons were more understanding its effort to combat vandalism: fences around swimming pools and aware of the difficulties facing Police cooperation and preventive being cut; light fixtures in parking the department; because of the measures. lots, around buildings, and even heightened awareness of the on playing fields and courts are public, some funding was obtained Police Cooperation used as targets; picnic tables and to increase the equipment replace- In order to gain the cooperation benches are broken; play equipment program; and, incidents of of the police in combating vandal- ment is deliberately misused and vandalism were reduced. ism it was extremely important to broken; basketball backboards and In addition to graphically get the message to as many police rims are beaten and misshapened; demonstrating the extent of van- officers as possible. To that end, our trees are cut down; and graffiti dalism in Alexandria to citizens and with the cooperation of the is everywhere. How then can Park groups, the Department also Chief of Police, representatives of and Recreation Departments cope launched a campaign to increase the Recreation and Parks Depart- with this kind of rampant destruc- the awareness of the private sector ment made a presentation, includ- tive force? In Alexandria, Virginia, through slide shows and speeches ing the slide show, at every police the Department of Recreation, to the Kiwanis Club, the Soropto- department roll call for one week. Parks, and Cultural Activities mist Club, and other business- The impact was extremely success- decided to fight back, or to take oriented groups. News releases ful. The goal was to ensure that the offense. were sent to local papers detailing each officer understood that van- the types of vandalism in Alexan- dals were persons who willfully Public Awareness Campaign the estimated cost of the dria, and and maliciously destroyed property damage ($100,000 in FY 1982). Tired of seeing new play equip- resulting in an enormous cost to ment used for whittling posts, the citizens, and were not just broken windows, cut fences, etc., Other City Departments, in- youngsters having fun. the Department, under the leader- cluding the school system, were Also, vandals were committing ship of Joe Hensley, Director; shown the slide show and given an crimes for which there were penal- Richard Kauffman, Deputy Direc- orientation as to the extent of the ties. The Department stressed that tor; and Moses Simmons, Parks problem, and their cooperation in it would prosecute in all cases

17 where vandals were apprehended. This policy, coupled with the heightened police awareness, resulted in the need to work with juvenile authorities regarding penalties.

Penalties

A vandal is generally a term applied to an unknown person who has caused destruction or damage to property. Unknown because one rarely sees a "vandal" or has the opportunity to see justice prevail with regard to the damage done by a vandal.

However, in Alexandria, with so many people now aware of the extent of the problem, the unheard of occurred: vandals were caught. If not in the act, then through creative and/or astute investiga- tion. Once caught, penalties had to be levied.

Methods used to penalize vandals included restitution (cash pay- ment) for labor and materials used to repair damage to a ballfield The dedication sign at Alexandria's Simpson Stadium was completely desi done by a teenager "circling the bases" in his car (the license number was secured by a school em- home, and told their mother that dalism as a reality whenever plan- ployee); prosecution of several the Recreation Department would ning or refurbishing a facility, or youngsters who cut a fence to get be filing charges of vandalism. whenever repairs or replacement of into a swimming pool after hours While that never happened, the equipment occurred. Some of those (the police apprehended them in boys were "sentenced," with the preventive measures include: the act); and "working it off" for a cooperation of their mother, to • The installation of flood young lady who had indicated on pick up trash and broken glass lights with Texas shields high the walls of a recreation center throughout the park. enough and bright enough to illu- who her boyfriends were (there minate entire areas were several — she confessed after Preventive Measures • Reconsider the use of the center director suspended the Creating a more aware public is wooden play equipment vis-a-vis boyfriends until she came itself probably the best way to pre- metal, or a combination of wood forward). vent or to reduce incidents of van- and metal Perhaps the most graphic indica- dalism. There are, however, a • Replace the mulch used in tion of the success of gaining number of other ways Park and play areas with sand. Mulch can- police cooperation occurred when Recreation Departments can help not be cleared of broken glass, a police officer caught two nine- to reduce the probability of van- etc.; and can burn or smolder, year-old boys carving their initials dalism. Included in Alexandria's creating another hazard in a piece of wooden play equip- campaign against vandalism was a • Berms used as buffers be- ment. He took the youngsters concerted effort to consider van- tween a park and a street have been eliminated wherever possible • Citizens groups have been "contracted" to clean parks in their areas, creating a sense of community pride, and lowering the cost of maintenance of the park • Stronger, more durable, basketball rims are now available • Do not plant softwood plants (azaleas, boxwoods, etc.) in active areas • Plant larger trees (4" or more in diameter) in active areas. They will have a better chance of survival • Fences should be at least 5' in height with no top rail • Outside electric boxes should be of a thicker metal (old The scorer's table at Alexandria's Municipal Stadium was vandalized. traffic control boxes are ideal).

It must be remembered that each community is different, and that the historic knowledge of the community by park and recreation officials is also a good tool to use in preventing vandalism and/or theft.

In Alexandria, for example, we do not install new tennis nets in the spring until after the fish have stopped running in local streams (we learned that the hard way).

Summary The success of this campaign, tack on vandalism are not only however, should not be measured realized in a financial sense in one year. In order to maintain a through the reduction in labor and Since the spring of 1982, when successful fight, the awareness material spent to repair, replace, Alexandria started its campaign techniques must be continually etc., but they include a more against vandalism, new incidents utilized. In particular, the presenta- sympathetic public, willing to be of vandalism have decreased about tions to citizens groups and at allies in preventing vandalism in 50%. This success is directly at- police roll calls are crucial to main- their parks. tributed to the increased awareness taining the awareness of these of all Alexandrians of the problems groups. Also, news releases are and costs of vandalism, and to the another good method of educating Richard Kauffman is Deputy preventive measures adopted by the public, and conveying the facts Director of the Alexandria, the Department to reduce the concerning vandalism. Virginia, Department of Recrea- possibilities of vandalism. The benefits of initiating an at- tion, Parks & Cultural Activities.

19 Central Park Grarhti Removal Program by Robert M. Powers and David A. Rosen

Graffiti has become a major form of vandalism throughout the country. Despite increasingly large expenditures to combat it, the problem persists. A unique and successful approach to graffiti removal has recently been implemented in New York City's historic Central Park. This article outlines the steps taken to establish and implement the Central Park program. Our objective is to provide a comprehensive model which can be used to help form similar programs in other major parks and park systems. The Central Park Graffiti Removal Program was formed in late 1981 under the direction of the New York City Department of Parks and Recreation and the Cen- tral Park Conservancy, a nonprofit organization dedicated to raising private funds for the restoration of Central Park. Its formation was in response to nearly 40,000 square feet of graffiti which had accumulated in the past fifteen years on the numerous buildings,

bridges, monuments and natural throughout \ variety of n moval systems and products were used to remove the extensive graffiti rock outcroppings. Central Park.

only for a small area of the park to be enjoyed by the New York Attempts by the New York City and failed to have a significant im- City citizenry. Parks Department Historic Monu- pact since the surfaces were free of Working towards the difficult ment Crew to clean and maintain graffiti for only a short time before and at times elusive goal of a the monuments within Central they were "hit" again. graffiti-free Central Park, a num- Park had been unsuccessful. This ber of preliminary steps were taken small of seven people has the crew What was needed to completely before operations began. These responsibility for the maintenance, remove the 40,000 square feet of steps included: repair and restoration of all the existing graffiti to and effectively 1. Conducting a survey of the monuments within the five bor- ensure the fast removal of all park's graffiti, ough park system (1500 monu- future occurrences full was a time 2. Raising the necessary ments within acres of park- crew concentrated in 24,800 the park and capital to implement and support land). did devoted The Monument Crew exclusively to graffiti the program, not have the time or resources removal. By implementing a com- 3. Executing a formal training necessary to clean and maintain prehensive and concentrated program, and the diverse elements within Central removal effort within the park 4. Purchasing the necessary Park. the difficulty Acknowledging boundaries, the impact of a park equipment and supplies. of keeping the park from becoming being reclaimed would be ob- overrun with graffiti, the City tained. It was our objective to Survey periodically awarded contracts to make that impact in order to show various cleaning contractors. But the public that Central Park was a The survey of all the graffiti these "one shot" contracts were well-maintained and safe resource within the park was conducted by

20 a Columbia University Historic Park program in 1981 was approx- emphasizing the following Preservation student intern during imately $47,000. disciplines: a two-month period. Information Through the Conservancy's 1. History — Depicted the evolution of collected during this process pro- fundraising efforts, the Graffiti and development Cen- vided valuable data on the square Removal program received tral Park from the 1860's to the present. The historic and architec- footage of graffiti, where it was lo- commitments for funding for two cated, and the type and condition years. Major contributors were the tural significance of the man-made and natural elements were dis- of the masonry surfaces upon Banker's Trust Company which cussed. The importance of the pro- which the graffiti was located. donated over $65,000, the Osborne gram was placed within this con- Based on the information provided Foundation, and the National text to develop among the crew by the survey, it was possible to Trust for Historic Preservation. members a sense of pride and pro- make the following important pro- The New York City Department of prietorship in the park. jections: Parks and Recreation provided the salaries for two employees, office 2. Geology— Introduced the 1. How many staff hours space and storage facilities for the crew members to the variety of would be required to clean the en-« equipment and supplies. Only masonry and stone surfaces within tire park as well as specific loca- through these generous private the park including granite, marble, tions. contributions was this program brick, limestone, concrete and 2. The type of equipment and made a reality. The City of New Manhattan schist. Compared the machinery required for the task. York could never have been the formation and composition of each 3. The type and amount of sole provider for the program. The of these surfaces. cleaning supplies needed. coordination of funding and ser- 3. Chemistry —Taught the vices from both the private and basics of the chemical composition The importance of conducting public sector was integral to the of paints and inks as well as the an accurate survey of the graffiti creation and successful implemen- chemistry of the paint removers cannot be overemphasized. With- tation of the program. used to remove these markings. out the knowledge gained from 4. State of the Art in Masonry this process, it is impossible to Cleaning — Outlined were the make the necessary management Training Program multiple cleaning techniques avail- decisions in establishing a com- able including pressure washing, The third step in the formation prehensive program. In addition, poulticing and hydro-blasting. of the Graffiti Removal program the survey data is ultimately very Each technique was demonstrated was conducting a formal training useful to the crew supervisor in the and evaluated and its use in Cen- program which introduced the field. With this information in tral Park was scrutinized. crew members to the disciplines, hand, the supervisor can easily 5. Occupational Safety Em- techniques and dangers involved in — plan the day's route and specify phasized were the hazards involved the cleaning process. Only by hav- the time and materials necessary in the various cleaning processes. ing skilled, knowledgeable and pre- for each location. The crew members were shown pared crew members can a success- how to best protect themselves and ful program be executed. the public from these hazards. Fundraising The Center for Building Conser- Special consideration was given to vation, a New York City based the importance of wearing protec- Probably the most important not-for-profit organization com- tive clothing and respirators during and often the most difficult step in mitted to the collection and dis- operations. the formation of a program of this semination of building conserva- size and nature is the raising of tion technology, was contracted to Purchases capital needed to start and to sup- develop the curriculum for the port the project. The costs include two-week training program and to From the specifications for the salaries, removal supplies, provide specifications for the equipment and supplies completed machinery, protective clothing and equipment and supplies necessary by the Center for Building Conser- vehicle. Also included were the for the program. The training pro- vation, the necessary purchases costs of the training program. The gram consisted of both classroom were made. The following list sum- initial start-up cost for the Central lectures and field demonstrations marizes the components integral to

21 carefully tested before the implementation of a successful organic vapor cartridges and dust being used in your location. and efficient program. mist prefilters. Approximate cost for outfitting each crew member 1. Vehicle—To be used for the transportation of personnel, equip- per season is $50. Alkaline Paint Strippers e. Hard Hats with Faceshields ment and supplies. The vehicle The Alkaline Paint Strippers to pull a and Sound Barriers — Complete and must be powerful er ough found to be the most effective on should comfortable head and face protec- 200 gallon water tank and the brick and many of the granite include a trailer tion. Approximate cost is $40 per be customized to surfaces in the Park were "Sure crew member. hitch, shelving and a pressure hose Klean Heavy Duty Paint Stripper" Once all the equipment de- reel. Approximate cost is $15,000. manufactured by ProSoCo Incor- scribed was purchased, operations porated and "Brawn" by Penetone 2. Machinery—A portable began. Corporation. These strippers cold water pressure washer with particularly well multi- objective first worked on the capacity to deliver up to 1,500 The of the season of operations was to remove as ple layers of alkyd and acrylic p.s.i. pressure is the centerpiece of spray paints and brushed-on oil removal operations. The machine much of the graffiti as possible based paints which have been on should also be adaptable to con- from the most visible locations in the surfaces for years. These two nect with a detachable, wet blast the park to display to the public that the very potent strippers usually need grit attachment with siphon. Ap- park was once again being properly maintained. In the second to remain on the surface for a long proximate cost is $6,000. to season, which began in April, period of time (30 minutes 2 3. Water Tank—li a perma- 1983, the crew concentrated mostly hours) to effectively remove most layers of paint. Before alkali nent supply of water is not regu- on the less visible sites. By the end any stripper is applied, the sur- larly available at the removal site, of this season it is anticipated that pre-wet test to it is necessary to have a portable all but the most problematic areas face and prepare a patch water source. A 200 gallon, stain- should be free of graffiti. To date, check for possible staining or other less steel tank mounted on full the three-man crew has removed negative effects which the stripper sized tires and hitched to the vehi- over 30,000 square feet of graffiti. may cause to the masonry. cle provides the required versatil- In addition, these strippers need to be neutralized and the surfaces ity. Approximate cost is $3,000. Removal Systems thoroughly rinsed with water. This 4. Protective Clothing — is extremely important since the a. Protective Rainsuits These remove — In order to effectively major drawback of this type of suits should consist of a hooded this vast of diverse graffiti amount remover is the deposition of salts jacket with chemical resistant zip- from the wide range of masonry within the cleaned surface. Neu- pers or snaps, and either bib-styled surfaces, it was necessary to tralization and a complete water overalls or elastic waistband pants. employ a variety of removal rinse reduces the possibility of salt They need to be resistant to alkali systems and products. Specifically, effloresence. Special attention and solvent-based paint strippers five removal systems were em- should also be paid to wearing the and be relatively tear-resistant. A ployed in Central Park. appropriate protective clothing reinforced, PVC coated rainsuit 1. Alkaline Paint Strippers specified in the previous pages, performs well. Approximate cost 2. Solvent Based Paint Strip- since contact with these strippers per suit ranges from $25 to $50. pers can cause severe burns. b. Boots —Recommend ankle 3. Solvents high work rubbers to slip over 4. Abrasive Cleaning work boots. Approximate cost is 5. Poulticing Solvent Strippers $15 per pair. c. Gloves — Flexible, neoprene Table 1 outlines the systems and The most effective Organic Sol- coated gloves with knit linings and products used on the diverse Cen- vent Strippers used in the Central a dipped, rough finish are quite tral Park surfaces. We would like Park Project were "706 Paint Re- resistant to chemical degradation. to emphasize that these are prod- mover" manufactured by Anti- Approximate cost is $50 per dozen. ucts proven effective in the unique Graffiti Systems and the "DWR d. Respirators — Use an over- circumstances of Central Park. Series 1 and 2" manufactured by the-face respirator with disposable, Each specified product should be KRC Research. These strippers

22 Table 1

RecoKuended Technlquea

Masonry Surface Alkaline Type Solvent Type Pure Solventa Poulticing Hydro-blast lna S s s e- a m vi « *~* sex: i/l — ~ o u s * a

m 8 £ g 8 56 Xa ~ o a < 1£ 5

Pink Granite / • • /

Grey Cranlte • • • Marble • • y

Limestone / Polished Cranlte • y Polished Marble • y Brick / y • Concrete Block /

Cast Concrete •

Manhattan Scuiet Out- / • cropping

were effective in quickly removing (1) Grade 00 "Beach Sand"— used to insignificant architectural fea- alkyd and acrylic single layer on insignificant poured-in-place tures such as power boxes and spray paints and some magic concrete or concrete block sur- concrete block service buildings markers from masonry surfaces faces, (2) Coarse grit sand (1/4 or which were frequent sites of reoc- such as limestone, granite and 1/2 grit)— used on Manhattan curring graffiti. Each coating will marble. Due to their milder Schist outcroppings, and (3) "Black be evaluated on the following cri- chemical composition, it is less Beauty." This mineral grit is a by- teria: likely that these products will product of the burning of coal and cause the staining or effloresence was also used on Manhattan Schist 1. Impact of ultraviolet radia- associated with the alkalis. Thus outcroppings. Besides being an ex- tion on the coating. these systems were frequently used tremely effective abrasive, Black 2. Ease of removal of graffiti on the granite and marble monu- Beauty is a low free silica grit and from the coated surface. ments. costs approximately one-half the 3. Resistance of coating to sol- amount of sand. Unfortunately the vents and strippers used in the re- variety of straight solvents A product is not as readily available moval process. were useful on small patches of as most sands since it is sold by 4. Adherence of coating to magic marker and spray paint on only a few distributors of abrasive substrate after exterior exposure. polished granite and marble sur- products. faces. Acetone, methylene chloride To date, two graffiti-resistant and dimethylformamide each in- coatings have performed well using Poulticing dividually applied to the marking these criteria. They are "Sure with a white rag produced excel- Klean Graffiti Control" manufac- lent results. Thoroughly rinse the A minimal amount of poulticing tured by ProSoCo, Inc., and "CPU surface after the application of the to remove graffiti was attempted 663" which is manufactured by solvent. during the 1982 and beginning of KRC Research Corporation. Con- the 1983 removal seasons. More tinued experimentation and evalua- Abrasives extensive experimentation of this tion of new and applied urethane, technique will continue through acrylic and polyester graffiti- the 1983 season. It is anticipated resistant coatings are Three different types of abra- continuing. that this system will be utilized sives were used in the program. primarily on more problematic sur- Each of these products was used in Park Monitoring faces such as limestone and conjunction with a hydro-blasting possibly sandstone. unit which is easily attached to the Monitoring the park for new gun of the pressure washer. When- incidents of graffiti has become a ever using these products, it is ex- Coatings keystone of the program. Approx- tremely important that the imately 1,000 square feet of graffiti operators be fully protected from In addition to removing graffiti, have reappeared since operations the dangers of silica particles. All the Central Park Team tested began, all of which has been personnel working in the im- various graffiti-resistant coatings to immediately removed. At least mediate area must be wearing the determine the feasibility of incor- once a week the crew monitors all proper respirators with silica pre- porating into the protective main- the sites that have been cleaned. If filters. tenance system of Central Park. a previously cleaned site is rehit, The three abrasives used were: Experimental coatings were applied the crew immediately re-cleans the

23 area. The key to keeping these sites free of graffiti is not to let up, but to clean the site immediately.

To date, two types of structures have not been cleaned by the Graf- fiti Removal Crew. Of primary concern are the bridges within the park. Constructed largely of New Brunswick sandstone, this porous and fragile masonry requires special attention. A continuing study of how to clean this type of surface is being pursued by the Center for Building Conservation in collaboration with the Central Park Conservancy and George Wheeler of the Metropolitan Museum of Art. The second type of surface which has not been cleaned are in those areas not frequently used by the public or not managed by the park's maintenance personnel. Until the future use of these areas is determined, the structures within these areas will remain uncleaned.

Conclusion

The Central Park Graffiti Removal Program has been extremely successful in meeting the goals established before the com- mencement of operations in May, 1982. In one-and-a-half years over 30,000 square feet of graffiti have been removed from a variety of masonry surfaces. The rate of reoccurrence of new graffiti is below 4%. Experimental cleaning/ removal techniques and products as well as barrier coatings have been applied and evaluated. Tech- nical information learned from the

operations is being disseminated to professionals in the field as well as to the public. With the exception of a few locations, Central Park is free of graffiti. Any new occurrences can be easily and quickly removed. The difficult and elusive goal has been obtained. It is our hope that the success of this project will stimulate the formation and execution of similar styled programs throughout the country.

Robert Powers is presently employed with the National Park Ser- vice, Mid-Atlantic Regional Office in Philadelphia. David Rosen is at- '- remove graffiti in Neiv York* Central Park. tending the Harvard University Landscape Architecture Program.

24 A User-Orientation to Managing Vandalism

by John L. Hex/wood, Gary W. Mullins and Sally Blower

it significantly Vandalism is a persistent prob- Vandalism in recreational areas cynicism; thus, may lem in parks and recreation areas can be analyzed in terms of two detract from recreational ex- that can have detrimental financial major effects: financial effects on perience. It also has been demon- effects on organizations and ad- managers and psychological effects strated that vandalism can con- verse psychological effects on on visitors. Although psychologists tribute to the deterioration of visitors. Selection of vandalism and sociologists have extensively physical and mental health in the control strategies will be more ef- researched the causation of vandal- elderly.

fective and efficient if managers ism, they have, unfortunately, Supposedly, the psychological are aware of visitors' perceptions scarcely noted its effects. There- effects of vandalism result in re- of the vandalism problem. fore, the limited body of research in this area must be viewed with duced visitation levels and ulti- comparative caution. Tentative mately, in the misuse of parks and Vandalism is perhaps one of the conclusions, however, can be other recreational areas. In fact, greatest threats to the provision of drawn from the sparse results of visitation levels have dropped sub- quality park and recreation oppor- psychological and socio-medical stantially in various highly van- tunities facing managers in the dalized parks. Whether psychologi- research. This scientific evidence 1980s. Unchecked, it can have cal effects of vandalism are the appears to corroborate circumstan- detrimental financial effects on cause of such non-use or are sim- tial evidence and supports specula- organizations and adverse psycho- ply a correlating factor is mere tion that vandalism can, indeed, logical effects on visitors — a com- speculation. Thus, future research have detrimental psychological ef- bination which spells disaster for is necessary to quantitatively assess fects on people. the sponsoring organization. the magnitude and importance of these effects. In the past two decades, the fre- Psychological Effects quency and extent of vandalism has increased and its distribution Financial Effects Studies in U.S. Forest Service has become more concentrated. campgrounds and Canadian pro- Hence, certain areas have sustained vincial parks have shown that The financial effects of vandal- a disproportionate amount of dam- depreciative behavior may induce ism on park management are two- age. Publicly-owned places in feelings of sadness, depression, and fold. First, expenses incurred as a densely populated areas have borne the brunt of vandalism. Consequently, many inner-city parks have deteriorated considerably.

Vandalism is of substantial concern to both visitors and managers in many recreational areas. Results of recent research studies on vandalism indicate the considerable magnitude of the problem and provide evidence for its differential distribution and concentration in urban areas. These studies reveal severe deterioration in a significant number of city parks as a result of vandalism. A general conclusion of much of the vandalism research in the 1970s has strongly suggested that vandalism is an extremely expensive national problem which is often poorly managed by public The factual and value perceptions of dam, natural environment differed for ma)ia$crs agencies. and I'isitors.

25 —

result of vandalism are responsible Vandalism such as this for reduced financial resources. extensive graffiti can have Second, expansion and preserva- detrimental psychological on park visitors. tion of programs or facilities are effects then curtailed. Mitigation of the effects of vandalism often entails significant expenditures. Damaged facilities must be repaired or replaced, and installation of control systems can be exorbitantly expensive. Such corrective or preventive measures can utilize a significant portion of the management budget. For example, the U.S. Forest Service spent a significant 15 percent of its total 1978 dalism: The Menace to Leisure Re- other than the professional orienta- recreational management and sources in the 1980s, published by tion alone are needed. instruction budget on controlling the National Recreation and Park vandalism and rectifying its effects. Association, is to consider suc- As vandalism increases, the cessful vandalism control strategies Visitor /Manager expenditure for its control rises utilized in other similar park Perception Study and consumes a progressively systems. Adoption of this ap- greater percentage of the budget. proach, however, ignores one Vandalism-caused budgetary aspect of managing the problem A recent research project at The restrictions can hinder facility or the perceptions of both the park Ohio State University sought to program expansion and develop- manager and the users. These two add a visitor orientation to the ment. The financial effects of van- populations must be taken into problem. In that study visitors' dalism, in terms of expansion re- consideration. and managers' perceptions of three straints, can be considerable. Currently, the treatment of park levels of four different types of For example, in 1978, the U.S. vandalism lies mainly under the vandalism in parks within a major Forest Service in California spent jurisdiction of middle- and upper- Ohio urban park system were meas- $1,500,000 on vandalism control. level managers. Managers general- ured. Perceptions of high, moder- If control of such depreciative ly aim for a unified approach to ate and low levels of litter, graffiti, behavior had not been needed, vandalism management based damage to the natural environ- these funds could have been used upon professionally acceptable ment, and damage to man-made to provide over 700 new camp or criteria. This adoption of a facilities were used as levels of picnic sites. Since vandalism man- managerial perspective can be de- measurement/categories. Study agement can consume a sizable scribed as a professionally-oriented sites included six different urban portion of the park and recreation approach. Because managerial park areas ranging in size from 46 acres to 4,806 acres. One hundred budget, it becomes a particularly judgments are the only views con- and twenty visitors twenty- crucial consideration in an age of sidered in professionally-oriented and budget cutting. Constant whittling park management decision-making, two managers were studied. away of funds for repair and re- the consequence can often be a Results show that: placement purposes is seriously re- stereotyped rather than an innova- stricting facility improvement and tive approach to the treatment of • Factual perceptions of the program development in many vandalism. Although the manage- types and extent of vandalism dif- areas. ment approach is professionally fered for managers and visitors. agreed upon, neither the economic Managers' assessments of littering, Selection of vandalism control effectiveness nor the practical effi- damage to man-made facilities, strategies, therefore, becomes a ciency of this strategy has yet been and natural environment damage critical management decision. One evaluated. To add a broader per- indicated that these problems were approach, addressed recently by spective to this problem, more reoccurring at higher levels than visi- Thayer and his associates in Van- search data based on dimensions tors actually noticed.

9a Visitors considered high litter levels to be most detrimental.

• Managers were unaware of tarian premise that park problems Adoption of the user-oriented the factual perception differences should be addressed in a way that approach could also result in con- between themselves and visitors. produces the maximum benefit for siderable financial savings, as it the user. The extent to which might be shown that only partial • Value perceptions of the im- managerial decisions actually fulfill elimination of vandalism would be portance of different types of van- their objectives depends upon the necessary. The budget allotment dalism differed for managers and degree to which managers compre- could thus be reduced by the mini- users. For example, managers con- hend visitor views and needs. mal expenditure for vandalism sidered high levels of damage to control satisfactory to the user. the natural environment as the Since practical and economic reali- Consequently, maximal expansion most detrimental while visitors ty decree that all levels of vandal- of facilities and programs could considered high litter levels to be ism cannot be completely take place. Utilization of the user- most detrimental. eliminated, the comprehension of oriented approach for vandalism

visitor views is critical for efficient management should eventually • Managers were unaware of and cost-effective management. result in an increase in the quality the value perception differences of urban parks and park manage- between themselves and visitors. Theoretically, such a user-oriented ment, and in visitor satisfaction. approach to management There is a critical need to address Visitor needs have always been a would ensure that the various current perceptions of vandalism primary emphasis in urban park types and levels of vandalism held by managers and visitors in management. In practice, however, are reduced to the extent that urban parks, and to analyze the ef- visitor needs have been assessed by both financial and psychological fectiveness of management in terms management professionals and effects are mini- mized. of a user-oriented approach as well have not been evaluated based on as based on management stand- research of visitors' requirements. ards. Therefore, park management deci- Institution of this approach sions tend to be determined by depends upon soliciting visitors' professionally appropriate criteria views on the types and levels of to the exclusion of visitor need vandalism they consider most im- criteria. The philosophy of park portant. Acceptable and unaccep- management, however, is for the table levels and the types of van- John L. Heywood and Gary W. most part moving away from the dalism could be deduced from in- Mullins are Assistant Professors of rigid, stereotyped approach of the terviews with park visitors. Man- Parks and Recreation Administra- past towards more holistic, agement of vandalism based on the tion in the School of Natural Re- humanistic ideals using research- resultant data should ensure that sources at The Ohio State Univer- based strategies. Hence, managers the most important types and sity in Columbus. Sally Blower who are becoming more responsive levels of vandalism be given priori- recently completed a master's to and more concerned about the ty treatment. Theoretically, the degree in that school. Send all cor- visitors' perceptions of problems last important types and levels of respondence to the authors: Divi- may be thought of as adopting a vandalism have the lowest priority sion of Parks and Recreation Ad- user-oriented approach. or need not be treated as they ministration, School of Natural Re- would presumably cause only sources, The Ohio State University, Management decisions have minimal detrimental effects on 2021 Coffey Road, Columbus, Ohio always been based on the utili- visitors. 43210.

27 Park Watch in San Jose VANDALISM COSTS by Jay Castellano 120 BIEBRACH PARK INCIDENT 00 100 CAHALAN PARK INCIDENT * O 80 j— » Q LL o 60 -I COa z < 40 — Biebrach Park . . . one evening CO i in April 1979 . . . vandals start a o in the tool room the shelter fire of X 20 building. The fire destroys the wood structure and its contents.

The restrooms, within the concrete _J j block section of the building, are 1979 1980 1981 1982 the only things left intact. Arson investigators determine that gaso- Repairs from 1979 through 1982 totalled over $330,000. line was used to set the fire. Alcoholic beverages are found on citizen participation through com- pressed a desire for this type of the the structure and on a roof of munity meetings to prevent and program. nearby picnic table. Cost the of reduce crimes in parks. Park With input from the Park damages—$50,000. Watch requires cooperation and Ranger staff the commitment from park neighbors and Crime Preven- . . . evenings in Cahalan Park tion Unit of the San Police (those whose homes or businesses Jose and June 1982 . . . vandals May Department, it was determined have visibility of the park) and take down eight light poles, that the three most appropriate backstops, park users to report any unusual destroy two softball topics of discussion for a Park the tennis backboard or suspicious park activities to the and damage Watch meeting would be a Neigh- apparatus. Repairs will Police or Fire Departments, Park and play borhood Watch overview (in Rangers, or local recreation com- cost $42,000. which the principles of crime munity center. A very important prevention and reduction through These are only two of the note is that San Jose Parks and community involvement are numerous vandalism incidents Recreation is interested in gaining reviewed), the Park Watch presen- which occurred in parks through- the assistance of park neighbors tation (which describes in detail out San Jose, California, during and users in combating crime in how park neighbors and users may the period 1979 through parks. The Department asks that 1982. apply these principles incidents sim- same Vandalism repairs totalled citizens who witness over specifically to parks), ply notify the proper authorities and a ques- $330,000. Still, vandalism was not tion and answer period between allow them to handle the the most common crime that oc- and the community and various city is appropriate. curred. Police and Park situation as most Ranger staff members. reports showed that during this same period there were more inci- Based upon this format, the in- dents of assaults, narcotic viola- Park Watch Meetings formation presented, and the con- tions, and sex-related offenses — all cerns most commonly expressed at on city parks alone. the meetings, the specific city staff During the summer of 1983, the asked to represent their sections at In order to alleviate this situa- Parks and Recreation Department each Park Watch meeting are the: tion, the San Jose Parks and coordinated and facilitated Park Citizen Safety Project Coordinator, Recreation Department, with the Watch meetings for residents and responsible for the general coor- support of its Parks and Recreation users around twenty of San Jose's dination and facilitation of each Commission and City Council, has 152 parks. The selection of parks meeting; Recreation Supervisors, since been using an "Action Plan" was made through the cumulative available to discuss recreation pro- that outlines various strategies to suggestions of Recreation Super- gramming as a crime prevention be used to reduce and prevent visors, Park Maintenance Super- strategy; Park Rangers, the crime in parks. strategy The key of visors, and Park Rangers. The primary focus of the question and this "Action Plan" is the Park selection criteria was a combina- answer period; and the Park Main- Watch program. tion of 1) current park crime rates, tenance Supervisors and City Park Watch is similar to the 2) parks whose recent crime in- Council representative, each serv- nationwide Neighborhood Watch creases indicate a potentially erup- ing as city resource staff available Program, coordinated by local tive situation, and 3) parks whose to participate in the question and Police Departments. It utilizes neighbors and/or users have ex- answer period with the Rangers.

28 Police Department. In addition to agreeing on inter-departmental reporting and response responsi- bilities, the Park Watch meetings (contents, materials, clientele, etc.) must complement Police programs that deal with crime prevention (Neighborhood Watch). Also, the Police are obviously the primary Park Rangers were some the city representatives addressing community concerns at a Park of informational resource for any Watch meeting. crime prevention presentation. • For greater meeting attend- As mentioned before, the major in the amount of calls-for-service ance and program effectiveness, objective of the program is to en- to the authorities by those who at- staff must address their publicity courage citizens to contact the tend the meetings, assuming that efforts to not only the residential proper authorities when an inci- the actual incident count for that park neighbors, but also the neigh- dent is witnessed. Therefore, dur- area remained the same after the boring businesses and the park ing the course of the meeting, the meeting. In other words, for that users —everyone who may serve as phone numbers, as well as the same area, because there would be the eyes and ears of the law en- range of responsibility and jurisdic- more calls-for-service from which forcement agencies for a particular tion, of the Police and Fire Depart- crime reports may originate, crime park. Of course, the largest Park ments, Park Rangers, and local reports would show an increase in Watch groups will be able to see recreation community center are crime. Within the San Jose system, and report the most incidents. continually emphasized during a record of calls-for-service by in- Additionally, identifying key com- each meeting. dividual park site and by caller munity members to help talk to Just as Park Watch meetings cannot be effectively traced cur- other neighbors about Park Watch have been an opportunity for city rently. Still, enforcement officers and any upcoming meetings is staff to communicate with the citi- have subjectively reported an ap- definitely a profitable investment. zens, the meetings have also been parent increase in calls. • In presenting Park Watch, it an opportunity for the citizens to is important that Parks and express their specific concerns to The other measurement of effec- Recreation staff attend the meeting staff. Though these concerns will tiveness to be used in San Jose are with other city staff as additional obviously differ from park to the follow-up Park Watch meetings resources. park, and even more so from city at which citizens offer their feed- to city, the major problems occur- back on the program. As previously mentioned, San ring in San Jose parks, according Jose Park Watch meetings include to the neighbors and users, involve Preparatory Guides Park Rangers (and Police, as avail- park curfew violations, malicious able), Parks Maintenance staff, mischief (vandalism), alcohol and an analysis of the pro- City Council representative and narcotics use, consequential speed- Based on ject's initial strengths and weak- the Recreation Field Supervisors. It ing of vehicles around parks, and nesses, the following are some of must be realized that Parks and parking violations. In addition to the notes used to improve San Recreation staff are experts on asking for the enforcement of the Jose's program and its delivery sys- maintenance and programming, laws and ordinances relating to the tem. These notes are intended to the Police and Rangers are experts above, communities frequently ask serve as preparatory guides to on law enforcement, and each the city for additional security those who are in the midst of pre- must stay within their specialty to lighting on parks to deter late- paring their own Park Watch-type be most effective. However, if the night, inappropriate activities. of program. community and their park concerns are to be addressed as com- Measurements of Success • It is extremely important pletely and as promptly as possi- As a result of the Park Watch that this program, though originat- ble, Parks and Recreation should meetings, an ideal measurement of ing in Parks and Recreation, be facilitate these types of community success would be to see an increase developed in cooperation with the meetings.

29 Since San Jose Park Watch was first publicized in January 1983, park crimes city-wide have decreased by 19.3% as compared to the same period the previous year. A more specific example of Park Watch success is Cahalan Park of South San Jose. A Park Watch meeting was held to address their $42,000 vandalism incidents of May and June 1982. The residents were given the basic Park Watch information regarding the different law enforcement agencies and their phone numbers. They also had the opportunity to communicate their concerns about additional patrol- ling of the park by Police and Park Rangers, expediting vandalism repairs (particularly security lighting), and the installation of speed Park Wnkli meeting flier* must be distributed to park neighbors and it, bumps on the residential streets surrounding Cahalan Park. Since their Council representative was MAKE THIS NEIGHBORHOOD attending the meeting, their con- A SAFE PLACE TO LIVE cerns were immediately heard at ATTEND YOUR the highest level in the system.

One month later at a follow-up ^V*=* PARK WATCH & Park Watch meeting, new security WATCH MEETING lighting was installed, park patrols NEIGHBORHOOD were adjusted to give more atten- THIS IS A PROGRAM TO ELIMINATE CRIME AND VANDALISM tion to Cahalan Park activities, IN YOUR NEIGHBORHOOD AND ON YOUR PARK. and the Traffic Opera tions Depart- i'M YOUR PARKS 8 RECREATION ment was preparing a needs study REPRESENTATIVE for street undulations surrounding CALL ME FOR FURTHER INFORMATION the park. 0£

<4)

This is only one example of ac- MEETING TIME tions and citizen satisfaction to be fostered by Parks and RecreaMon MEETING PLACE OFFICE LOCATION 8 PHONE NUMBER Departments through the active facilitation of inter-departmental Results of an arson incident in Biebrach Park, San Jose, in 1979. cooperation, coordination of concerned neighbors, purposeful community meetings, and a sincere desire to improve park safety and this type of program is helping San San Jose Parks and Recreation problems. The San Jose Parks and Jose to keep its parks an enjoyable Department. More information on Recreation Department has seen environment for public recreation. San Jose Park Watch may be ob- Park Watch reduce vandalism tained by contacting Mr. Cas- repair costs and crime rates dras- tellano at 151 West Mission Street, tically. Community involvement Jay Castellano is the Citizen Safety San Jose, California 95110, (408) and general public awareness of Project Coordinator for the City of 277-4661.

30 Effectiveness Evaluation of Management Alternatives for Dealing with Park Safety and Security Problems by James E. Fletcher

In recent years, a growing concern about the impacts of crime on park use has been expressed by park administrators and members of user publics (see Conners, 1976; Con- way, 1981; Chubb and Westover, 1981). If a park manager suspects that perceived or actual safety and security problems are adversely af- fecting visitor use of a park, a detailed identification and description of the nature and extent of these problems should be the first step in planning management alternatives directed at reducing these problems. The manager should then attempt to measure the effectiveness of these management alternatives by implementing one or more on a trial basis and closely monitoring the change in the Entrance station at Welch Park, Somerville Lake, lexas. number of actual as well as perceived safety and security prob- to test the potential effectiveness of effectiveness evaluation. Baseline lems. This can be a time-consum- major managerial alternatives data for the first year and following and costly process which re- available to the reservoir manager up data for the second year were quires careful control and monitor- that could be utilized to reduce or collected from two sources: ing to accurately assess the results. eliminate major safety and security (1) crime and incident reports The information presented here problems. from area law enforcement agen- includes a description of one ap- cies and the park managers; and The three objectives of this proach used to formulate and test structured on-site inter- study were: (2) management alternatives directed views with park users. a. Identify and describe the at park safety and security prob- All data reported for 1981 and types and numbers of safety and lems. In addition, a discussion of collected between security problems that park users 1982 were 15 the findings from the study are and 15 September, the period experienced at the lake, May presented for managers who may of heaviest use at Somerville Lake. b. Determine how those prob- be considering similar approaches Sample size the first year of the lems affect visitor perceptions of for dealing with safety and security study was 504 on-site interviews safety and security in the parks at problems in their parks. and 629 the second year. Somerville Lake, and The two sources of data used for c. Evaluate the effect of user evaluation were selected for the Site Selection and fees and controlled visitor access following reasons: Study Objectives on actual and perceived safety and (1) If crime and incident security problems in the parks. Somerville Lake, Texas, was reports were the only data sources from which data were collected chosen as the study site for this re- Collection of Data search because it was considered and if, for example, increased for Evaluation representative of many U.S. Army patrols were a management alter- Corps of Engineers reservoirs in During the first year of the native selected to address crime terms of use characteristics and study, an identification and problems in the parks, reported management practices. The study description of safety and security crime might increase because of the was undertaken during the sum- problems and their impacts on availability of patrol officers which mers of 1981 and 1982 to docu- visitor use and enjoyment of the would facilitate more reporting ment park safety and security parks at Somerville Lake was com- even though the actual crime rate problems at Somerville Lake and pleted to serve as baseline data for might have declined. Therefore,

31 reported crime alone might lead (Birch Creek and Nails Creek) assault and sexual indecency, were the manager to conclude that crime were managed by the Parks Divi- also under-reported (see Table 1). in the parks was a growing prob- sion of the Texas Parks and Wild- Park users' perceptions of safety lem despite increased patrols, or life Department. Two of the and security problems in the parks that patrols were ineffective in Corps-managed parks (Welch and were measured by asking inter- reducing crime problems since Overlook) were designated as day- viewees if, in their opinion, each reported crime does not usually use areas, though camping was of eight types of crime was a prob- provide an accurate indication of permitted but not encouraged. Ac- lem in the parks at Somerville actual crime when major manage- cess to these areas was controlled Lake. According to 1981 data, ment changes are made. with no entrance gate or gate at- driving while intoxicated was per- (2) On-site interviews with tendant. The three remaining ceived to be a major problem by park visitors should give the Corps-managed parks and the two 60 (13.5%) of the interviewees, manager a more accurate assess- state parks were managed for fee while 57 (12.6%) perceived dis- ment of actual crime problems, camping and day use. Fee booths turbing the peace to be a major crime rates and accidents, since and gate attendants were provided problem. (See Table 2.) many crimes and accidents are not at each of these areas during the A statistical analysis of inter- reported to agencies. Data from fee season (March through Oc- viewee responses to the eight per- interviews provide a more com- tober). In addition, the state parks ceived crime problems and major plete view of the problem and a were patrolled by commissioned park rule violations in Somerville more sound basis upon which to law enforcement personnel em- Lake parks revealed that a signifi- measure the effectiveness of man- ployed with the parks. cant difference existed between agement alternatives directed at Welch Park, Overlook Park, mean or average responses of reducing the problems. and Big Creek Park accounted for interviewees from the fee parks 40 (74.1%) of the 54 violations and the mean responses of inter- (3) Statistics on reported crime provide no information on visitor and accidents reported to park viewees from the parks which con- perceptions of crime and accident authorities and area law enforce- tained one or more non-fee areas. problems. Since human perceptions ment agencies between 15 May Thus, a major finding of the first shape behavior, the manager needs 1981 and 15 September 1981. year of the study was that actual to assess visitor perceptions regard- Welch Park alone accounted for 27 and perceived crimes in fee parks ing park problems and how those (50%) of these, while Overlook ac- with controlled visitor access were for than in non-fee affect visitor behavior. On-site in- counted 8 (14.8%) and Big significantly fewer uncontrolled access. terviews are a good method for Creek 5 (9.1%). parks with (i.e., the spring of 1982, most gathering data to assess visitor per- Safety or security problems During park rule violations, crimes and of Overlook Park was converted ceptions regarding (1) problems accidents) were reported as having into a fee area with controlled ac- and (2) the relative effectiveness of entrance management alternatives which been experienced at Somerville cess through a manned of the gate. 1 1982, Welch Park, could be directed at addressing Lake by 195 (38.9%) 504 On July area, those problems. In addition, data persons interviewed in 1981. a non-fee Corps-managed to the City of Somer- on visitor perceptions collected Eighty-eight (45.1%) occurred was leased city converted the before and after management within a designated park area. Dis- ville, Texas. The area changes can be used to evaluate turbing the peace was the most park into a fee day-use and all traffic through the effects of the changes on per- common type of problem with in- began to channel ceptions and behavior. jury and theft as the second and a manned entrance gate. Hourly third most common problems in patrols by the city's police depart- Evaluation of the the parks. According to persons ment were also begun. Detailed Effectiveness of Controlled interviewed, only 27.1 percent of data on actual as well as visitor- all incidents were reported to a perceived safety and security prob- Access and Use Fees park ranger, park attendant, or lems collected and analyzed prior During 1981, five Somerville local law enforcement officer. to these two conversions facilitated Lake parks (Welch, Overlook, Big Minor offenses, such as disturbing the evaluation of the impacts of Creek, Yegua Creek, and Rocky the peace and theft of less than $50 these changes on actual and per- Creek) were managed by the U.S. were the least reported. However, ceived safety and security prob- Army Corps of Engineers and two some felony crimes, such as sexual lems. Table 1

Problems Experienced by Visitors Interviewed in the Parks at Somerville Lake, Texas —1981 and 1982

Num t>er Percentage of Experiencing Total the Problem Respondents

Type of Problem 1981 1982* 1981 1982

Theft of less than $50 23 14 4.6 2.2 Theft of $50 or more 18 2 3.6 0.3 Vandalism 17 11 3.4 1.8 Between 15 May and 15 Septem- Disturbing the peace 80 71 15.9 11.3 ber 1982, 49 separate incidents in- Assault 6 2 1.2 0.3 volving crimes, major park rule Sexual assault 6 4 1.2 0.6 violations and accidents in the Holdup 4 0.8 parks were reported to park authori- Sexual indecency 15 13 3.0 2.1 ties and area law enforcement Accidental injury 26 33 5.2 5.2 agencies. Of these, 7 (14.3%) occurred in Welch Park, which was a *Some respondents reported more than one • problem. drastic decrease from the 27 (50%) incidents reported from that park dents in 1981 and 56.6% in 1982. perceived disturbing the peace to in 1981. A large portion of Over- A more detailed analysis of the be a major problem (see Table 2). look Park was converted to a fee time and place of occurrence of Thus, the 1982 statistics on per- park with controlled access prior each incident reported from Welch, ceived crime problems in the parks to the collection of the 1982 data. Overlook, and Big Creek in 1982 showed a marked decrease (5.0%) Overlook accounted for 14 revealed that 72% of the incidents for driving while intoxicated and (18.6%) of the incidents reported occurred in a non-fee area of the 5.9% for disturbing the peace) in 1982. However, only 3 of these park where uncontrolled access over 1981. This lends support to a 14 incidents occurred in the fee was permitted, or occurred in conclusion that visitors perceived portions of Welch and Overlook Welch Park prior to its conversion the parks to be safer in 1982 than where access was controlled which to a fee park with controlled access in 1981, which may largely be ex- demonstrates that parks with con- on 1 July 1982. plained by the conversion of the trolled access are more secure for Data on crimes committed in the two parks with the highest visitor- visitors than parks with uncon- parks at Somerville Lake as perceived crime rates (Welch and trolled access at Somerville Lake. reported (1) to park authorities Overlook) to fee areas with con- Only 141 (22.4%) of the 629 and area law enforcement agencies trolled visitor access through a visitors interviewed in 1982 and (2) to interviewers during on- manned checkpoint. In addition, reported having experienced a safe- site interviews show an overall re- Welch Park was routinely pa- ty or security problem during a duction in the crime rate in 1982. trolled by the Somerville Police visit to Somerville Lake. This was The greatest reduction occurred in Department after 1 July 1982, a significant decrease (16.5%) over that portion of Overlook Park which further impacted actual and the 1981 figures. Seventy -six which was converted to a fee area perceived crime problems in that (53.9%) of these occurred within with controlled access in 1982 and park as evidenced by reported the seven designated park areas. in Welch Park after its conversion crimes and visitor perceptions meas- Data on specific types of problems to a fee park with controlled access ured by the on-site interviews. experienced by visitors interviewed on 1 July 1982. One common visitor response to in 1981 and 1982 presented in A detailed analysis of 1982 inter- actual or perceived crime in a park Table 1 show a reduction in the viewee perceptions of crimes in the area is avoidance of the area (see percentage of visitors who reported fee areas compared with those Chubb and Westover, 1981). The having experienced one or more of from the non-fee areas of Welch impacts of actual and perceived eight crimes in 1982 as compared Park and Overlook Park revealed safety and security problems on to 1981. that interviewees in the non-fee park use and enjoyment were The three parks with non-fee areas of these parks perceived each evaluated in this study by asking public use areas (Welch, Overlook, of eight crimes and major park interviewees if they would avoid and Big Creek) accounted for 43 rule violations to be greater prob- any of the parks at Somerville (56.6%) of the 76 incidents lems in those areas than interview- Lake because of crime problems, reported in 1982. This was a de- ees in the fee areas. The 1982 data and if so, which parks they would crease of 7 (14.0%) from the 50 re- also revealed that 48 (8.5%) of the avoid. In 1981, 8.9 percent of the ported during on-site interviews persons interviewed in the seven persons interviewed said they during 1981. However, the per- parks at Somerville Lake perceived would avoid one or more of the centage of the total number driving while intoxicated to be a parks at Somerville Lake. Of the reported remained about the same major problem, and only 38 8.9 percent, 7.7 percent indicated — i.e., 56.8% of all reported inci- (6.7%) of the 1982 interviewees that they would avoid either

33 Table 2

Visitor Perceptions of Crime in Somerville Lake Parks 1981 and 1982

Visitor-Perceived Significance of the Problem

Not a Problem Minor Problem Major Problem

1981 1982 1981 1982 1981 1982

Type of Crime Number (%) Number (%) Number (%) Number (%) Number (%) Number (%)

Theft 306 (68.0) 428 (75.4) 113 (25.1) 120 (21.1) 31 ( 6.9) 20 (3.5)

Vandalism 329 (72.6) 439 (77.3) 100 (22.1) 104 (18.3) 24 ( 5.3) 25 (4.4)

Assault 388 (86.2) 483 (85.6) 49 (10.9) 71 (12.6) 13 ( 2.9) 10 (1.8)

Holdup 388 (86.8) 509 (90.4) 48 (10.7) 49 ( 8.7) 11 ( 2.5) 2 (0.9) Disturbing the peace 261 (57.6) 388 (68.4) 135 (29.8) 141 (24.9) 57 (12.6) 38 (6.7)

Sexual assault 399 (88.7) 502 (89.5) 40 ( 8.9) 54 ( 9.6) 11 ( 2.4) 5 (0.9) Sexual

indecency 389 (86.3) 483 (86.4) 47 (10.4) 65 (11.6) 15 ( 3.3) 11 (2.0) Driving while intoxicated 267 (60.3) 392 (69.5) 116 (26.2) 124 (22.0) 60 (13.5) 48 (8.5)

Welch Park or Overlook Park, total of 78.5 percent of the 1981 ever, a study of non-users would while 1.2 percent said they would respondents and 77.3% of the 1982 have to be conducted to more avoid one or more of the five re- respondents indicated that the clearly evaluate this implication. maining parks (Yegua Creek, occasional appearance of a ranger From analysis of the crime and Rocky Creek, Big Creek, Nails or law enforcement officer made accident reports, and the visitor Creek, or Birch Creek). In con- them feel more safe or much more responses on interview items con- trast, only 30 (5.5%) of the per- safe, 17.5 percent of the 1981 and cerned with perceived safety and sons interviewed in 1982 indicated 20.6 percent of the 1982 respond- security in the parks, it was con- that they would avoid one or more ents indicated that they would feel cluded that the areas with con- of the parks at Somerville Lake. neither more safe nor more unsafe, trolled access were safer than the Of these, 30, 13 (2.4%) indicated and only 4.0 percent of the 1981 areas with uncontrolled access at that they would avoid Welch Park and 2.1 percent of the 1982 said Somerville Lake. This difference and 6 (2.2%) said that they would that they would feel more unsafe may be largely attributed to the fee avoid Overlook Park, which was a or much more unsafe. The persons park areas having controlled access reduction from 1981. This finding who indicated that they would feel through a manned entrance station together with the findings more unsafe or much more unsafe and requiring all visitors to check previously discussed support a were all in the 15 to 24 age group. in with the station attendant. Per- conclusion that the conversion of Therefore, routine park patrol ap- sons who have a desire to commit Welch and Overlook to fee areas pears to improve visitor percep- deviant or criminal acts may not like the visibility that they receive with controlled visitor access re- tions of safety and security held by at these controlled entrances and sulted in a significant reduction in the park users at Somerville Lake. therefore go to the areas with un- perceived and actual crime in those However, actual implementation restricted access. areas, which should result in and monitoring of law enforcement In addition, the two state parks greater visitor use and enjoyment patrols would provide a more of these areas. sound basis for evaluation. This is are routinely patrolled by commis- a viable management alternative sioned park law enforcement of- Increased Park Patrol which should be tested in a future ficers, which may further deter de- study of this type. viant behavior in those areas. This Since increased park patrol is Conclusions appears to be supported by the one management alternative Tor finding that the two state parks dealing with actual as well as per- Managers should be aware that had the lowest crime rates of the ceived crime problems, the poten- this study did not include collec- seven parks at Somerville Lake, tial impact of patrol by rangers tion and analysis of data from and Welch Park experienced a and law enforcement officers on non-users of the parks at Somer- significant decline in its crime rate safety and security perceptions of ville Lake. Such a study may have after its conversion to a fee park park visitors were evaluated in this revealed that non-users might have with controlled access and routine study by asking the visitors who been willing to use the parks at police patrol by the Somerville were interviewed if the occasional Somerville if safety and security Police Department. appearance of a ranger or law en- measures were improved. This is This study (1) revealed that ac- forcement officer made them feel implied in the data collected and tual and perceived safety and more safe or less safe during their analyzed on reasons for less use security concerns negatively affect park visits at Somerville Lake. A and enjoyment of the parks. How- use and enjoyment of parks; (2)

VJ demonstrated that perceived crime rates in the seven study parks were much higher than the reported crime rates, but varied proportion- ately and in the same direction as reported crime rates between parks; (3) showed that crimes, particularly minor offenses, were under-reported, especially those that occurred in non-fee parks; (4) demonstrated that safety and concerns were important reasons for reduced use and enjoyment of certain park areas at Somerville Lake; and (5) revealed that safety and security problems and concerns were greatest in parks with unre- stricted access.

Methodology used in this study should be useful to resource managers to (1) identify, more clearly define, describe, and determine the S/\'» ami entrance station at Overlook Park, Somerville Lake, Texas. relative importance of reasons for reduced use and visitor satisfaction in to efficiently allocate order more this study must be regarded as ten- limited resources to management tative, related research in other address these profile problems; (2) types of parks around the U.S. the nature and importance of safe- using the same or similar data col- ty and security concerns of park lection and evaluation methods users first step to identifying as a may serve to build upon the potentially effective management Somerville findings, thus providing strategies to address these con- a more sound basis of managerial cerns; and, (3) test possible guidelines directed toward improv- management strategies, such as in- ing park safety and security in James E. Fletcher is an Assistant creased patrol by rangers and law other types of recreation areas. Professor of Recreation and Park enforcement personnel, which are NOTE: The study discussed here Administration at Texas A&M directed at addressing safety and was supported through funding University. He is also working for security problems. In addition, the provided by the U.S. Army the U.S. Army Engineer Water- managerial implications discussed Engineer Waterways Experiment ways Experiment Station as a in this report should be applicable Station, Vicksburg, Mississippi. Recreation Resource Specialist. to most Army Corps of Engineers recreation areas in dealing with visitor safety and security problems. Somerville was chosen by the Army Corps of Engineers as the study site for this research because it is representative of many Corps of Engineers reservoirs around the United States in terms of use characteristics and management practices. Though the results of

35 Vandalism—The Continuing Menace by Carl E. Schoening

Five years ago the Montgomery Director, Morris County, N.J. downspouts, etc., as a means of County Park Department formed a Park Commission, vandalism is coping with potential vandals. special Task Force to deal with the willful and thoughtless behavior problem of vandal- ever increasing resulting in the destruction or de- General Guidelines ism. Our purpose was to study facement of park and recreation for Design and identify what types of vandal- areas and property. ism were occurring, to determine the locations where it was happen- A. Design for low maintenance ing most frequently, and to devise Design Criteria and vandal-resistant facilities. preventive measures. We realize B. Design for all unintended uses The most significant accomplish- that vandalism cannot be com- — considering every wall is a ment of the Task Force was the pletely controlled due to the cir- potential graffiti tablet, every gut- formulation of Guidelines for cumstances under which it is per- ter a chin-up bar and every win- Design and Construction of Park petrated, i.e., drug related, spon- dow a target. Buildings in Montgomery County, taneity, peer pressure, idleness, C. Use durable and easily- Maryland. These guidelines, which etc. However, the Task Force, by repaired materials and surfaces. were adopted as departmental combining the talents and ideas policy, provide definitive informa- Specific from the various park department Recommendations Include tion to both staff designers and A. Lighting— provide in- divisions, provided some positive ample consultants to ensure that building terior and exterior lighting for safe- insights into this perpetual problem designs encourage measures that ty and vandalism-reduction. that will help prevent or reduce the will prevent or minimize the effects frequency and severity of vandal- B. Windows of vandalism during the concept/ ism incidences within our 26,000- 1. Locate high and use vandal- design and planning stage. All proof materials (example: acre park system. Our approach Lexan) building plans will be reviewed by 2. Eliminate windows on the was to study four major areas of a design review committee in- backs of buildings or those concern: on cluding the architect, maintenance woodland sides. • Design— structural and land- superintendent, recreation staff, 3. Skylights are effective sub- scape building maintenance stitutes for windows. • Park maintenance techniques supervisor, horticulturist, and park police, to 4. Use small windows or those • Park police role — security and with small pieces of glass that are patrol determine if we are avoiding past mistakes and are anticipating less expensive to replace. • Community relations — infor- C. Doors mative outreach future problems. Many potential maintenance and 1. Location — consider visibil- Defining Vandalism vandalism problems can and ity of entryway. should be solved during the plan- 2. Should have metal plate In order to more fully under- ning, design and construction welded to metal door. stand the true meaning of the sub- phase. Design is like a thread that 3. All double doors must have ject before us, I read several books is interwoven into all that we at- middle post. and articles pertaining to vandal- tempt to accomplish, involving 4. Eliminate as much exterior ism and researched methods to from its conception — maintenance, hardware as possible. combat it. All of us can conjure up protection and security, and public D. Gutter and Downspouts a definition for vandalism without relations. 1. Use recessed gutters and in-

difficulty, but the following defini- Further, it should be noted that ternal downspouts. tions provide a clear understanding generally damage will be less of a E. Roof of this recurring problem. problem at a facility that serves a 1. Use standing metal seam variety of people and thus is wide- with severe slopes whenever pos- As defined by Grady Clay, ly perceived as a community bene- sible. Editor of Landscape Architecture fit. As you review the following 2. Avoid asbestos/composition Magazine, vandalism is a message Building Design Guidelines, you wood shake shingles on one- or two-story buildings. of deep anger, frustration and ab- will note that our purpose and in- normal standard of conduct, and tent is to reduce vulnerable objects F. Walls as defined by Joe Haggerty, Asst. like windows, doors, gutters and 1. Use fireproof materials.

36 o

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37 2. Provide easily repainted situated at remote sites, consider before it starts. Effective response surface. providing an apartment as part of can only be accommodated by an G. Restrooms the structure for security. effective reporting system by Park Police officers, park 1. Walls—easily cleaned, dur- As a result of this study our maintenance able material (example: Spectra staff architect designed a recreation workers and the public. Response to glaze). building that accommodated a ma- minor damage should be on an almost immediate basis. 2. Partitions —block walls jority of the Task Force's "anti- with swing doors. vandalism" recommendations. The Park administrators should be aware of the associated costs at- 3. Mirrors —eliminate. most important vandal-proof ideas tributable to vandalism and should 4. Fixtures— use "super-secure" incorporated into this design in- consider the morale of employees at shelters. clude recessed gutters and enclosed who need to make constant 5. Shelter restrooms — should downspouts, skylights, reduction repairs. be equipped so that plumbing can of windows and unscalable walls. be drained in the winter (freeze- Our new construction crew is cur- Park Police proof). rently completing this structure Role- 6. Vent stacks—need special and the building will be dedicated Security and Patrol design consideration to prevent for public use in late November Police forces can provide an ef- vandalism. 1983. We anticipate that this build- fective deterrent to vandalism by H. Lighting ing will be highly successful and active patrol, surveillance and their 1. Interior-use— recessed fix- the design will be repeated as a omnipresence. To increase police tures. duplicate facility at other park effectiveness the frequency and 2. Exterior —buy vandal-proof locations in the future. time of patrols in areas with a high fixtures. vandalism incident rate should be 3. Provide adequate lighting at considered. Police can inform and all entrances and for the building Park Maintenance encourage neighbors to call head- perimeter. Techniques quarters when suspecting acts of 4. Parking lots and walkways Psychologically good housekeep- vandalism. Distributing the station must be lighted when buildings are ing, clean and well kept parks and telephone number and assuring used at night. prompt repairs offer major deter- callers that they can remain anony- I. Fireplaces rents to vandalism. The "three R's" mous and that a patrol car will 1. Eliminate. of a park maintenance program respond will strengthen police effectiveness. J. Entrance Ways should include: 1. Avoid recessed situations. • Repair splatters and graffiti To assist police in their patrol- 2. Place where highly visible promptly. ling, all building entrances should to streets/roadways and available • Repair damage quickly to be designed for ease of observa- lighting. protect the agency from liability tion, and over-planting at en- K. Landscaping and eliminate tempting more dam- tranceways should be avoided. 1. Provide adequate visibility age from vandals. Building security measures to be to all entrances. • Replace items that break considered include: providing ade- 2. Keep deciduous trees easily and/or frequently with more quate lighting, frequent police elevated for visibility. resistant materials. 3. Avoid planting shrubbery General observations and ex- patrols, key control and use of next to buildings that may provide perience of park departments tamper-proof locks, and staggering hiding places. throughout the United States un- of custodial and staff time as much 4. Avoid using gravel or mistakably indicate that unkempt, as practical. The most effective stones near buildings which can be neglected parks are more suscepti- building security measure we picked up and thrown. ble targets for acts of vandalism. employ is our electronic alarm sys- 5. Do not plant trees so close Maintaining neat, clean and attrac- tem which is connected directly to to building that they can provide tive parks promotes the image of police headquarters and manned 24 access to roof. caring and discourages vandals! hours a day. L. Location Preventive maintenance is simply A concerted effort should be 1. For recreation buildings being aware of possible damage made to develop cooperation be-

38 ^M4M Mm

Spencerville Recreation Center, designed with vandal-proof features.

tween recreation staff, maintenance staff and Park Police involving notification of group use, information concerning closing time and notice of permits issued. Park Police can make a positive contribution to the Design Review Committee and should be actively involved in your community relations outreach program.

Vandalism Statistics

During 1978 we experienced 399 Portable exhibit used in community incidents of vandalism throughout relations efforts. our park system. In 1978 the months with the highest incident rate were June and October, whereas in 1982 the high incident rate was in July. Therefore no particular pat- tern is demonstrated. Our incident rate has decreased to 206 in 1982, showing an improvement of 48%. The monetary loss due to vandalism in 1978 was $29,055 and in 1982 that figure was reduced to $17,413, showing a dramatic 40% which reaches 20,000 students "The Club House" which in costs. It decrease should be throughout the school year. The dramatically illustrates to the noted that these figures do not re- "Anti-Vandalism" program is youngsters how it feels to have flect damage caused by arson-type presented every other year, so as your property senselessly offenses and do not include labor not to reach the same audience, destroyed. While "the gang" is out repair costs. with the main thrust being the vandalizing a school, some other Formerly our statistical data was early development of attitudes kids destroy their prized possession computed manually but due to the toward anti-vandalism. — the "Club House." Both films efforts of Turlington Major Athey This awareness and educa- were purchased for the police of our Park Police Division, this tional program for teens features department by the Montgomery data is being computerized and is the film "Handwriting on the County Board of Realtors. readily available. Wall" which depicts the psychological impact and emotional hurt in- "I want you to stop and think Community Relations: flicted upon vandalism victims. for yourselves and not just follow Informative Outreach Vandalism caused $150,000 your peers," explains Corporal Ted worth of damage to schools in Parker as he tours the schools. The Task Force discussed in 1978 and is steadily increasing. "After all, it is you and your fami- detail various means of educating, Youth in the 13-15 age bracket are lies who pay for vandalism —in in- informing and involving the coun- the most frequently arrested for creased store prices, insurance pay- ty citizens in the struggle to pre- crimes against property. Therefore ments and taxes, and you are held vent vandalism. the Montgomery County Police totally responsible for paying the Educational Programs: The Department is targeting this par- damages." His message is clear as Montgomery County Police ticular audience in an effort to he includes park-related vandalism Department sponsors an effective curb the problem. as destroying their own recreation Vandalism Prevention Program for The elementary school buildings, playgrounds and ball- sixth through ninth grade students children are shown a film entitled fields.

39 * /-\i lurvLioivi t i\LWULnui

THE MARYLAND-NATIONAL CAPITAL PARK AND PLANNING COMMISSION 1978 1982

_ J. MONTHS JAN FE9 MAS APR MAY JUN JUL AUG SEPT OCT NOV DEC

Community Involvement: radio messages; poster programs, managerial resources to deal with Several members of the Task Force etc. However, we agreed to vandalism, and to devise a con- addressed civic and community concentrate our efforts on con- scious strategy for using these re- associations, where severe and structing a portable vandalism sources effectively to combat van- repetitive vandalism occurred, to display which can be used most ef- dalism. The success we have solicit their cooperation and fectively at various public libraries, achieved over the past five years, I assistance in combatting this shopping malls, fairs and special believe, is attributable to increased prevalent problem. Our purpose is events where Commission exhibits awareness, concentrating on con- to encourage greater community are requested. The exhibit, de- trol, material selection and attack- involvement in controlling van- signed and built by our Exhibit ing the problem through the design dalism by notifying police; appeal- Shop, consists of a folding case element. ing to community pride; discourag- which features actual photos of Vandalism cannot be completely ing parental indifference and pro- our park facilities. On the back is eliminated but through efficient de- viding for parents' awareness of a scene of the same facility in a sign criteria, promotion of good children's whereabouts and activi- vandalized condition. The photo maintenance practices, effective police ties. Discussion emphasizes tax im- section is designed to be easily support and community plications, explaining who really changed. As vandalism problems relations effort, a considerable reduction surely can achieved. "pays" in loss of service and in arise in a particular area, photos of be wasted tax dollars. that facility can be taken and ex- Parents should be made aware hibited when staff members speak that they are held responsible for to the appropriate civic or school damage incurred by their children group. Attached to the exhibit is a aged 17 and under, and must make literature rack where supplies of restitution up to $5,000. In some the enticing quiz, "Are you Vandal cases work projects for offenders Wise?" are placed. can be arranged. Community relations is an im- The utilization of civic associa- portant managerial tool that tends tion newsletters to inform com- to link all aspects of our study munity groups of destructive acts together in an effort to inform the in their neighborhood can be an ef- public of the problems at hand and fective means of promoting van- provides a means of soliciting their dalism awareness. assistance in a positive way. Outreach Program: The Task Summary Force explored various "Anti- Carl E. Schoening is Associate Vandalism" campaign ideas in- The purpose of our Task Force Director of Parks for the Mary- cluding vandalism bumper stickers was to gain greater insight and land-National Capital Park and (Vandalism Costs You!); a van- understanding of o lr vandalism Planning Commission in Silver dalism hot line; public service problem, to review and develop Spring, Maryland.

40 Sensitizing Youth to the Effects of Vandalism

by CM. "Bud" Girtch

Vandalism. What Park and Recrea- attitude or feeling by police that schools. It was agreed that the tion Agency doesn't have the prob- "we don't work for parks." Fur- points to be emphasized when lem? We are not aware of any ther, there is the ever-sensitive speaking about vandalism to agency that doesn't experience issue with the police, particularly fourth, fifth or sixth graders were: • some form or another of this the Fraternal Order of Police, of Explanation of what van- budget staff cutbacks, and the dalism is: willful and malicious plague. It strikes by nibbling away and that "free destruction or defacement of public at you, your facilities, and your thought help" by others budget, and sometimes drives you might eliminate some officers' jobs. or private property. • their property to your knees with the viciousness Parks are and responsibility, just as their bicy- of it all. Security Officer cles, footballs, skateboards, etc. It is very important to remember Boren's Laws of Bureaucracy: They should protect the parks and The Seattle Parks and Recreation their "When in doubt, mumble. When playgrounds as they would Department does not have its own bikes, etc. in trouble, delegat \ When in police or ranger function and must • are for their use ponder. " Too of us Parks and charge, many depend upon the Seattle Police the parks cannot be used if they have addressed vandalism in just Department for security and en- not are not in proper condition. They this manner. The results have forcement functions. Our Security "Fighting" van- should make sure they use the been very positive. Officer works as a liaison between parks and playgrounds in the right dalism takes action and decision- the Police and Parks Departments. making. You have to confront the ways, without damaging anything. He is a deputized, sworn officer • If they break a basketball problem and not ignore it, hoping and functions within our Depart- hoop today, tomorrow neither it will go away. ment in a coordination, interpreta- they, nor their friends, will be able In the Seattle Department of tion, and educational capacity. He to play basketball. If no damage is Parks and Recreation we have also works with the Police Depart- done, then everybody can enjoy facilities vandalized in the same ment in the same areas. Through and use the facilities. fashion as other agencies. Our ap- this coordination, we have been • If they know children who proaches to combatting the probable to receive an excellent talk about and perform vandalism lem have been much the same as response from police when break- on property, they should try to in- immediate repair, other agencies — ins occur in facilities protected by fluence the vandals to change their change of materials used, attempt alarm systems. has also been He minds about destroying property. to identify or stimulus for cause able to delicately handle those Suggest non-destructive things to behavior, alarm systems, park sensitive situations between the do instead. Encourage them to help the list goes watch programs, and two to create departments and a protect public property and not on. sense of harmony in missions. It destroy it. takes constant nourishing with the police to maintain the rapport. Police Department Is it successful? —We don't know Cooperation yet. We are still betting on the future. The reaction of the young- Officer Friendly Program The biggest hurdle we have had sters has been positive to date. We to get over was developing an About four years ago we decid- hope the values introduced by Of- understanding with the Police ed that, like the stock or commodi- ficer Friendly will carry through Department. Vandalism is a prob- ties market, we needed to deal in the vandalism stage for most of lem to and for parks, and we need the future — to take options in the them. The tools for measuring their assistance. But crime statistics future market. One idea was to vandalism are imperfect because it in Seattle show the parks as one of sensitize the city's youth to the ef- is difficult to gauge ups and downs the better places to be. By and fects of vandalism in Seattle's and trends. However, the extent of large, serious crimes occur else- parks. To this end we asked the vandalism has decreased at the where. Parks generally are places Police Department to include in schools. Vandalism in the parks to not be held up, molested, killed, their Officer Friendly presentations has held at about the same dollar raped — so the parks have a rather in the elementary schools, discus- value but has changed in nature low priority in the eyes of police sions about vandalism to public from breakage to graffiti or un- for enforcement. There also is an facilities including parks and wanted art work.

41 a

^ Q

J Wet turf areas in Seattle's Meadowbrook l ark are damaged In/ automobiles ana 4-ivneei drives.

Police Cadet Scouts have assisted by staking the incidents and dollars value per in- Explorer Scouts area out and identifying car make, cident throughout the Seattle parks license number and driver, if pos- system. sible. If we can't get enough evi- Another area of reaching out dence to prosecute, the Police have and betting on the future is the use provided us with the name and ad- of Police Cadet Explorer Scouts. dress of the car owner from the Our Security Officer has used the license number. Our Security Of- troop for several years for crowd, ficer makes a visit to inform the traffic and parking control at owner of the incident and observa- special events, Seafair Hydroplane tion, and warns that if the vehicle races, Marathons, and other large is observed again, prosecution will impact events. A side benefit of take place. Either way the problem this participation has been a seems to be resolved. greater awareness on the part of these 16- to 19-year-olds of the The use of Explorer Scouts is negative impact vandalism can always in non-threatening situa- have on the parks system — tions so that they are not unduly system which is trying to serve the exposed to danger. Where there community, and of the individuals appears to be more threatening causing the damage. situations, we have used the re- serve Police to stake out areas of When we have had repeated repeated break-ins or thefts. incidents of vandalism at a park site, i.e., tearing up turf areas with With these two additional tools Bud Girtch is Director of Opera- automobiles and 4-wheel drives, and some more time, we hope to tions for Seattle's (WA) Parks and squirreling or cutting donuts, the reduce the number of vandalism Recreation Department.

42 Vandalism: A Research Priority by Laura B. Szivak

"Develop for the practitioner a Financing operation and main- 1. Research has been con- package of methods to identify pat- tenance continues to be a problem ducted on the subject, but signifi- terns of vandalism and a series of for leisure service managers. cant knowledge gaps remain. effective management techniques Federal grants-in-aid for outdoor 2. Sufficient research has been (and/or facility designs) to combat recreation capital development and conducted on the subject, but this behavior." land acquisition are available to dissemination and packaging of the In 1980, the U.S. Department of States and local governments, but research results have not been ef- the Interior asked producers and the grantees must continue to fective. users of research in the field of finance the maintenance of these recreation and parks to identify facilities and areas. Research studies Behavior Patterns serious knowledge gaps in the show that the incidence of van- Many studies classify vandals or research. Over five hundred profes- dalism rises as deterioration due to identify the causes of depreciative sionals in the public and private lack of maintenance increases. Peo- behavior. According to the sectors of recreation and parks took ple are more likely to litter in areas research, the reasons people part in this exercise and listed 117 where litter has accumulated. Aban- why commit vandalistic acts range from tasks. These same professionals doned buildings attract acts of van- troubled childhoods to sociological also prioritized the tasks, resulting in dalism, i.e., broken windows, graf- explanations of peer group a research agenda for recreation fiti and other problems. behavior to changes in and parks. The task statement the demographic above was rated as one of the top Therefore, vandalism is a serious composition and attitudes of society. ten tasks needing priority research problem confronting administrators Understanding the motivations attention. of public leisure services because behind vandalism is financial resources to repair a prerequisite for controlling the The professionals who developed damages or replace equipment behavior. However, many of these the agenda characterized their role destroyed by vandals, if not an- factors are beyond the control of in the field as researchers, practi- ticipated, are either unavailable or the park and recreation practitioner. tioners, and administrators. In- taken from program areas. The behavior patterns needed by terestingly, practitioners and ad- Therefore, the task addresses a practitioners are those prompted by ministrators rated the task on van- major practical problem in the variables specific to their managed dalism in their top five needing delivery of leisure services. site(s) or area(s). By anticipating research attention, but the task did behavior, recreation and park prac- not all appear at in the researchers' Despite the high rating of the titioners may prevent or control list of 20 priority tasks. vandalism task in the research damage more efficiently. As part of the development of agenda process, the study of van- the research agenda, the top ten dalism behavior and management tasks were analyzed to determine strategies to combat this behavior Management Techniques why they appeared on the agenda has enjoyed considerable attention as priority knowledge gaps in of researchers, managers and other Research about coping strategies recreation and parks. A thorough writers in the recreation and parks for managers to deal with the prob- literature search was performed on field. One computer search of lems of vandalism include defen- the subject of each task. This article documents from the National In- sive and diagnostic approaches. presents the findings of this stitute of Justice produced 70 Defensive strategies involve literature evaluation concerning references concerning vandalism in techniques designed to deter the vandalism in parks and recreation. recreation and park areas. In 1976, potential vandal on-site. Some of The publication describing the the U.S. Forest Service sponsored these strategies include direct con- development process and results of a symposium devoted entirely to trols, i.e., controlled entrance and the entire research agenda is the subject of vandalism and out- exit sites and user permits; vandal- available from the National door recreation. resistant design of structures, equip- Technical Information Service. Two propositions are explored ment and areas; heightened en- This task represents an issue in which may explain why recreation forcement and visibility of security recreation and park management and park professionals rated this forces; increased lighting; retribution and not simply a research question. task as a priority research need. paid by the offender and/or family;

43 appropriate punishment to fit the crime; publicized convictions; and increased fees or surcharges to ,; jffua cover the costs of damage caused by vandals.

I Magnostic approaches focus on reducing the number of potential vandals by involving and educating the public in general. Community involvement and development of a sense of responsibility by users are prominent themes throughout this research. These studies focus on the on-site users and the off-site public: a) involvement of the users on-site to discourage vandalism when encountered in a recreation setting, and b) promotion of community awareness of the problem incurred because of vandalism. For- mal public involvement programs may include nonprofit organizations

t9r. - or employment of a "sentinel" or :A volunteer host, whose presence discourages illegal behavior.

Another diagnostic approach to prevent vandalism includes information and education programs. Such programs describe the rationale for certain rules and regulations through positive signage or interpretive services. Educational programs have traditionally focused on instilling proper values and attitudes about illegal behavior and its effects on the environment so that appropriate behavior will result.

Architectural and environmental design, especially as it relates to defensible space and use by people,

is .1 common approach to reducing the costs of vandalism in recreation areas. Some studies show that design does not deter vandalism as

i onsistently as a regular maintenance schedule that prevents deterioration. Nevertheless, design and construction represent the most commonly used technique to com- municipal leisure bat vandalism by Signs are particularly susceptible to acts of vanck

44 services. A multidisciplinary ap- and private agencies cannot afford harassment, in their assessment of proach among planners, architects, its costs, both financial and social. vandalism. Many times abuse users, maintenance personnel and An administrator may be hesitant to directed toward a site's visitors is other individuals involved in the implement a system of vandalism labeled as the "social costs" of van- design, construction and eventual prevention without some guarantee dalism, especially appropriate for use of an area and/or facility also that the financial investment will leisure service managers concerned seems to ensure better vandalism produce a savings in monetary as with the quality of the visitor's ex- prevention. well as social costs. Therefore, perience. another aspect of the problem par- As research indicates, incidence Research Gaps ticularly important to the practi- of vandalistic behavior depends on tioners is the cost effectiveness of a the combination of situational As described, research studies vandalism prevention program or a factors and use characteristics. The have addressed ways to control particular strategy. For example, an current research gives the ad- vandalism in recreation and park administrator may question expen- ministrator or manager some areas. The major research gap ap- ditures for both vandal-resistant evaluation general clues to apply which pears to be a task in the equipment and implementation of analyzes the various environmental of specific techniques. Few studies an extensive education program. the effectiveness of a and social variables of a site to document One prerequisite for evaluating a particular method in a controlled enable the administrator to produce strategy for vandalism prevention is environment a variety of situa- an effective management strategy and a reporting system for recording the for the control and prevention of tions. occurrences, frequencies and types vandalism. The U.S. Forest Ser- of vandalism for depreciative Some studies have, however, vice, through the Pacific Northwest behavior typical of recreation sites. described the application of a Forest and Range Experiment Sta- A consistent reporting system pro- specific strategy and evaluated its tion, has developed a draft model vides baseline data prior to and effectiveness. For example, a identifying factors leading to after implementation of a particular Swedish study monitored the effec- depreciative behavior. This model management strategy for vandalism tiveness of the use of policemen as offers some insight in the identifica- control. By measuring the change recreation leaders on incidents of tion of behavioral causes. The or lack of change evidenced in the depreciative behavior (Eniksson & model highlights opportunity as an data, the manager can evaluate the Kuhlhorn 1977). The practice did important variable contribution to effectiveness of an action. Without not alter vandalism rates. Studies depreciative behavior. A checklist of such data, managers may allocate also have documented the use of effective practices based on em- precious resources in a less efficient incentives on littering behavior pirical research, adapted to specific manner. A reporting system iden- (Goodrich 1980). These studies, area characteristics and including a tifies what constitutes vandalism usually in the form of case studies, measure of cost effectiveness would and measures the effects of van- illustrate useful techniques for a be a tool to aid the practitioner in dalism in factors such as man- particular area. However, the in- park and recreation settings. hours, replacement/repair ex- teraction of social, physical, political An examination of vandal-free penses, and other management and environmental variables at environments may also reveal some costs. other locations may produce entire- suggestions for deterring ly opposite effects. What is needed, Development of a reporting depreciative behavior without ex- therefore, is an evaluation that also system is a problem because of in- tensive longitudinal study. Little includes a detailed description of consistent definitions of vandalism research was found on this topic. the factors — on and off site — evidenced in the literature and by that influence the success or failure recreation managers. Some studies Dissemination and of a technique. Original research on measure vandalism through finan- Packaging vandalism may not be as needed as cial loss to the managing agency, replication of existing prevention loss to the user or visitor of the site, Research has been conducted on strategies in various settings. or both. Some management guides vandalism — its causes, deterrents, Vandalism in recreation and park include depreciative behavior acts, results, and available techniques. settings is an issue because public such as rule violation or visitor However, these findings have either

45 Who Can You Turn To?

not reached the practitioners is also needed for the administrators Alfano, S.S., and A.W. Magill. 1976. Vandalism and Outdoor needing information or they have and practitioners in recreation. Recreation Symposium Proceedings. USDA Forest not been packaged effectively. Vandalism in recreation areas has Service, General Technical Report written on van- Many articles been researched. It has also been PSW-17, Pacific Southwest Forest and dalism are found in publications the subject of conferences and Range Experiment Station, Berkeley, targeted specifically for practi- publications several times. But, van- California. publications include tioners. These dalism continues to strain the Allen, R.S. 1975. Tearing of the Green: the Park Practice Program and resources of recreation services. Golf-course vandalism. Esquire. 84:82-83. Parks and Recreation magazine. The managers need information ap- American School and University 1979. also to get infor- Practitioners seem propriate to their use as well as Maximum Security Locks Keep Out mation through sharing information where to find it when they need it. Burglars, Vandals. 51(1): p. 56. and experiences with other practi- American School and University 1979. tioners. Conferences, symposia, Window Screens Protect Against Vandals. and training sessions also represent 51(1): p. 52. significant methods of exchange. American School and University 1978. The Maintenance Management Improving Entrance Secuntv Without School sponsored by the National Chains. 51(1): p 60-62. Recreation and Park Association in- American School and University 1978. session cludes a on vandalism Who's Afraid of the Dark? prevention. These forums do not Vandals -That's Who. 50(5): p 38. offer a systematic, coordinated at- American School and University 1974. tack the they on problem, but do School Designed to Shrug Off Vandalism. provide an opportunity for resear- 47(3): p. 28-30. chers and practitioners to exchange American School Board Journal 1972. How information. To (Just About) Vandal-Proot I verj School In Your District. 159(7): p. 27-31. Professionals in other disciplines such as law enforcement, educa- Bates, W. and T. Mcjunkins. Vandalism and status differences. tion, business, and defense also Pacific Sociological Review. Fall, 5(2): vandalism a problem and consider 89-92. 1962. are working on practical solutions. Becker, H.S. Outsiders. New York: Free Coordination among these profes- Press of Glencoe. 1963. sionals would be an efficient approach to reduce the impacts of Bencivenga, ]im. 1980. Preventing Vandalism - More Than Cutting the vandalism significantly. Schools of- Grass. Christian Science Monitor. fer community education programs 72(7): p. 16. to deal with the behavior, and not Bennett, 1969. Vandals Wild. Bennett the symptoms, resulting from van- J.W. Publishing Co., Portland, Oregon dalism. Personnel in law enforcement and criminal justice agencies Bullough, B. 1967. Alienation in the Ghetto. American Journal Sociology. not only catch and punish of 72:469. perpetrators, but they also design a system of reform or restitution to reduce future incidents. Defense- Bureau of Outdoor Recreation. 1977. Lake Central Region and National Park Stt\K< related agencies conduct research Denver Service Center in cooperation on vandal-resistant materials, such with the Illinois Department ot Conserva- .is glass impervious to bullets. tion Indiana Department of Natural

Recreation may not be mentioned Laura B. Szwak is an Outdoor Resources <. hicago Park District, Cook Preserve District. Chicago in the research, but its applicability Recreation Planner with the Recrea- County Forest Department of Development and Plan- to recreation resources can be tion Resources Assistance Division, ning 1 ake County Parks and Recreation useful. Packaging the results from National Park Service, Washington, I department, and the Gary Parks and work produced in these other fields DC 20240. Recreation Department. National Urban

4A Recreation Study: Chicago/Gary. U.S. Clark, R.N., J.C. Hendee, and F.L. Camp- Ellis, Paul. 1981. February 18. Ad- Government Printing Office, Region B. bell. 1971. Values, Behavior and Conflict ministrator, Greenville Recreation and in Modern Camping Culture. Journal of Parks, Greenville, South Carolina. Inter- Robert A. 1971. Designing for Caigan, Leisure Research. 3(3):143-159. view. Use. American School and University. 43(9): p. 38-40. Clinard, M.B. and A.L. Wade. Towards Eniksson, U.B. & Kuhlhorn, E. 1977. the delineation of vandalism as a sub-type Police as Recreation Leaders — Two Ex- Carpenter, Philip L., Theodore D. Walker, in juvenile delinquency, journal of periments in Crime Prevention. and Frederick O. Lamphear. 1975. Plants Criminology, Criminal Law and Police Stockholm, Sweden: Brottsforbyggande in the Landscape. 481 W.H. Freeman p. Science. 48(5): 493-499; 1958. Radet. and Company, San Francisco. Cohen, A. Deviance and control. Fichter, R., and A.B. Scott. 1978. Think- Christensen, H.H. Vandalism: An ex- Englewood Cliffs, N.J.: Prentice-Hall, ing about Vandalism. Trends, Vol. 15, No. ploratory assessment of perceived impacts 1966. 1, pp. 28-30. and potential solutions. In: Vandalism; Proceedings of the International Collo- Cohen, S. Sociological approaches to Van- Folkman, W.S., R.J. McLaren, and JR. quium on Vandalism-Behavior and dalism. In: Vandalism; Proceedings of the Christiansen. 1968. Public Responsibility for Motivations. Claude Levy-Leboyer, International Colloquium on Van- Natural Resources - Attitudes of Utah Editor. Amsterdam: North-Holland Publ. dalism — Behavior and Motivations. County, Utah Residents. USDA Forest Ser- Co. (in press). Claude Levy-Leboyer, Editor. Amster- vice, Research Note PSW-165, Pacific dam: North-Holland Publ. Co. (in press). Southwest Forest and Range Experiment Christensen, H.H. and R.N. Clark. In- Station. Berkeley, California. creasing public involvement to reduce Cohen, S. 1968. The Nature of Van- depreciative behavior in recreation set- dalism: Can it be Controlled? Nezv Society. Frome, M. 1969. Camping slums. True tings. U.S. Department of Agriculture, 12(324): 872-878. Magazine. April :32-35, 109-110. Forest Service, Pac. Northwest For. and Fuller, Paul K. 1978. Vandalism Survey, Range Exp. Stn. Leisure Sciences 5, 4. Regional States. 29 South 1983. Southern p. Park Society, Comptroller General of the United States. Carolina Recreation and Christiansen, Monty, Dr. 1979. Van- Columbia. 1977. Crime in Federal Recreation Areas - A dalism. Park Maintenance and Grounds Needing Congressional and Serious Problem Administration. of Management. September, 10-12. General Services Code p. Agency Action. U.S. General Accounting federal regulations, CFR 36, Parks, forest Chubb, Michael, and Westover, Theresa. Office. and public property. U.S. Gov. Printing 1981. "Antisocial Behavior: Typology, Off. Wash, D.C. 1982. Conners, Edward F. III. 1976. "Public Messages and Implications for Recreation in Park Recreation Settings." Safety and Gibbons, D.C. Punish the criminal or Resource Managers." Land Use Allocation. Parks and Recreation 2(1): 20, 21, 55, 56. rehabilitate the offender? The current St. Paul, Minnesota: North Central Forest debate. In: Current Perspectives on and Range Experiment Station. Conway, Kenneth Lee. 1980. Public Criminal Behavior, ed. Abraham S. Perceptions of and Attitudes Towards 2nd

Clark , R.N. Alternative Strategies for Blumberg, ed. New York: Alfred A. Crime in the Parks of a Major Studying River Recreationists. Paper 364-381. 1981a. Metropolitan Area. (Degree thesis, Texas Knopf; p. presented at the River Recreation Sym- Department of Recrea- A&M University). crime. Paper 1977), sponsored the Gibbons, D.C. Mundane posium (Jan. by U.S. Parks, University, tion and Texas A&M Society of Forest Service, North Central Forest Ex- presented at the American College Station, Texas. 1981b. periment Station. Pp. 91-100. 1977. Criminology. November. Mimeo. Davis, Sociological constructions of N.J. Gold, S. 1974. Deviant Behavior in Urban deviance: Perspectives and issues in the Clark, R.N. How to control litter in Parks. Journal of Health, Physical Education field. Dubuque, Iowa: Wm. C. Brown recreation areas: the incentive system. and Recreation. 45(9): 18-20. Publishers, 1975. U.S. Dept. of Agriculture Forest Service Goldemeier, H. Vandalism: The effect of Information Leaflet, 10 p., Pacific B. Anderson. Social con- Davis, N.J. and unmanageable confrontations. Stn. Northwest For. and Range Exp. trol: The production of deviance in the Adolescence, Spring, 9 (33): 49-56. 1974. Portland, OR. 1976. modern state. New York: Irvington Publ. 1983. Goodrich, K. 1980. Litter, en garde! New Clark, R.N. 1971. Undesirable Behavior in tools and ideas join forces to terminate Forest Campgrounds, Recreation Symposium Donnermeyer, and P.G. Howard. The J.F. trash. Parks and Recreation. March: 38. Proceedings. USDA Forest Service, nature of vandalism among rural youth. Northeast Forest and Range Experiment Paper presented at the 1980 annual Station, Upper Darby, Pennsylvania. meeting of the Rural Sociological Society Greenberg, D.F. Delinquency and the age August 19-23, Cornell University, Ithaca, structure of society. In: David F. Clark, R.N. 1976. Control of Vandalism in NY. 1980. Greenberg (Ed.) Crime and Capitalism, Recreation Areas-Fact, Fiction or Folklore? pp. 118-139. Palo Alto, CA: Mayfield USDA Forest Service, General Technical Cox, and T. N. Donnermeyer, J.F., D. Publ. Co. 1981. Report PSW-17, Pacific Southwest Forest Wurschmidt. Road sign vandalism and and Range Experiment Station, Berkeley, theft along county roads in Ohio. Groat, T., and A.G. Neal. 1967. Social California. Cooperative Extension Service, Ohio State psychological correlates of urban fertility. Univ., Agricultural Economics and Rural American Sociological Review. 32: 945-949. Clark, R.N. and G.H. Stankey. The Sociology. 1980. Recreation Opportunity Spectrum: A Guilford, J. P. 1954. The method of pair framework for planning, management, Dowell, CD. 1973. Panic in the Parks. comparisons. In Psychometric Methods. and research. Ge. Tech. Rep. PNW-98. Parks and Recreation. 8(1): 82-83, 113. (2nd edition). McGraw-Hill Book Co., Portland, OR: U.S. Department of New York. Agriculture, Forest Service, Pacific Downie, N.M., and R.W. Heath. 1974. Northwest Forest and Range Exp. Stn.;- Basic Statistical Methods. Fourth edition. Harrison, A. 1976. Problems: Vandalism 1979. 32 p., illus. Harper and Row Publishers, New York and depreciative behavior. In Interpolating the Environment. Grant W. Sharpe, Clark, R.N., J.C.. Hendee, and F.L. (editor), John Wiley and Sons, New York. Campbell. 1971A. Depreciative Behavior in Driessen, J. 1978. Problems in Managing Forest Campgrounds: An Exploratory Study. Forest Recreation Facilities: A Survey of Field USDA Forest Service, Bulletin PNW-161, Personnel. USDA Forest Service Equip- Hill, R.J. 1953. A note on inconsistency in Pacific Northwest Forest and Range Ex- ment Development Center. Missoula, paired comparison judgments. American periment Station, Portland, Oregon. Montana. Sociological Review. 18: 564-566.

47 .

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