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VANDALISM CONTROL Vandalism of park district facilities can be drastically reduced. A new comprehensive approach, Vandalism Control Management, provides a systematic program to reduce facility damage, wasted manhours of repair, and opportunities lost to park users due to vandalism. By Monty L. Christiansen
The ultimate objective of a park management system for vandalism control is not to eliminate all vandalism — that's not realistic — but to reduce unnecessary expenses by using the most cost-effective approaches, including both the appropriate social and physical strategies. There is no single universal solution because vandalism is not a single problem. Actions (vandalistic behavior) and their consequences (vandalistic damages) are separate but related aspects of the total complex problem. A new approach, Vandalism Control Management (VCM) as described in this article is a comprehensive process for park districts. It offers a systematic program to reduce maintenance costs through problem definition, behavior interpretation, objective setting, data collection, strategy selection and implementation, assessment and follow-up. Park vandalism control management must be cost-efficient. Park districts must not invest in vandalism control expenditures which would exceed the potential for saving. Additionally, it is important to maintain a balance between vandalism reduction and facility usability, maintenance, and aesthetics, as well as the environmental and cultural qualities of the park and recreation areas. It is essential that the VCM program be quantifiable, i.e. there must be demonstrable evidence of effectiveness. DETERMINE WHY VANDALISM OCCURRED "Vandalism" has been used as a label for a broad range of negative behavior, from accidental or trivial incidents to actual criminal activity. While it's not always possible to determine why an incident occurred, reduction of future incidents is more probable when park districts can prevent or prepare for similar events. Not all vandalism is preventable, but it is possible to direct VCM strategies toward reduction of those which can be controlled. The following paragraphs identify forms of vandalism and note which ones may be effectively reduced by vandalism control management. For management purposes, it is possible to group vandalism into four rather broad categories: Inexplicable Vandalism; Deliberate Vandalism; Incidental Vandalism; and Institutionalized Vandalism. A. Inexplicable Forms of Vandalism. The first category of vandalism includes those unexplainable, unprovoked, and often wanton acts of destruction. These acts, which may be the result of psychotic or inebriate behavior, cannot be anticipated and diverted. The only defenses a park district can use against these incidents are basic law enforcement, securing the park and its facilities after hours, and hardening susceptible targets to reduce damage. While this type of vandalism can be very destructive, it is fortunate that it is not the most common. B. Deliberate Forms of Vandalism. These forms of hard core vandalism are intentional, premeditated, and willful. Sometimes called "vandalism for revenge", vindictive or malicious acts of vandalism may account for more cases of vandalism than is known. The grievance perceived by the perpetrator may be the result of a park citation or other embarassing situation in the park, unavailability of a favorite facility because of other users, or even an imagined complaint. The vandalism is often an effort to "get even". It is not possible to underestimate the significance fair, courteous, and non-embarrassing treatment of park users, even as wrong-doers, has upon preventing possible destructive, vindictive vandalism. Some forms of deliberate vandalism are done for profit or gain. These range from simple petty theft to larger magnitudes of stealing. Predatory incidents vary from stripping or breaking off materials which can be sold as recyclable scrap. (Common park district targets: wiring, fixtures, metal gutters or fencing, timber, and even light poles.) Sometimes park facilities are vandalized to gain access to loot or steal — vending machines, pay phones, or storage rooms. Stolen park signs are popular for souvenirs or room displays. Special precau- Illinois Parks and Recreation 20 January/February tions must be used to prevent sign removal, as well as that of picnic tables; grills; benches; newly planted trees, bushes, and sod; and specimen evergreen trees (Christmas trees). Two special types of deliberate vandalism have been identified. In both of these cases, the damage done is only a tactic or is secondary to a perceived "right." Occasionally individuals damage secured facilities to gain entry, not to loot or steal, but to use the facilities. They break locked gates, cut chainlink fencing, jimmy door locks, etc., to use closed tennis courts, swimming pools, basketball courts, restrooms, and other park facilities. On the other hand, park facilities may be deliberately damaged or defaced to advance some end or cause, rather than to acquire money, property, or to use a facility. Usually resulting in graffiti or disfigurement, the act is primarily to gain attention or leave a message of sorts. C. Incidental Forms of Vandalism. These are the most common incidents of property damage in park districts. While they do not usually receive newspaper headlines and public attention, they cause erosive and progressive damage that accumulates until an area becomes dilapidated and requires costly maintenance. Acts of incidental vandalism, more than any other categories of damage-causing behavior, are often avoidable or preventable. It is possible to effectively reduce incidental vandalism in parks and thereby achieve a significant maintenance cost saving. It can be the result of play. It is natural for children to take things apart, climb trees, throw stones, or scribble on walls, and things may be damaged during such activities. Practical jokes frequently require additional maintenance and cleanup. Lack of things to do, boredom, and loitering by youth may result in activities which make areas messy, unattractive, or possibly offensive to other park users. Park resources also may be damaged due to thoughtlessness, indifference, or disregard. Common examples include littering; picking flowers; throwing knives into trees, benches, or tables; breaking limbs off trees and loose boards from park furniture for firewood; etc. Most of these acts of incidental vandalism are avoidable and preventable. They can be responsive to various social approaches to vandalism reduction and prevention techniques which are cheaper than the repair and replacement costs if these forms of vandalism are unchecked. "Vandalism" has been used as a label for a broad range D. Institutionalized Forms of Vandalism. There are situations when property-damaging activities have become tolerated, acceptable, or "normalized." For example, the litter left at a pavilion or recreation center which has been reserved or rented is usually considered "normal wear and tear" comparable to the loss of towels and ash trays by hotels. Some park agencies are now requiring a damage deposit with each reservation from which the cost of clean-up and repairs is deducted. There are certain occasions on which some "ritualistic" vandalism is expected, condoned, or (by some) encouraged. Locally this may be Halloween, high school senior prank days, club initiation nights, home-coming, graduation, or (for adults) labor strikes. Typically some semi-protected group is permitted behavior which usually is not tolerated. Unless the behavior is excessive, the normal rules are suspended and the damaged is repaired with little fanfare or recourse. SELECT APPROPRIATE STRATEGIES FOR VANDALISM CONTROL VCM strategies should be based upon a reasonable conjecture about the motives or rationale for vandalism, a knowledge of the types of damage and degree of severity incurred, and the vandalism control resources available. Some strategies are proactive — i.e. preventative. They are implemented before vandalism occurs. Others are reactive — i.e. remedial. They are implemented to correct conditions which proved to be susceptable to vandalism, modify or adapt facilities against similar future damage. Social strategies are concerned with the behavior of park users; physical strategies affect the facilities and resources of the park district. A combination of social and physical strategies — proactive initially and reactive if necessary — should be selected as a comprehensive package or program; no single solution will control the complex variety of problems collectively described as vandalism. In many cases it may be possible to eliminate or modify vandalistic conduct and thus reduce repair costs. A. Social Strategies. The social approach to vandalism control is most effective with incidental forms of vandalism, institutionalized vandalism, and inebriate activities. These may be avoidable, preventable, and thus controllable by social techniques more than the more deliberate acts of vandalism. Park districts have five basic social "tools" to reduce vandalism: (1) publicity and public relations; (2) education; (3) rule enforcement; (4) programming and general operations; and (5) cooperation. 1. Publicity. It is important that park districts have a clear policy regarding publicity about vandalism. Policy considerations include the extent of damage incurred, necessity to notify police (whose records are public information), existence of a public education campaign to reduce vandalism, existence of a reward policy, and the use of vandalism control cooperative programs. 2. Education. Park district staff should be trained to anticipate and prevent instances of vandalism before they occur, to minimize existing opportunities for vandalism, and to modify vandalism targets to reduce repeated damages. They should understand the causes and types of vandalism, social and physical strategies, how to use incident and periodic inspection procedures, etc. Staff should be trained in positive public contact and public relations. All staff — whether providing program services, maintenance, protection, or law enforcement — should treat the park user as an individual and help create a social atmosphere January/February 21 Illinois Parks and Recreation of friendliness between the park visitor and the district. The keys to education as a social tool to reduce vandalism are the defining and understanding of the objective or purpose of each educational effort, focusing in on specific target audiences, and utilizing appealing and effective techniques. Educational campaigns for park users should emphasize avoidable or preventable acts of incidental vandalism — it is not likely that deliberate vandalism can be reduced significantly by public appeals and education. 3. Rule Enforcement. There are several important considerations about park district rule enforcement: adoption of realistic, enforceable rules and regulations; use of perceived presence of authority through employee visibility; establishment of financial incentive and reward programs; and adaptive surveillance. Park regulations must be presented to park visitors in clear, positive, reasonable, and understandable language. It is best to avoid an authoritarian or "bossy" atmosphere in signage. Park district personnel may be available in a non-conspicuous manner. Uniforms provide public visibility. The presence of park district staff — maintenance crews, program leaders, lifeguards, rangers, receptionists, even uniformed park volunteers — provides a feeling that the district is readily in control of the situation. There are several approaches to financial incentives/rewards. One technique has been to establish a vested interest for regular special facility users (such as swimming pools or skating rinks) by creation of a "vandalism repair fund" for that facility. Users are informed that the balance of the fund at the end of the season will be available for a special closing program or event. They are encouraged to help keep vandalism costs down and become aware of the personal costs of vandalism, in terms of fiscal outlay and possible experiences lost. Rewards for information leading to the arrest and conviction of individuals who caused major vandalism have been effective when reward policies are explicit about the minimum extent of damages for which a reward would be offered and minimum criminal charges to be filed. In some cases the reward might be recovered from the convicted individual if the park district is able to obtain a decree of restitution as well as an imposed fine. Adaptive surveillance based upon review of periodic park inspections and vandalism incident reports can concentrate on frequent targets. Some parks have incorporated special watches, or extra forces — including volunteers — to patrol parks at irregular times during heavy use periods. 4. Programming and General Operations. Three general operations strategies to reduce vandalism are recommended: (1) provide limited opportunity for vandalism to occur by heavy use of park facilities through active programming and scheduling; (2) require damage deposits for reserved use of park facilities, and (3) remove temptation by removing readily accessible booty.
It is natural for children to take things apart, climb trees, throw stones, 5. Cooperation. Interagency and community group cooperation has been effective. Where public schools are adjacent to park district land or when recreation programs take place in school facilities, cooperation is logical. There have also been a variety of attempts to establish "Neighborhood Watch", "Adopt-A-Park", or "Stewardship" organizations to monitor and report park vandalism in progress, rather than to have to discover the damage after the vandals have gone. Youth patrols have also been used. Many civic and service organizations have contributed time, labor, materials, and funding for park facilities. They might support community education vandalism control programs; local Speakers Bureau or Toastmasters may be willing to make presentations in behalf of vandalism control. There appear to be two benefits from cooperation with courts: park districts may receive equitable restitution to pay for necessary repairs due to the vandalism and convicted offenders may receive rehabilitation through a court referral work program. (It should be noted that the court impact upon the total vandalism problem is, in reality, minimal because the number of individuals arrested and convicted of a criminal offense due to vandalism has been very small.) B. Physcial Strategies. Careful design and adaptive maintenance are physical strategies for vandalism control. These are best applied in conjunction with social strategies as a part of a complete VCM program. A well-documented record of vandalism-caused repairs and the effects of adaptive maintenance can help update park district specifications for standard facilities and prevent repetition of previous mistakes, omit easily vandalized designs, and provide "hardened" facilities. An adaptive maintenance program, which improves vandalized items by changing or strengthening broken parts, is better than repairing a damaged facility back to its previous condition. There are six principal physical vandalism control strategies: 1. Stop 'em from doing it! The ultimate protection from vandalism is to prevent it from occurring by controlling access and adequately securing closed facilities. 2. Make it difficult and time-consuming! Much incidental vandalism is the result of impulsive actions, which to the individual, appear to be so easy to do without threat of disclosure or punishment. By increasing the difficulty or risk, it is possible to make some vandalism not worth the effort required. While this will not stop the determined vandal, it can provide a deterrent to opportunistic or incidental vandalism. 3. Let 'em do it, but to something else! There are various fun activities, seemingly innocuous and insignifi- (Confinued on page 27) Illinois Parks and Recreation 22 January/February cant by themselves (such as carving initials in trees, writing on walls, etc.), which can individualy or collectively abuse facilities or dilapidate an area. In some instances, it would be more effective to provide tempting legal alternative or expendable targets for such actions. 4. Protect and strengthen the targets! No park is vandal-resistant. Some facilities, such as drinking fountains, lamps, and restroom fixtures, are inherently susceptible to damage. Others, such as picnic tables and benches, are conspicuous and tempting targets; and still others routinely receive damaging abuse or misuse. Often it is cost effective to protect these facilities by using stronger materials, 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 because of vandalism. 5. Make it easy to fix afterwards! Certain forms of vandalism are unpreventable, or prevention may be prohibitively expensive. One example is restroom graffiti. In these situations, periodic repair or refurbishing is an acceptable procedure to provide a specific level of maintenance. These facilities should be modified to make periodic restorations quick, convenient. and economical. Modifications should be based upon the typical vandalistic damage incurred (besides graffiti, other forms of damage to consider here are disassembly, breakage, or blockage). Provisions may include use of a special surface sealer, replacing venerable materials and using special fasteners, to providing convenient access for repairmen. Conspicuously "branded" portable items make park district ownership obvious and helps in the recovery of items removed from the park and later discovered elsewhere.
Often it is cost effective to protect facilities by using stronger materials, more durable products, and heavy-duty construction. 6. Take away their masks of secrecy! There are instances (for example, when stolen property might be recovered, repair would be very expensive, health and safety of individuals could be impaired, or when restitution by convicted vandals is a principal source of funding for repairs) when it is recommended that facilities be sited and maintained for easy inspection and / or surveillance — either electronic or with park district rangers, police, or other special personnel. The presence of the surveillance force may deter some who are unwilling to risk loss of anonymity. ASSESSMENT AND FOLLOW-UP By making comparison between current and previous conditions, strategies can be evaluated. Cost savings and problem reduction can be assessed for each strategy to determine effectiveness. Those strategies which are successful may be combined with modified, revised, or completely new strategies to replace unsuccessful approaches. The vandalism control management process mst be dynamic, flexible, and reactive to change; the same as any other management process. REFERENCES VANDALISM CONTROL MANAGEMENT FOR PARKS AND RECREATION AREAS. National Park Service, Technical Services Program; Philadelphia. (1982). MANAGING VANDALISM: A GUIDE TO REDUCING DAMAGE IN PARKS AND RECREATION FACILITIES. Parkman Center for Urban Affairs, in cooperation with the Parks and Recreation Department; Boston (1978). REDUCING PARK VANDALISM. Upper Plain State Innovation Group; Bismark, ND(1981).
Life. Be in it:
ABOUT THE AUTHOR: Monty L. Christiansen, a graduate of Iowa State University in Landscape Architecture, has nearly twenty years of accumulated experience in park planning and management. He was a landscape architect for the National Park Service, the St. Louis County (MO) Parks and Recreation Department and has been consultant to NFS, USFS, HCRS, and the Corps of Engineers, as well as a variety of state and local agencies. The author of the Park Planning Handbook and Vandalism Control Management for Parks and Recreation Areas, as well as numerous articles, Mr. Christiansen is currently a professor at The Pennsylvania State University where he teaches park planning and management.
Illinois Parks and Recreation 27 January/February |
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