Agenda Index City of Vancouver

ADMINISTRATIVE REPORT

TO:

Standing Committee on City Services and Budgets

FROM:

Chief Constable, Vancouver Police Department

SUBJECT:

Anti-Graffiti Strategy for the Vancouver Police Department

 

RECOMMENDATIONS

POLICY

At present, there is no policy within the Vancouver Police Department with respect to graffiti. The proposed Anti-Graffiti Strategy for the Vancouver Police Department sets out the need for a consistent approach to this pressing issue, which includes the concept of education, enforcement and eradication.

PURPOSE

The purpose of this report is to advise Council of the Vancouver Police Department's anti-graffiti plan. This plan will develop and implement an integrated anti-graffiti strategy in order to maintain a clean, safe and prosperous city. The plan will incorporate community partnerships, as well as education, enforcement, and eradication strategies. This initiative has been developed in partnership with City of Vancouver Engineering, who have produced a complementary report. City Engineering and the Police Department intend to present these concurring reports to City Council together.

SUMMARY

Graffiti vandalism is a serious problem in the City Of Vancouver and its neighbouring municipalities. The incidence of graffiti has increased exponentially in the last decade, and continues to grow. Current efforts to deal with the issue are not only failing to keep pace, but the perceived inaction gives graffiti vandals the impression that their crimes are being tolerated.

Graffiti is a symptom of crime, and affects the quality of life of all citizens through decreased property values, increased taxes, and a financial burden on affected businesses and homes. The most obvious impact is the damage it causes to Vancouver's image as a city known around the world for its beauty.

There are a number of anti-graffiti programs being implemented by a variety of groups, communities and organizations in the city, including the City of Vancouver, the Vancouver Police Department (VPD), Business Improvement Associations and Community Groups. Because these groups operate in isolation, and lack the coordination, cooperation, and consistency needed, their effectiveness is limited.

A survey of successful anti-graffiti initiatives in other cities reveals that they all involve a combination of eradication, education and enforcement strategies. This business plan outlines a comprehensive approach to anti-graffiti for the VPD, which includes these three strategies with an emphasis on community partnerships and enforcement.

The recommendations are based on opportunities to build on the existing programs, and to integrate new elements from those that have been successful in other jurisdictions.

What is Required?
The recommendations in this proposal require, first and foremost, that the VPD commit to making its own internal anti-graffiti protocols more consistent. Second, a real effort must be made to generate greater cooperation and coordination among the key anti-graffiti players.

Ideally, two full-time officers would be dedicated to managing this program, and would work with other identified anti-graffiti groups. They would be responsible for developing and implementing a program within the VPD, educating those within the police force and the community on the real threats posed by graffiti vandalism, and coordinating existing and new initiatives in the community.

Costs
Start up costs for this program, in the first instance, is being requested from the City of Vancouver. Opportunities to partner with the business community, who can contribute financial or in-kind support, may open other potential funding streams in the future. The perception of this level of cooperation between Police, local government and corporate citizens could enhance the profile of the program, and create a "shared" initiative.

The costs of deploying an effective anti-graffiti program are relatively low, especially when one considers the economic benefits it brings to the city. In total, the budget for this program will be approximately $53,000. This figure includes $35,400 in start up equipment costs and 17,600 in ongoing costs. Annually the non-salary costs would be approximately $17,600 (using 2002 figures).Costs include equipment such as computers, dedicated database software, training, and a vehicle.

Compare this to the City's estimate cost of three million, just to clean up graffiti in the city, in the first instance. This figure doubles when you factor in costs to taxpayers, property owners, civilians, businesses, the police department and the judicial system. This figure doesn't even begin to include impacts on tourism, use of recreational facilities, and the promotion of other crime.

Risks
The primary risk in pursuing a committed anti-graffiti program is public perception. Some people may perceive the allocation of resources to graffiti eradication as wasteful, when there are other, more pressing criminal activities to be dealt with.

The reality is that graffiti is an indicator of other criminal activity in an area. If graffiti vandalism is not cleaned up, the perception is that the behaviour is condoned and the area is not being watched. This opens the door for other property crimes and creates an environment that tolerates violent crimes such as serious assaults and robbery. Controlling a symptom like graffiti will go a long way towards reducing the incidence of crime.

Benefits
A well-deployed comprehensive anti-graffiti program will not only reduce the incidence of this crime, but will also benefit the VPD's overall policing efforts. Paying focused attention to the problem of graffiti vandalism will show potential vandals, and other criminals, that there is a real police presence. By charging these offenders, who are often involved in other crimes, and tracking them in police databases, the amount of intelligence and targeting potential available to the VPD is significantly increased.

The benefits to the community are considerable, with a heightened street-level awareness serving notice to criminals of all varieties that the police are actively enforcing the law. A city that feels cleaner and safer will encourage tourism, and boost local business.

Finally, a link between the VPD and the community will be enhanced. Creating a working partnership of this kind with the various groups and agencies involved in anti-graffiti efforts can serve as a model for other initiatives in the future.

Threats
A major threat to the long-term effectiveness of this program is lack of support from Crown Counsel. The deterrence factor offered by this program will be significantly compromised if graffiti vandals are not fully prosecuted once arrests are made. Crown Counsel must support the initiative and be willing to follow-through on sentencing recommendations.

Conclusion
This proposal is not calling for extreme measures. There simply needs to be a serious commitment on behalf of the City of Vancouver and the Vancouver Police Department to eradicate graffiti. The benefits are considerable, both for the reduction of crime in our community, and also for the partnership VPD can create by working with citizens to restore our safe, clean city.

BACKGROUND

Why Do We Need an Anti-Graffiti Strategy?

Graffiti is not a simple problem and there isn't a simple solution. It's not just writing on the wall; it is, in fact, an indicator of urban decay and crime. The costs are enormous, and it is not something that should be minimized because there are bigger and more serious problems. When graffiti is dealt with effectively, the positive impacts have far-reaching implications. Council identified the graffiti problem as a significant concern to residents of Vancouver. This police department initiative is in response to this concern, in keeping with its philosophy of working with the community and other agencies to address community problems.

What Are The Costs of Not Dealing With Graffiti?

Graffiti has been termed a "quality of life crime" and the costs of not dealing with graffiti are numerous, including financial costs, as well as intangible impacts.

· Financial Cost - the City of Vancouver had estimated that it would cost approximately 3 million dollars1 to clean up the city in the first instance. Although there are not any hard figures, it is estimated that the overall cost per year to the city including the taxpayers, property owners, civilians, businesses, the police department, and the judicial system is even more substantial - perhaps 4-5 million.

· Public Impact - Graffiti reduces public enjoyment of the city's beautiful public spaces. Residents enjoying the beaches cannot avoid viewing the graffiti scrawled along various seawalls.

· Impact on Surrounding Area - Literature links areas that are high in graffiti with high crime rates. The lack of response sends a message: "We don't care, we can't be bothered - so what?" When graffiti is not eradicated, it ultimately attracts more graffiti, increases crime and reduces property values.

· Impact on Tourism - Tourists feel unsafe in a city where graffiti is abundant. Graffiti is currently highly visible in key tourist entry points such as Ballantyne Pier and the Central Bus and Train Station.

· Impact on Business - Business owners feel victimized and frustrated when they discover their business premises have been smeared with graffiti once again.

· Impact on Reputation - Graffiti sheds a negative light both on the City of Vancouver and the Vancouver Police Department.

· Graffiti breeds more graffiti - The amount of graffiti in the city has grown exponentially in the last few years. For example, 3 years ago there was very little graffiti on the buildings along Clark from 6th all the way down to Hastings. Now this well travelled route is filled with graffiti. There are corridors where the graffiti mires virtually every surface: Powell and Dundas streets, Main St, Great Northern Way, Sky Train routes, selected areas downtown, in Kitsilano, along Broadway and near the beaches. Graffiti continues to spill onto buildings adjacent to places that have not been cleaned up.

DISCUSSION

Critics may ask, "How can resources be devoted to mischief suspects when there are insufficient resources to devote to violent crime?" These are different subjects that should not be compared. A response might be, "Why can't we do both?" - particularly in light of the fact that when graffiti is targeted, we are targeting a portion of our repeat criminals. A survey of graffiti suspects revealed that approximately 70% of our suspects already hadcriminal records. This plan recommends that we have two police officers devoted to graffiti - two people who would be educating and utilising the existing personnel. The goal would be to achieve more efficiency and effectiveness as a result of the coordination that these two Officers would employ.

Cleaning up graffiti is an excellent starting point; it states that the status quo will no longer be tolerated. Starting with what appears to be a smaller crime is an excellent strategy. Then Mayor Giuliani and Commissioner Bratton successfully employed this strategy in New York in the early to mid 1990's with astounding results.2 This all feeds into what is commonly referred to as the broken window theory.

Broken Windows was the brainchild of the criminologists James Q. Wilson and George Kelling. Wilson and Kelling argued that crime is the inevitable result of disorder. If a window is broken, and left unrepaired, people walking by will conclude that no one cares and no one is in charge. Soon, more windows will be broken, and the sense of anarchy will spread from the building to the street on which it faces, sending a signal that anything goes. In a city, relatively minor problems like graffiti, public disorder, and aggressive panhandling, they write, are all the equivalent to broken windows, invitations to more serious crimes. 3

If graffiti is not cleaned up, the perception is that the behaviour is condoned and the area is more susceptible to other crimes. Graffiti is worthy of the effort necessary to clean up the city in economic terms and will have a substantial community impact. In addition, there are tangible approaches that can be employed in order to prevent and eradicate graffiti.

ALTERNATIVES/OPTIONS

In order to determine a preferred approach, the following objectives were set out.

Objectives:
1. To develop a consistent police department policy and procedure for dealing with graffiti;
2. To create a two officer anti-graffiti team that can coordinate strategies of the anti-graffiti plan within the police department and with outside agencies;
3. To educate police members and civilians about the ramifications of graffiti and the importance of following policy;
4. To develop an intelligence database to support graffiti investigations and facilitate graffiti vandal prosecutions;
5. To liaise with Crown and bylaw prosecutors to develop successful prosecution strategies;
6. To eradicate existing graffiti using effective strategies involving the public, the city and the police;
7. To send a message that graffiti will not be tolerated and will be dealt with; and
8. To ensure cooperation and coordination between the police department and other concerned agencies on an ongoing, proactive basis.

What are we up against?

Understanding the driving force behind a problem enables us to more effectively strategize and come up with solutions. Hence, the psychology of graffiti artists needs to be taken into account to stop the influx of graffiti. As one police officer put it, " Graffiti is like a weed - it spreads like wildfire unless you tend to it quickly." The lack of enforcement and the level of tolerance that is displayed encourages graffiti vandals. Why?

Profile of a Typical Graffiti Vandal

· Mentality of Entitlement - vandals share a belief in their right to deface property repeatedly.

· Crime Mentality - In many cases the suspects are actually immersed in the hiphop subculture. Recently discovered "tags" or logos reflect this mentality. Examples include: "Crime Incorporated", "DFA" (Destroy F---ing Anything), VIA (Vandals in Action) and "YPN" (Your Property Next).

· Low self-esteem - Many of the young individuals who do graffiti have low self-esteem. Graffiti is akin to a fix. One young graffiti artist confided, "When people look at my tag, - they wonder - when I see my tag - I know."

· Desire for attention and the need to display - Graffiti visibly grabs your attention and displays messages. Graffiti screams: "Look at what I'm saying. Notice me. Look at what I've done. Pay attention to me."

· Potential indicator of other at risk behaviour - In the words of one graffiti expert: "Graffiti is just one at risk behaviour. There may be a number of other at risk behaviours this person is involved in."

· Many suspects believe that they are "true" artists and have absolutely no concept that victims are impacted negatively by their work.

This profile suggests that any successful anti-graffiti strategy should have strong eradication and enforcement components. Timely eradication of graffiti is essential because the longer their work remains, the more encouraged graffiti vandals are. Enforcing the existing mischief law states that graffiti will not be accepted or tolerated.

What Is Already Being Done in Vancouver?

There are a number of eradication programs already in place. The organizations trying to deal with graffiti include: business associations, community programs, the Elizabeth Fry Society, Community Police Centres, City of Vancouver Engineering, and various private contractors. Their varied methods include: clean up by private contractors, community and neighbourhood paint-outs, mural contests, and paint-outs involving kids on probation.

· Community Police Centres - Most of the police department's existing anti-graffiti programs are at the Neighbourhood Policing level. A survey revealed that out of 15 Community Police Centres, seven already had programs in existence. Most of theoffices that did not have programs were aware of programs run by the local Business Associations in their communities.

· Vancouver Police patrol members are continuously arresting suspects. Research on the Prime BC System4 revealed that numerous suspects have been arrested in the past year.

· School Liaison Officers deal with graffiti suspects on a regular basis. Select School Liaison Officers are already educating students about the consequences of graffiti.

· Youth Squad, School Liaison Officers and Patrol Officers are working with Translink Crime Prevention officer Wendy Hawthorne. Special Constable Hawthorne is an extremely knowledgeable graffiti specialist who has been continuously working with various Police Departments and agencies within the Lower Mainland, British Columbia and Washington State for over 15 years.

· Two Youth Squad Officers have been temporarily assigned to the Graffiti issue in order to help develop a strategic plan for Vancouver Police and are working together with City Engineering.

· Crown is processing and convicting a number of graffiti suspects who are generally given specific conditions or put on probation.

· Vancouver School Board follows a rigorous anti-graffiti policy. Graffiti is recorded and eradicated almost immediately on school property.

· Translink Crime Prevention Officers prosecute graffiti suspects whenever possible.

· City Hall has an anti-graffiti program integrated with the Engineering Department. The City has recently granted contracts to independent companies to help clean up graffiti. The city has also conducted an in depth survey, which involved public forums. (More to follow in the section "Eradication Strategies, " How Can we Build on Existing Programs?")

After looking at the programs in place it becomes apparent that effort and knowledge are not lacking - consistency, coordination and cooperation are.

Learning From Experience: What's Being Done in Other Jurisdictions?

Many of the major cities within Western and Central Canada have multi-disciplined task groups combining police and city resources in anti-graffiti plans. In addition, there are a large number of American cities in the Western States who have programs in place. (There is an argument that crime trends in Canada are 8-10 years behind the United States and these trends extend to the proliferation of graffiti. It can be furthered argued that mobility along the I 5 corridor has exacerbated the problem.) Although there is a wide range of approaches, all of them incorporate combinations of eradication, education and enforcement tactics. The following is a sample range of approaches:

· A large team of specifically assigned police officers target graffiti vandals in the city. Once intelligence is gathered on a specific group or area, the team aggressively engages their target, which results in large-scale arrests and charges.

· A police officer concentrates solely on charging graffiti suspects and consequently is responsible for writing the majority of the related reports.

· A senior police officer heads up a team that actively arrests graffiti vandals. The officers continue to intervene and employ follow up techniques involving family and community members.

· The city sets up an anti-graffiti program that the police support.

· Teams of detectives focus solely on graffiti investigations.

· A Police Constable or Sergeant heads up an anti-graffiti project in conjunction with outside agencies and groups.

The last example appears to be the most popular in Canada. In the Lower Mainland, municipalities have generally dealt with graffiti on a more reactive basis rather than on a proactive one. Eradication committees have sprung up within communities in response. In keeping with this reactive approach, the various police departments have offered resources to anti-graffiti projects for limited periods of time - long enough to deal with high profile problem areas. The result has led to scattered approaches, and a lack of consistency and coordination. Notably, in the cities with successful programs, a high level of consideration and cooperation with other agencies and departments is apparent.

Education, Enforcement & Eradication: The Links

Over the years, a number of tactics and schemes have been undertaken in order to deal with the graffiti. Combinations of eradication, education and enforcement approaches have steadfastly remained. Although the next sections separate the three different components, these strategies are inextricably woven together. A facet of eradication, for example, is prevention, and prevention incorporates education. Education, in turn, leads to improved enforcement techniques, and increased enforcement results in eradication in the long run. Consequently, some of the following strategies overlap.

Education

Why do we need to educate?
Research on patrol practices from March 2001 to the present indicates that although Patrol Officers have been arresting and dealing with graffiti suspects on a regular basis, there is no consistent practice or policy.5Setting policy and procedure and educating Police Officers would enable us to track suspects, gather intelligence, form target packages, extract statistics, and in the long run, be able to more successfully prosecute.

The biggest cost of not having consistent protocol is the wasted intelligence. For example, a Patrol Officer may not be aware that a suspect is a habitual tagger and has done thousands of dollars of damage and subsequently may not charge the suspect. The suspect may simply be given a verbal warning or be asked to clean up, and is free to continue displaying his "art". On the other hand, if a report is always submitted, whether the suspect is charged or not, and it comes to the attention of the graffiti team, then the investigation can be followed up and linked to previous cases.

Who Do We Need to Educate, How Can We Educate Them, and About What?

· The police department - patrol members, Detectives, Sergeants - everyone who is arresting and dealing with graffiti suspects on a regular basis needs to be educated. Training would include: appreciation of the problem, policy and procedure andbecoming familiar with the available resources. Enforcement strategies, the pros and cons of proceeding criminally versus via bylaw, and the importance of gathering and sharing intelligence would be discussed. Vancouver Police Training Section has agreed that team training days would be the perfect vehicle for education. A rough copy of policy and procedure and topics to include is in the process of being drafted.

· Communications Operators should be aware of the criminal aspects of graffiti and be conscious of policy and procedure. Effective practices begin with the correct response resulting from the incoming information. Once again, team training days could be the vehicle used to convey the information.

· Crown Counsel ought to be cognisant of the magnitude of the problem, and the resultant impact on the city. The need for new proactive, creative approaches to prosecution, probation and penalties would be emphasized. Possible venues for putting forward the information include:

· Educating elementary school children and youth is a proactive and preventative method of eradicating graffiti. Topics could include the costs, the law, and the danger of getting involved. School Liaison Officers are already in place and are cognisant of the problem. SLOs deal with graffiti and suspects and graffiti on an ongoing basis and are willing to incorporate graffiti lectures into the educational component of their duties.

· Public Education is a huge process. Discussion topics could incorporate strategies on preventing graffiti, how to effectively deal with graffiti if you are a victim, cleanup techniques, and information about what is actively being done. The goal would be to create responsiveness and apprise members of the public about the latest eradication, education and enforcement techniques. The public could be informed through a number of different venues; ideally, this would be carried out with the help of a number of organizations such as the city, and existing community and business improvement associations. The police department may be involved to a lesser degree in this aspect of education - the City of Vancouver anti-graffiti program already has groundwork in place and may be the ideal candidate to coordinate these forums.

Enforcement Strategies

The Importance of Coordination, Cooperation & Consistency

Coordination, cooperation and consistency are paramount in the successful implementation of an anti-graffiti plan. These three "C's" are particularly important when it comes to enforcement. For example, if Patrol Officers are consistently following protocol and arresting suspects, however, Crown is not accepting charges or recommending appropriate conditions or sentences, the desired impact is diminished. The following enforcement strategy recommendations would contribute to a consistent, cooperative and coordinated approach:

· Arresting and charging suspects whenever possible - As a general policy, every person should be charged with mischief providing sufficient evidence exists. The decision not to charge should be based on extenuating circumstances that would be clearly articulated in the General Occurrence Report.

· Focusing efforts on targeting prolific graffiti crews - Efforts focused on arresting graffiti crews that are particularly active and causing a lot of damage would send a message to graffiti vandals. Once intelligence has been gathered, information packages could be passed on to teams within the department for selective enforcement. Existing resources within the department such as crime surveillance units, could be used to target prolific graffiti artists when they were not otherwise engaged.

· Using a video camera as a surveillance tool and a means of gathering evidence - In certain circumstances targeted graffiti vandals could be videotaped doing graffitiprior to being arrested. This could provide excellent evidence in court and could result in a lower expenditure in terms of human resources.

· Expand the Block Watch program to include activities such as recording, reporting and voluntary eradication. The Block Watch coordinator provided a letter of intent expressing willingness to participate in anti-graffiti activities.

· Crime Stoppers is willing to spotlight the graffiti issue and provide airtime as a means of educating the public and prompting citizens to report graffiti.

· Prosecutions - Recommend that Crown Counsel policy be directed towards prosecution of offenders. Ideally, a few Crown prosecutors would develop some expertise and knowledge in graffiti prosecutions6 since there are some unique factors that play into graffiti prosecutions such as similar fact evidence, and the need for handwriting, document and graffiti experts. There are also developments on both sides of the fence: graffiti artists are adopting new technologies and techniques (e.g., stencils, stick-ons, acid etching) and prosecution is developing new strategies (e.g., transparency overlays, digital imaging, and similar fact evidence). Unfortunately, the Crown prosecutor contacted during the development of this plan was not receptive to a more proactive joint effort.

· Revisions of the graffiti bylaw - In the last decade, there have only been two graffiti bylaw prosecutions. In order for the bylaw to be a useful anti-graffiti tool, it needs to be revised7. This will require the support of bylaw prosecutors; more research into the viability of prosecuting under the bylaw should be completed.

· Enforcing the graffiti bylaw consistently once the bylaw has been amended.

Eradication Strategies

How Can We Build on Existing Programs?

· The City of Vancouver has an anti-graffiti program coordinated by the Engineering Department. This program has been in place for 14 years and needs revision to meet the changing needs of the city with the influx of graffiti. In 2001, Engineering Services presented a proposal to City Council which included several new initiatives such as:

· The Community Police Centres within the VPD are willing to continue to expand anti-graffiti programs. All of the District 4 Neighbourhood Police Officers displayed enthusiasm and willingness to share their time and ideas, and collectively recommended the adoption of the following strategies, some of which are approaches that have already proven successful:

.

· Existing community programs and Business Improvement Associations should continue to be supported by City Hall and the Police Department.

Tools to Support Investigations

As a result of this proposal and the research that it entailed, a number of practices have already been set in motion. These tools are necessary in order to organize, investigate and prosecute graffiti cases.

· Study Flag - As mentioned, very few graffiti incidents or suspects have been tracked previously since graffiti is mixed in with all the other mischief reports. A study flag was requested and now appears on the front page of each General Occurrence (GO)report. The study flag separates graffiti incidents and allows graffiti cases to be tracked without the labour intensity of searching the entire database. In order for this tool to be effective, VPD staff will need to be made aware of it. This would form part of the education package.

· The Inception of a Graffiti-Specific Database - In addition to the study flag, research identified a large number of graffiti suspects. The fundamental need for a database had already been recognised and data is continuously being compiled. A database is essential for quality investigations and successful prosecutions. Graffiti databases are complex and unique due to the nature of the crime. Although we have an up to date and effective records management system, there may be a need for an independent imaging system. A possible solution might be to have all the graffiti suspects flagged specifically on Prime BC and also have a database for the collection and dissemination of graffiti photos. The set up options and configurations for a database need to be fully explored.

· Creation of a Text Template - In combination with a study flag, a text template could be created within Prime BC for graffiti cases. This template could capture graffiti details, which would enable patrol officers to simply document what is needed for a graffiti case. It would facilitate tracking statistics and could also be incorporated in the staff education package.

Alternative Approaches

A large selection of alternative and creative approaches to the graffiti problem can be employed. The options below appear to be viable and warrant further consideration.

· Reformation of a joint task force - an anti graffiti task force was formed a number of years ago, which did experience success. Various agencies and police departments within the Lower Mainland would have representation and result in a more united front. Experts such as Wendy Hawthorne could share her expertise more efficiently and reach a wider audience. The goal of the task force would be to share information, strategies and intelligence in order to deal with graffiti. (At the time of writing, Anti-graffiti Coordinator Helen Chomolok has already held one such meeting and Wendy Hawthorne has organized another one for April 10, 2002).

· Develop alternative creative outlets for graffiti artists such as sites for murals, and mural contests.9 Research indicated that murals were excellent for eradicating graffiti, but free walls seem to encourage the spread of graffiti onto the surrounding buildings.10 In addition, the number of "free walls" is finite and logistically freeing up these walls is difficult as far as planning and permits go.

· The idea of closed circuit television in high crime areas is not new. This concept could be applied to areas where graffiti is profuse. Cameras would be placed strategically in designated areas and monitored by security guards who were educated about graffiti protocol. The security guards, in turn, could call the police when it was necessary. Although there are concerns about privacy legislation, this concept might be practical on private and city property. The cameras themselves would be a deterrent - particularly if word spread within the graffiti community. Further research into this possibility is necessary.

· Working in conjunction with security companies - A number of articles have been written in the local papers in the last few months about graffiti. One of the articles stated that security companies had compiled data on graffiti suspects and their artwork. As an organization, Vancouver Police Department should be consulting with security companies on an ongoing basis and actively gathering intelligence. An informative education package could be presented to the coordinators of the security companies.

· Placing restrictions on the sale of spray paint has been discussed at previous forums where graffiti proposals were presented.11 Although this may seem to be a feasible option, the practical application of putting this exercise in place would involve a number of costly and time-consuming efforts. Graffiti expert Wendy Hawthornebelieves that placing restrictions on tools such as spray paint simply challenges graffiti artists to become more resourceful and use alternative tools and methods. When the City of Surrey threatened to place restrictions on the sale of spray paint, an explosion of window etching and glass acid emerged.

PERSONNEL IMPLICATIONS

Human Resources to Implement the Plan - Who Do We Need To Make This a Success?

The Graffiti Team
The position of the graffiti coordinators in the police department would be of utmost importance to a number of agencies and groups. Along with the anti-graffiti team at city hall, the stage would be set for a comprehensive and cohesive team that could effectively deal with graffiti; creation of the position itself would lend credence to the anti-graffiti effort. The team would consist of two members who would be:

-highly motivated

Present human resources within the police department are currently strained, and it is extremely difficult to staff new services from within existing resources.12 Existing shortages have been exacerbated by the drain caused by the joint VPD/RCMP task force created to work on the massive missing women's investigation. However, the police department recognizes that the graffiti problem is of serious concern to the public, and negatively affects the liveability of the City. Therefore, the police department proposes that two existing police positions be temporarily re-deployed within existing resources. The VPD has submitted a Report to Council to the City Manager requesting additionalcivilian and sworn staff for 2002 and 2003, respectively. If the request for 30 additional officers is approved, the two vacancies created by the re-deployment of officers to the anti-graffiti unit will be backfilled with new positions authorized by Council.

Why Are Police Officers Needed?
The most apparent reason that a Police Officer would be required to fill the anti-graffiti position is that the Police Officer has the authority to arrest and charge suspects. In addition, Police Officers have knowledge in the rules and collection of evidence, understand the need for consistency in investigations and have the ability to execute search warrants.

Why Do We Need a Two-Person Team?
Implementing a new team within the police department involves an abundance of time, energy, and research - especially in the initial stages. The duties associated to this position could include, but are not necessarily limited to:
· Providing input for the development of policy and procedure
· Developing training materials for staff
· Educating staff
· Coordinating graffiti programs within the department
· Researching different database options and setting them up
· Maintaining information within the database
· Gathering and disseminating graffiti intelligence
· Ensuring the implementation of new programs within the department
· Assisting with and following up graffiti investigations
· Staying up to date on graffiti case law and enforcement techniques
· Developing prosecution strategies with Crown Counsel and Bylaw Prosecutors
· Liaising with City Hall's anti-graffiti team on an ongoing basis
· Networking with related agencies and community groups

One person would be overwhelmed with the enormity of the task. A two person team makes sense in terms of sharing responsibilities, more collective experience, and ensuring maximum coverage while taking into account annual leave, training, sickness and otherabsences. Continuity is critical as the learning curve would be steep in the initial phase and substituting members for a short period of time would not be productive.

Who else do we need? Required Partners within the Police Department
In addition to working closely with the NPOs, SLOs and select teams with VPD, there are a number of other sections within the department that would have to work hand in hand with the graffiti coordinators in order to bring the plan to fruition. These sections include:

· Planning & Research
· Training & Recruiting
· Information Management
· Information Technology Section
· Crime Analysis Unit

Performance Measures

How can Success be measured?
An evaluation period of 18 months is proposed in order to provide for a 6 month start up training and familiarisation period where productivity will likely be low, followed by a year where the program would be in full implementation. At the end of 18 months, a number of evaluation techniques can be employed. A mutual decision about how to measure progress will have to be determined; some suggestions that may be taken into consideration follow:

· Trial Tracking - Utilizing information from BC Prime and Justin, it is possible to track arrested graffiti offenders through the judicial system. The time frame for trial tracking would probably have to be extended because many of the cases would not have been to trial within the 18-month time frame.

· The study flag will enable us to track any graffiti related incidents or arrests and capture information about graffiti suspects. If the text template is put in place, further statistical information can easily be extracted.

· Monitoring areas of the city and graffiti corridors (preferably these areas would be unknown to the city and the graffiti squad).

· Plotting the number of reported incidents the first year and comparing them to successive years.

· Recording and photographing all the graffiti in every city block once a year and comparing it yearly. A map detailing all the locations where the City Property Use Inspectors recorded graffiti in August 2001 is available. The new proposal from City Engineering recommends that funds be set aside for a similar project for statistical purposes.

Expected Benefits

There are a number of favourable consequences that occur when the graffiti problem is tackled pro-actively and comprehensively.

· Smart Business Solution - Based on intelligence gathered from Prime BC and other sources, many of the city's graffiti vandals do thousands of dollars of damage on a regular basis and some of them do hundreds of thousands of dollars worth of damage on a repeated ongoing basis. In terms of dollar value alone, dealing with graffiti is a smart business solution.

· Targets multi-faceted criminals - Many of the graffiti suspects were not doing graffiti exclusively: a quick survey of the names in our graffiti suspects book showed that 70% had criminal records, and a large number had outstanding warrants. Targeting graffiti criminals results in targeting a portion of our active criminals.

· Increased Public Satisfaction with the Police Department -The Police Department is involved in making a quality of life difference within a number of communities.

· Eradication deters repeat offenders - It has been proven time and again, that suspects are less likely to re-offend if graffiti is cleaned up quickly and consistently.

· Reduces Other Crime - Eradicating graffiti makes the area less inviting to other crimes.

· Sends a message to criminals that defacing, destroying and damaging property will no longer be tolerated - It states that the law will be enforced and mischief charges will be pursued.

· Sends a message to citizens that the City takes responsibility, is active in eradicating graffiti, and is willing to take the time and spend the money in order to care for the communities.

· Once incidents of graffiti are reduced, money originally earmarked for eradication can be directed toward other worthy projects.

· Our city looks more beautiful again and is more appealing to tourists - This will have a direct positive economic benefit particularly in light of the 2010 Olympic Bid.

FINANCIAL IMPLICATIONS

Estimated Costs of the Plan - what will it take to get the job done right?
The following table sets out the start up and ongoing costs. Corporate partnerships might be an avenue to be explored in the future with the City. Taking into consideration what it would cost to clean up the city in its entirety, graffiti appears to be a cost effective investment. As discussed in the "Personnel Implications" section of this report, the police department proposes that two existing police positions be temporarily re-deployed within existing resources for the current year; therefore there is not net impact on the current operating budget. The cost however, of these officers, is approximately $140,000 (salary and benefits). The VPD has submitted a Report to Council to the City Manager requesting additional civilian and sworn staff for 2002 and 2003, respectively. If the request for additional officers is approved, the two vacancies created by the re-deployment of officers to the anti-graffiti unit will be backfilled with new positions authorized by Council. The table below recommends equipment needs for itemized equipment requirements for the anti-graffit program. Currently the Vancouver Police Department does not have equipment to properly supply the anti-graffiti team.

CONCLUSION

Summary of Recommended Strategies
1. Ensure the formation of policy and procedure for Vancouver Police Department in conjunction with the Planning and Research department
2. Form a 2 person Graffiti Team that can coordinate events within the Police Department and with outside agencies
3. Create and implement an education program
4. Educate police members, support staff, organizations and public
5. Actively enforce the mischief law - Section 431 of the Criminal Code of Canada
6. Capitalize on the current police resources:

Take advantage of Crime Stoppers' offer to dedicate airtime to graffiti
7. Continue to explore graffiti database configurations in order to facilitate graffiti investigations
8. Present to Crown Prosecutors and aim to develop prosecution strategies together
9. Recommend that City Council consider the collaborative proposal presented by City Engineering
10. Work with the City of Vancouver in order to secure amendment of the bylaw
11. Work together with existing community programs and Business Improvement Associations
12. Create partnerships within the community which would empower residents, businesses and community groups to take responsibility for their property
13. Support alternative strategies such as mural contests and Rock Solid's Program
14. Encourage cooperation between the Vancouver Police Department and security companies

Concluding Remarks

This proposal is not calling for extreme measures. There simply needs to be a serious commitment on behalf of the City of Vancouver and the Vancouver Police Department to eradicate graffiti. The benefits are considerable, both for the reduction of crime and for the partnerships that the VPD can create. If this plan is not supported, the graffiti problem will be perpetuated and will continue to spread exponentially. Graffiti is marring the beauty of the city and threatening economic prosperity. The recurring theme in this plan is the need for consistency, cooperation and coordination. There has to be a consistent response from the police department, and, in turn, there has to be a consistent response from the City. The police policy has to be consistently practised and enforced, the bylaw has to be enforced, Crown has to consistently prosecute and graffiti has to be consistently removed. When these practices are in place, a consistent message will be delivered. That message is that graffiti will no longer be endured, and that cooperative effort will be made to reclaim a graffiti-free city. This proposal and the complementary proposal from City Engineering are good steps to achieving this goal.

* * * * *

Footnotes

1 The three million dollar figure is cited in the City's November 2001 Anti-Graffiti Strategy publication.

2 "Turnaround - How America's Top Cop Reversed the Crime Epidemic" by William Bratton; Random House 1998

3 "The Tipping Point" by Malcolm Gladwell; Little, Brown & Co. 2000.

4 Prime BC is our records management system which became operational in March, 2001.

5 Graffiti is deemed to be a Mischief Offence under the Criminal Code of Canada, and is not segregated from any other type of mischief, making it very difficult to track.

6 This is not to suggest that there would be one prosecutor dedicated to graffiti. Rather, that a handful of prosecutors became more familiar with graffiti cases and incorporate them into their portfolio.

7 A number of defences created in the existing bylaw make it difficult or impossible to enforce.

8 Rock Solid is a police community partnership in Esquimalt. They have designed a unique six way joint venture involving government, the corporate sector, police, a charitable organization, the general public and youth which deals with graffiti on letter boxes and relay boxes.

9 Detective Constable Steve Elson met with a Leadcore executive who expressed immediate interest in Constable Elson's innovative idea to instigate mural contests on hoarding (plywood boards) around construction sites.

10 Calgary Police Department Constable Marcel Dubois stated that in Calgary a skateboarding shop allowed a free wall at the back of their premises and the graffiti in now a 10 square block problem.

11 A paragraph dedicated to spray paint restrictions is written in an administrative report to the City's Standing Committee on City Services from the General Manager of Engineering Services (author Rowan Birch) in May, 2001. It was also put forward to City Council in an anti-graffiti proposal in 2001.

12 For further information, see the VPD's "Workload Status Report 1993-2000" which was the basis of an increase to the VPD's authorized strength in March 2001. Also, see the Report to Council detailing the VPD's civilian and sworn staffing request for 2002/2003 expected to go to Council in April, 2002.

 

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