Report to/Rapport au:

Transportation and Transit Committee/

Comité des transports et des services de transport en commun

 

and Council/et au Conseil

 

27 June 2002 / le 27 juin 2002

 

Submitted by/Soumis par:  R.T. Leclair, General Manager/Directrice gérérale

Transportation, Utilities and Public Works/Transports, Services et Travaux publics

 

Contact/Personne-ressource :  Alain Gonthier, Program Manager, Operations Research Services/Gestionnaire de programme, Service de recherche opérationelle,

580-2424, ext./poste 21197, Alain.Gonthier@ottawa.ca

 

 

 

 

Ref N°:   ACS2002-TUP-SOP-0003

 

SUBJECT:     GRAFFITI MANAGEMENT PROGRAM

 

OBJET:          PROGRAMME DE GESTION DES GRAFFITIS

 

REPORT RECOMMENDATION(S)

 

That the Transportation and Transit Committee recommend Council approve the development of a comprehensive, long-term graffiti management program for the City of Ottawa starting with:

 

1.                  Centralized coordination of graffiti by Transportation, Utilities and Public Works with other City Departments and Ottawa Police Services;

2.                  The implementation of a three (3) year graffiti management strategy that will apply to all property and infrastructure managed by the City either directly or indirectly.

3.                  The sum of $50,000 for a “zero tolerance” pilot project for August and September 2002 in two areas where volume of graffiti is high.  Suggested areas are Rideau Street from Colonel By to King Edward and Bank Street from Nepean to Gladstone.

 

RECOMMANDATION(S) DU RAPPORT

 

Que le Comité des transports et des services de transport en commun recommande au Conseil d’approuver un programme de gestion des graffitis global à long terme pour la Ville d’Ottawa débutant par :

 

1.                  La coordination centralisée de la gestion des graffitis par Transports, Services et Travaux publics, en collaboration avec d’autres services de la Ville et les Services de police d’Ottawa;

2.                  La mise en œuvre d’une stratégie de gestion des graffitis échelonnée sur trois ans sur toutes les propriétés et les infrastructures gérés par la Ville soit de façon directe ou indirecte;

3.                  L’injection de 50 000$ dans un projet pilote de « tolérance zéro » prévu en août et en septembre 2002 dans deux secteurs où le nombre des graffitis est élevé.  Les deux secteurs proposés sont la rue Rideau, de Colonel By à King Edward, et la rue Bank, de Nepean à Gladstone.

 

 

BACKGROUND

 

On 19 September 2001, the Transportation and Transit Committee requested that staff bring forward a strategy report that would:

 

  1. Define current practices and procedures in graffiti removal and graffiti prevention;
  2. Provide an update on the 1999 Graffiti Removal Project and its recommendations;
  3. Provide recommendations on strategies to effectively deal with graffiti, involving partnerships with other agencies, coordinated activities (including possibly a centralized phone number to report graffiti), enforcement of anti-graffiti regulations, public education, and alternative approaches to graffiti management.

 

In addition, the Committee requested that the City of Gatineau (former City of Hull) be asked to partner in a graffiti management program, and that the Ottawa Youth Cabinet and the Parks and Recreation Advisory Committee be asked to review the 1999 Graffiti Removal Project Report and the current practices of the City of Ottawa and bring forward, from their perspective, a strategy on how to better combat the graffiti situation in the city.

 

The Ottawa Youth Cabinet and the Parks and Recreation Advisory Committee are addressing their review separately.  We have reviewed the draft recommendations prepared by this ad-hoc graffiti sub-committee and we have consulted with a representative of the Ottawa Youth Cabinet.  Their input has been considered in the development of this graffiti management program.

 

Current Practices

 

The City currently responds to calls related to graffiti in a number of ways:

  1. Eradication and paint-over efforts are undertaken systematically as part of regular maintenance activities through the spring and summer months.  This work is done when graffiti is reported to the Call Centre or is found by maintenance crews. 
  2. A proactive approach to removal is taken in the Community Pride Program’s “Spring Cleaning the Capital” campaign. 
  3. The City works with Police Services to remove graffiti in 24 hours or less if it is hate-based or vulgar in nature.
  4. The City provides warnings in writing to business owners whose buildings have been ‘hit’ by graffiti.  If the business owner does not respond to the warning, the City may remove or cover over the graffiti, and charge the business owner by adding it to the owner’s tax roll or sending him/her an invoice.

 

The City of Ottawa alone spends in the order of $400,000 annually to remove graffiti from City facilities and infrastructure (Transportation, Utilities and Public Works: $175,000, Corporate Services: $175,000, others: $50,000).  This amount was compiled based on discussions with other City Departments.  It is considered to be a conservative estimate as expenses pertaining to graffiti are not recorded separately.  It does not take into account the costs that other agencies, such as the NCC, the federal government’s Department of Public Works, utility companies, incur to remove graffiti within the City. 

 

1999 Ottawa Police Services Pilot

 

In April 1999, in response to growing concern about the spread of graffiti in the former City of Ottawa, a joint graffiti removal initiative was launched with the OCRPS (Ottawa-Carleton Regional Police Services), Hydro Ottawa, Canada Post, the National Capital Commission, OC Transpo, the former City of Ottawa, Bell Canada and the Region of Ottawa-Carleton.  The objective of the project was to combat graffiti in Ottawa’s downtown core.

 

Three students were hired with a budget of $28,500 (with funding from all partners), and over the course of the 12-week program, they had removed 517 pieces of graffiti in the city’s core (east to west from King Edward to Holland; north to south from St. Patrick to Sunnyside).  At the end of the program, the following recommendations were made to the new City of Ottawa:

 

  1. That the new City of Ottawa, Ottawa Police Services and appropriate partners should create a dedicated task force which would incorporate all of the City’s graffiti removal efforts. 
  2. Continued and improved cooperation with the business community to remove graffiti. 
  3. That all partners pursue avenues that include working with affected communities directly, with youth, artists, businesses and community organizations.
  4. That one telephone number be used to report graffiti, so that the public can call with questions/concerns about graffiti and its removal.
  5. That more education and awareness be built into graffiti removal efforts. 
  6. That future graffiti management efforts include a visual database, especially for often-hit locations.
  7. That resources and funding be made available to improve upon the Graffiti Removal Project.

 

DISCUSSION

 

Graffiti

“The term ‘graffiti’ generally applies to any inscription, word, figure, design, painting, writing, drawing or carving that is marked, etched, scratched, drawn, painted, or otherwise applied to property without the prior authorization of the owner of the property regardless of the graffiti content, or nature of the material used in the commission of the act, or the material of the property.”

From “Removal of Graffiti from Public and Private Property”, City of Ottawa, 1999

 

Graffiti is a form of vandalism.  It may appear like a ‘victimless’ crime, but if it is left unchecked it spreads rapidly and leads to what is called the “broken window” syndrome – leaving people with the impression that government and police services don’t care and that nobody is in control.  UCLA criminologist James. Q. Wilson, who coined the term “broken window”, claims that:

 

“the presence of graffiti discourages citizens from shopping or living in affected areas.  As established businesses relocate or close, new businesses might be reluctant to move into areas where customers would feel unsafe.  As property values decline and law-abiding citizens with resources move, once-thriving neighbourhoods can quickly degrade into dangerous places.  Thus, the seemingly trivial offence of graffiti ultimately can have devastating consequences for a community.”

 

What is understood is that the presence of graffiti in the City of Ottawa is typical of most major Canadian or North American cities.  In Ottawa, it tends to be most plentiful and visible in the more densely populated areas of the city. It is also prevalent in and around public transportation routes and vehicles, as well as school and recreation areas, including community centers and parks.

 

In research and consultation, it was found that every city that puts a graffiti management program in place institutes a very similar, systematic approach to eradicating it.  And, though the details may vary slightly, each city implements what is called a “4E” program (see Annex 1), which includes:

 

·        Empowerment

·        Education

·        Eradication

·        Enforcement

 

Another common denominator is that municipal governments or city police services consult closely with partners and stakeholders in the development of graffiti management programs.  While the details may vary slightly, governments tend not to act in isolation of partners and others who can help them.

 

While current efforts are effective and graffiti is removed, the City could achieve far superior results with a coordinated program that would optimize valuable resources.  Best management practices to address graffiti more effectively would require changes to our current practices, including:

·        A more coordinated approach to maximize efficiency in service.  This may be achieved by:

·        A comprehensive, sustained plan to manage the spread, prevention, and enforcement of graffiti, which could include:

·        A ‘zero tolerance’ approach to graffiti that is considered to be hate-based, racist, sexist or homophobic, or may be perceived to be a threat to public safety or does not reflect the City’s attitudes about tolerance and diversity. It could include:

 

A coordinated approach to managing graffiti would result in both immediate and long-term benefits.  Short-term action would serve to focus efforts and resources on the maintenance of furniture, structures and buildings.  A sustained program would also include:

1.      More cost effective and efficient use of existing resources among the City’s service providers.

2.      A more streamlined response to service requests, from point of entry into the City to removal.

  1. A relationship with service providers, stakeholders and partners based on joint responsibility and accountability.

 

Meeting short-term goals are also a means to an end.  A sustained program would yield a number of other benefits: 

  1. Gaining an understanding of the scale of the problem and actual costs to remove it. This would be achieved by tracking all removal activities over the course of two seasons.
  2. Maintaining a clean, safe community.  The City of Ottawa is committed to providing a clean and safe environment for residents and the business community – one that is tolerant and welcomes diversity.  Removing graffiti can make a significant contribution to this commitment.  The presence of graffiti sends a signal that governments and police don’t care or have any control.
  3. Leveraging partnerships.  In a city with many layers of government, working together to prevent and remove graffiti is critical.  If agencies share common objectives, they will be more likely to succeed.  The City would benefit from working collaboratively with the Department of Public Works and the City of Gatineau.  The City of Gatineau has confirmed that they would provide representation on a stakeholders committee and they would participate in this graffiti management initiative.
  4. Supporting economic development.  The City of Ottawa is committed to providing an environment for small and medium-size business to flourish.  The business sector is also among the biggest targets of graffiti vandalism. It has been documented that businesses are less likely to settle or stay in a community that is hard hit by graffiti.  Working with the business community to prevent and remove graffiti can provide economic benefits.
  5. Supporting tourism.  The presence of graffiti, especially in shopping and entertainment districts like the Byward Market, sends a negative signal about the City.

 

It is important to note that a sustained graffiti management program cannot be established over the course of a single season.  It requires time, coordination, and efficient use of resources.  The following are recommendations to be implemented in the short-term (2002 to 2004) in order to develop a successful long-term graffiti management program.

 

Empowerment activities:

In the first year it will be critical to establish infrastructure and budgets, and to develop the relationships that will be vital to a sustained and successful graffiti management program.  Suggested priorities include:

 

-               Centralize graffiti coordination for 2002 and 2003.

-               Establish process flow from initial call for service to removal.

-               Establish a Graffiti Coordination Committee comprised of internal and external stakeholders.

-               Quantify inventory and removal costs.

-               Plan for more “graffiti-proofing” of municipal infrastructure.

-               Plan future graffiti removal projects (for public property, and jointly with private property owners).

-               Plan mural program for 2003.

-               Begin to identify possible sponsors, youth groups, volunteer groups, and community associations with an interest in graffiti prevention and removal.

-               Plan communications and marketing strategies and tactics (awareness and education, especially awareness of hate-related graffiti and coding).

 

Removal activities:

In addition to regularly scheduled maintenance that includes graffiti removal as part of a ‘sweep’, it is recommended that the City undertake:

a.             a “zero tolerance” pilot project in two ‘hard-hit’ areas of the city (suggestion: Bank Street from Nepean to Gladstone, Rideau Street from Colonel By to King Edward), beginning with a focused removal effort of graffiti from utility boxes and/or other targeted public surfaces.  Rideau and Bank streets are important tourist areas and would benefit from clean-up;

b.            a partnership with business property owners in the above locations to remove graffiti from private properties, such as buildings.

 

Prevention activities:

As removal efforts provide only a portion of the solution, it is recommended the City also consider:

a.             a ‘pilot’ mural project with business owners for surfaces that are often hit. A project of this nature could be planned for the same areas outlined in 1.a., or in other parts of town that are also vulnerable, such as the Glebe, Elgin Street, Richmond Road, or Montreal Road.

b.            plan the first phase of a ‘graffiti-proofing’ campaign.  This may take the form of coating utility boxes, bridges or other structures.  The target would be vulnerable areas in the core (Bank Street Bridge, Bronson Bridge, utility boxes in centretown).

c.             review regulatory tools, such as the property standards by-law and the encroachment by-law to strengthen requirements for graffiti management.

d.            review design standards used for construction in the City’s right-of-way to incorporate graffiti resistant materials.

 

Ultimately, a fully functional 4E program would contain all of the elements listed in Annex 1, but they would be implemented over the course of three years and in close collaboration with service providers and other interested partners.

 

ENVIRONMENTAL IMPLICATIONS

 

The environmental implications of removal activities should be taken into consideration.  Professional removal solutions range from natural, sodium-based products to chemical techniques.

 

RURAL IMPLICATIONS

 

While graffiti tends to be an urban problem, it exists in suburban and rural areas and in some cases is spreading.  A graffiti management program will also apply to areas outside the urban core of the City of Ottawa.

 

CONSULTATION

 

In the development of a proposed program for graffiti management, wide consultation was undertaken with internal service providers and external partners and stakeholders.  More than 60 interviews were conducted.  In addition, discussions on graffiti are included in the public consultation process currently underway for the harmonization of roads, park and tree maintenance standards.

 

Interviewed service providers include:

·        TUPW (Surface Operations, Traffic and Parking Operations, Transit, Infrastructure Services)

·        Corporate Services (RPAM, Corporate Security)

·        Ottawa Police Services

·        People Services (Community Services)

·        Hydro Ottawa

·        Economic development group

·        Volunteer liaison

·        Youth liaison

·        Communications and Marketing Group

·        By-law Services

·        Call Centre

 

 

Partners and stakeholders include:

·        Business community (through BIAs; also Chamber of Commerce, OCRI)

·        Other governments (NCC, City of Gatineau, DPW, Transportation)

·        Non-governmental organizations (People Against Discrimination)

·        Utilities (Bell Canada, Rogers, Videotron, Hydro One, Enbridge)

·        Graffiti removal experts

·        Media

·        Graffiti paraphernalia retailers

·        Graffiti artists

 

 

In addition, a comparison was made of best removal practices in a number of cities in North America, including legislative practices. These cities include:

·        Toronto

·        Montreal

·        Calgary

·        Vancouver

·        New York City

·        Portland, Oregon

·        Seattle, Washington

 

FINANCIAL IMPLICATIONS

 

The Department is seeking $50,000 to launch a ‘zero tolerance’ pilot project for August and September 2002 in two areas where volume of graffiti is high.  These funds would be utilized for resources to remove all graffiti on City property within these areas.  This pilot project would be in addition to other removal efforts currently underway and therefore would not take away from ongoing initiatives.

 

In addition to demonstrating concrete removal results, it will allow the City to focus discussions with other partners on the most effective approach to dealing with graffiti management, and it will provide an indication of the overall cost to maintain such a policy.  Suggested areas are Bank Street from Nepean to Gladstone and Rideau Street from Colonel By to King Edward.   

 

Other elements of the proposed graffiti management program may also have financial implications.  These will only be brought forward to committee as budget pressures if funds cannot be allocated from existing budgets.

 

DISPOSITION

 

Upon approval of Council, the Department of Transportation, Utilities and Public Works (Surface Operations Branch) proceed with the implementation of the approved program.

 

ATTACHMENTS

 

Annex 1:  The Four Basic Pillars for a Graffiti Management Program

 

Annex 1

 

The Four Basic Pillars for a Graffiti Management Program

 

Graffiti management programs in North American cities share a number of traits in common.

What has been proven to be successful is what is known as a 4E program.

·        Empowerment

·        Education

·        Eradication

·        Enforcement. 

 

Empowerment:  A comprehensive graffiti management program must begin with an understanding of the nature and size of the problem.  This empowerment can even extend to forming a relationship with graffiti artists to understand their thinking and to harness their energy toward more positive ends.  Without it, effective action can’t be taken.  It is important to: 

 

a.       Identify, catalogue and evaluate existing graffiti removal activities

b.      Develop a visual database for use in managing hate-related issues and for enforcement purposes

c.       Measure graffiti (calls for service), size of graffiti, cost of supplies and equipment, time)

d.      Establish budget

e.       Review effectiveness of penalties and consider non-punitive opportunities to address graffiti-related vandalism

f.        Restrict sale of paraphernalia to minors

g.       Consider the use of graffiti in ‘controlled’ public spaces (also an ‘eradication’ technique)

h.       Work with graffiti artists to consider alternative choices to vandalism.

 

Education:  Education serves to communicate vital information about everything from the cost of damage in communities to effective means to report graffiti, prevent it, and clean it.  It is central to a successful program – not just to external stakeholders and partners, but to internal service providers responsible for removal and administration. An education program should consist of:

 

a.       Social marketing activities for general public 

b.      Engaging the community and stakeholders

c.       Focus on prevention with youth and students

d.      Communicating successes

e.       Communicating enforcement activities

 

Eradication:  Removing graffiti is by far the most visible and effective means to deal with the spread of the problem.  The faster it is erased, the less likely it is to recur.  But removing or painting over graffiti is not the only step in eradication.   Prevention is also a key component in the eradication process.  Careful planning and coordination of resources are required to support removal efforts, including:

 

a.       Cordinating removal activities 

b.      Developing mechanisms for managing complaints and co-ordinating services

c.       Establishing special graffiti prevention and removal programs with the business community and other stakeholders

d.      Coordinating with other governments and jurisdictions

e.       Adopt prevention techniques (lighting in parks; environmental design)

f.        Consider ‘graffiti-proofing’ vulnerable public structures and buildings.

g.       Meeting graffiti half way (by creating mural projects or graffiti zones)

h.       Engaging youth in employment and outreach

 

Enforcement:  Enforcement is the domain of Police Services; however, this program requires their active involvement in the empowerment, education and eradication process as well as being enforcers of the laws.  This means they can take part in planning and offer their own channels for outreach into the community.  They can also carve out a role for themselves that provides practical solutions to the problem, including:

 

a.       A more visible role on graffiti

b.      Reviewing penalties

c.       Review resource

d.      Partner with community groups