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City of Palo Alto
City Manager's Summary Report
-TO: HONO~CnYCOUNca
FROM: CITY MANAGER DEPARTMENT: PUBUC woRKs
AGENDA DATE: February 2, 1995 CMR!127:95
SUBJECT: TrW anti-graffiti program Jnfonnatioo Report· one year
evaluation
REQlJE.g"
This i. an informational report which provides Council with an evaluation of the first
twelve mootli. of the trial ~ti progntIIL
REOOMMENQAl1QN
CootinlUDa of the anti-gnfflti program on • permanent basis will be focwarded to the
Fin~ Committee as pan of the operating budget issues session on April 18 • 1m.
POliCY JMPI r<:Al1ONS
Establish""",t of. perm.anent anti-graffiti program would be consistent with past policy
direction.
FXFCIOJVES~ARY
In response to concerns expressed by =idents over the increasing occurrence of graffiti, City
Council approved • 1 1/2 year anci-graffiti program utilizing temporary personnel in
December 1993. Conncil requested that staff return with an evoIuatioo of the program
within """ year_
Staff believes that the tru! anti'graffiti program has be.-" extremely successful in reducing ,be
amount of g",ffiti within the Ciry as the number of graffiti removal vork orders has
significantly declimd, past high inciden, locations have not experienced new actS of gnffiti
and feedback from iidd cr ..... s and the public has been consistently positive. In genera!, staff
has found that the success of the program is due to on aggressive public informotion outreach
effort and speedy follow up to citizen horlin. caIlS-
The program has been able to maintain an average two day response time for abating graffiti
on public propeny and staff strongly recoounends making this element of the program
race I at II
permanent as speedy aggressi"t removal has proved to be the most effective means to
discourage further >ctS of graffiti. In order to provide mo<e timely graffiti ~baument on
<Jthe1 agency proper!}", sufi proposes that the City per{ocm this a&:i.tional work as part of
the program to the extent IMt k does J>O( compromise removal. on City property. In
situations of priY;lte· property, City notification letters .. -,d peer pressure have helped in
. gettln& owners to rospond quickly to graffid incidents. N.. r<S\1k, stili oupports continuint;
the non punitive .pproach uk ... by the City regarding private property dun "p.
Suff does recommend that the boUrne coordinator and vohmt""r coordinatOr position, be
comhin«! as the ef!oxt required to maintain the ongoing prognm has prOYeD to take less
time since the elimination of the initial brodog. Other recommended program changes
incloo.limiting the use of recycled pain, to sit .. wruch ue not visible to the public due to
poor color """"bing and disroocinuint; use d sealants which h2Vt oot been as cost effective
as expected. Instead, initially painting over large surface a=s wkh subsequent gr.ffiti cover
up using the same paint bas proven to be more effici.,nt and effective.
FISCAL IMPACT
The perma!1eM anti-gnffiti progr= will hove on annual cost of sn 1,228 including S88,114
for two full time positions and overtime, $38,000 for materials and supplies and S4,414 for
vehicle lll2inrena..nce. ~ on the location of graffiti removals over the laSt y=, 20 percent
of the total cost cO'.>\d be >i¥opri.,ely funded from the Electric Utility Fund.
ENYUlONMENTAI. ASSFSSMFNf
Thi. prognm is exempt from tbe California Environmental Quality A.ct (CEQA}.
ATfAcHMENr
Deumber 14,lm San}ose Mercury New. a...ucle.
PREPARED BY: George Bagdon, A.ssi;tant Dir.,"tOC Public Works
DEPARnmITHEADREYJEW: &1 ~~
CMIl:l27:95 P.ge 1 of 11
,
j = Various HOI!>eOWller ksoci.tioa.
Will Beckett, President Barron Park Associa~n
Susanne Frank, Director O.."ber of Commere<
]';"e Alhouse Gee, President Palo Alto &ard of Rmocs
Donn. ~encenzi, California Avenue Are. Development Assoc.
Susan Shields, President M:..xown V~I'chant5 Association
johnRlWO
Borbara Gross, Downtown Marketing Commiu""
Richw:I Spotswood
Thomas Ban)'
Kerla Oskinski
Joan Sullivan
BQbMoss
}olm}oynt
}ohnBenza
Robert Marinaro
J.a.~
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Sl,WJECI: . T ri:oJ Anti-graffiti Program lnfOl'DUoon Report" 0.,., Year Evaluation
REcOMMfbllAUQN
This is on infonnational report ",hlch presents. one year e\..!uatioa of the trial anti-graffiu
program. CoccialWlCe 01 !he progrun on a perma::ent basis ,,·ill be forwarded to the
Finance Committee as pan of the <>renting budget &u.s discussion on .".prill!, 1995.
BACKGROUND
In response to con=ns ap<essed by r""""ats over the incre .. ing ocrurreoco of graffiti, City
Council in December 199" appcoved a I 1/2 year trial ",,;'graffiti prognm utilizing
tempo<ary personnel. The program consists of eleven elements grouped into three general
c:ztegor.o:es: removal, publi<: support/outreach and e-nfoccement measures. This report
provides Council with an eval1w.ion of the h,.., twelve months of the program.
POlIcY [MPI lCATIONS
Establishment of a permanent antii;raffiti program would be wnsistent ..,ith past policy
&i="tion.
DISCUSSION
Staff be!ie.es that the trial anti-graffiti program has been enremdy SUCC~"! in reducing !he
am.>wH of graffici within the City. This =ment is based on severo observ.,;"ns. First,
the number of graffiti removal wock "<clers has signifi.:andy de--Jined over the last ten
mont!>" as indicated in the rotlowing cha:t
,. ... A. ... ~~A.OIIiI •
~oI.,.y_
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• The Morel> p<a is • result of addressing the bac1dog .... hi<:h existed at the start of the
prop-am_ ~ sligbt increase in July V1d August is prob.bty due to the school summer
break.
Second, past !>igh incident locations such as Seale, Hoover, Mitchell and Rinconada Parks
and Y..idd!efield Road ar.-d Ros. Road bcidg .. are DO( experiencing new a<:tS of graffiti
OvenJl, less than 10 p<rcent of all removals are rep<ated at the <arne Iocaticn_ Thir&.
f«dback from field crews and the public has been consistently posim-e. City field crews
wocking throughout Palo Aha have reported fewer graffiti incidents and have indicated a ,,,,,en! impt"ovement in the appearance of public property _ !J...." numerous citizens calling
tbe hodine have indicated that less graffiti is being seen in their neighborhoods. This is
further highlighted in the anached December 14, 1994 San Jose Mercury New .... ticle.
In genenJ, staff has h.md that the success of the program can be ann1ruced to its simpli<:ity_
The program is relatively easy to administer, with a lOcus pI.ccd on aggress.ive public
information (,utreach and speedy fonow up to citizen h-otlinc calls. In most cases, graffiti has
been removed within one to two days, far ledo ... the five day. maximum standu-d set during
the development of the progmn. The quick turnaround has discouraged further acts of
graffiti hyoffende ..... as their tags are removed before oth.,rs C>II read them. palo Ako Ius
also benefited from the halo effect of neighboring Cicy efforts. The successful graffiti
prog,-.ros in both Mountain Y",w and Menlo Park. have h<!tp<d to create a bu.f£et against
offenders coming into Palo Alto from outside the .,-ea.
Fot!Owing is • more &tailed discussitm of each I'r<>gram element:
Removal Measures
G,....ffiti Remov.t on City Property: The program has been able [0 ID.untain an
average two day removal response time. utilizing one Pu'blic Worb DepartfDelJt
t.borer with • modified City van. (Obsc<:n. graffiti is no<mally removed within 24
bows.) Over a ten month p.,jod starting in February 1994, graffIti !us been removed
at 93! sites on City property as iol'lows:
Chart 2
Pqc'oll1
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Tags are either painted ever oc removed using solventS, with an avenge of ~s minutes
per """tion. Some si!es with more stUbborn graffiti can take up to two hours and
require wet blosting. Speedy aggressive ~moval has pcoved to be the most "ffectjve
means to discourage furth", acts of graffiti
latengenq Cooperative Effort:: AJ of December 1994, Public W<><k! Dep=ent
sufI Ius re!"t:rred 211 hocline p-.ffiti calls to other >geodes foe their fonow-up action.
Most of th=.".n, invO:--edJoint Po .... ers Board, Santa d .... Valley Water District
and Sanu O.n Count}' Transpocution Agency pcoperties. Th= agencks have
generally hem sl<lw to respond to p-affiti call .. due to • Ia<k <>f .vaiuM. resources.
In order to pcovide moee timely removals, staff h,. recently developed. master ",cess
agreement .... hich will allo", City crews to ""rer ooto other agell<Oy pcoperty foc
ossisting in p-affiti remoV2l. Assistance will initially be focused 00 chronic groffici
loc.tioos .. xl!. as at the train stations and bus stops. If. permanent anti-graffiti
program is approved by CowJcil. staff pcoposes .hso<bing this additional w"d<load
to the extent that the maximum fiv~ day tu..-n;:roand standard '" not compcomised foe
removals 00 City p<operty.
Voluateer Coordinator. The 3/4 time "oluntoo, coocdin.toc position in the
Community Servic ... Department has managed 19 graffiti removal eyents involving
over 200 members of the community in the Us< year. This rt'p<e5enu m<>«O dun
1.,000 hCAJ.rS of volw;teer service work. Ni exaII'ple of a coordinated group effort was
• on. day event held at Cubberley Community Center, where students removed
p-affiti thougho<,t the f.a1ity. Also, numerous graffiti removal effocts have been
ir..stigated by and through neighborhood groups.
Approximately 300 people have cont<ICted the volunteer ~ram indicating their
c willingness to adopt various areas such as M.tadero and Adobe CreeL, overpasses,
bcidg .. and school sites. Staff is currently identifying appcopriate locations foe
utiliUng the services of these people either in a g''''.lP 0< indi,'idual effort. In
addition. staff }, as negotiated discounts for graffiti removal supplies with five Palo
Aho stores fo< individual volunteers willing to adopt an arM. In the futur .. staff
intends to locus lI1O<e ongoing volunteer efIorts QQ pri V2te pcopen7, utiliUng the
services of businesses, neighborhood associations and sto&enu.
Publk Support/Outreach Measures
City Hotline: The full time hocline coordin.to< position is responsible lor pcoviding
general infocmation about the pcogram, recei''IDg calls Crom the public, initiating
",.,..1. orders, referring removals to oclJer .gencies and p<ivate pcopel"ty owners, and
.... bIishing .daubase of program activi,ies.
. ,
i ,
, Over ~ ten month period starting in February 1994. the hocli"e c<>Ol\liru,oc h ..
responded to 1570 calls from th¢ public, induding 270 request> foe program
Wormatioo. The re=Wtlg 1300 calls involved repoets of graffiti incidents on City.
other ageIk.)' and p<i~te property as follows:
All messages received after regular business h<>urs are ackoowledged by • return caIl
verifying the infocmation and informing tbe caller of the pending action. can.
involving gn.ffici on public property are referred" to C;ry suff foe abate=nt, -,vim ..,
average t".unu<>=d time of two days. Icl"ormatioo. about graffiti on other agency
property is phoned oc faxed to the appropriate contact person in that agency fO<
foIlo ... "p. & indicated previoo.1sIy. Palo Alto penoonel plan to as.<ist the agency in
.b.ting graffiti if it does not cOmpromise removal eff~ on City property_
In situations of printe property. owners are sent • general infOf"IlUtioo. p.unph!et and
letter requesting that r¢pOCted" graffiti be removed". If necessary. follow-op calls are
~ to cUrdy nuintenance responsihi1itie; and opcional removal meth<x!s. Over
150 letters have been sent to private property owners in the last year. provXfulg
adOO on removal udmjques and poss>."ble assistaoce th1"Ough the volunteer program.
Accocarng to Susan Frank, Executive Directoc of the Chamber of Commerce. the
City letter, together with peer p<esrure, bas helped in g"'ting p<operty owners to
respoo<l quickly to graffiti incidents. The Chamber is nO( aware of any compUints
inve>lving long-term gnfflti at busine<..s sit ... nd is supponive of continuing the non
punitive approach taken by the City regarding cle.n up. A. a result, if Council
approve, a permanent program, staff does not recommend pursuing an ocdinance
which would regulate graffiti removal on private property_
'-,;. --
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If Council approves a p"rmanent anci-j;uffici program, staff recommends tb at the
bodine coordinato< .w 'lo!untre, coordinator positions be combined based on an
evaluatlo,., of the overall WOi"kload. This .... ould result in reducing the program
staffing from 2 3/4 posit;oo. to two position, (poe tabo<ec md one botline/volunteer
coordin.toq.
Altho..gb • fun time hctline coo<din.to< was necfiSa.t")" initially to de ,elop public
outreach '" at.rials aM esul>li.b a work «dec and d.,. base sptem, the effort
required to maintain the ongoing program is less. In addition. the success of the
program b .. resulted in decreasing calls needing fo!klw-ul' action. Tbe ."ailable time
can be used in coordinating volunt«< effcrt.s. In fact, having the same position
rerform both duties would be more efficient ';.nce many hocline calls also deal with
volu.."luer related ~ Ouuea<:h publ.ic.tions could be combined under the
position. thereby minimizing ,,""plicate effortS. Hotlin • .w volunteer coordination
activities would be scheduled during the 1O'o<k"ay .w on ",eekeod.. oc evenings,
",,'her.ever required.
Graffiti Remonl T edtni'lllC Brochures: A preliminary h<ocbure was provided to
the volunteers as part of the initial training program. A more comprehensive graffiti
removal handbook and training manual is in £inal draft iocm and is ready for
publK:ation.
Recycled Paints: The use of recycled paint has been limited to less sensitive .. -eas
such as creek chonne! walls. UnfOltUIlatdy, ,ecycled p"int avwable from the City',
Household Hazardous "ill ast. contractoc comes in limited colors and is not suitable
for most sites which are visible to the public. In addition. graffiti often bleeds
through !be p<lint unless two or more C""'.5 are applied, thereby making this • much
more laboe intensive effort. AJ. '''"lIlt, staff doe, nO( recommend recycled paint in
most cases, .. -.d instead, h .. made arrangements with five local paint suppliers to
provide caloe·matched paints at cost to volunteers.
SezLtnts: Staff has enluated the use of sealant coatings on structures to faa1i"t.
graffiti removal and found thot this method is Y.ss efficient and tnO"re costly than
apeL-ted. I" lieu of sealants, staff round that Jes. ci= and materials were needed to
initially paint an entire strUCtUre r..c. and then cover up future tag locations on the
face using the same paint color. By painting over tbe entire wall first, the suh.equent
covecup paint could be colo< m."cbed, thereby eliminating. patchwork appearance.
Staff plans to use this method on highly visible chronic tag sites soch as the
Embarcadero Road aM Alm. Sueer uaderp .. ses, various pump sutions, handball
coutU .w bridge walls..
Pag<' 01"11
-", -,.
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• RemovoJ Kits: Staff is currently developing k;u whldl will include paint supp~
and vulcus paint removal m.teriais. The kits will be distributed to individuals or
groups who h.ve signed up for ~ volunteer program and are trained in ~ ore .. '1<1
use of the materu.ls. Staff has recently completed I training manual for the volunteer
prognm.
Community OutreachlEducatioo: The volunteer coordinator has made
presentotions to neighborhood groups, school facilities and Palo Alto Youth Council
meetings and has developed infonnotion for broadcast on government access
channels. StrlI has al;o .tte:>ded meetings with Mountain V.., .... and Menlo Park to
,hare informatioo and provide coonlin.tion with their respe<:tive gnffiti reDl<)val
p<ograms.
The bodin. coordinator bas distributed approximately 1000 informctional pamphlets
to b"sinesses, City department. and property OWlle~ 10 addition, "wity bill inserts
consisting of pertinent graffiti information were sent to approximately 30,000
households. Another distribution is p!a..'Uled for nen fiscal year.
The Crime Prevention Division of the Polia Department has provided information
on the program at 40 neighbo<hood watch meetings and In security inspectjons.
Letters were also sent to IS businesses; newsletters cootaining graffiti jafonnation
were distn"but..-d to 400 neighborhood block capuins..
Restitution.,..diruance for graffiti removal: InJune 1994. Council adopted. graffiti
removal restitution ordin>.nee. The .,..dinon", .utho,.;.us the use of budgeted City
funds to remove graffiti from City pro:>erty as wen as from the property of other
public ogencies within its jurisdiction. The ordinance additionally authorizes the
City to recover the cost of graffiti removal from the offender or from the parents of
• minor. }., ~ this dat. there have no< been any cases whick have met the restitution
criteria.
Juvenile Diversion Program: Sine< November 1993. the Polk. De;=tment has
arrested 25 people for graffiti offenses including 21 juvem1es md 4 adult.. Of the 2.1
juveniles, one has been processed through the City', in·bouse diversion program and
20 were referred to the County Juvenile Probation Prognm. 10 accordane< with the
Santa aar. County Sentencing Alternatives Program, 1 of those offende" have
performed. total of 200 hours of community service for the City of Palo Ako
painting over gr.ffi<:i on creek waI!s. The ho<line coordinato< is tra<:king frequently
Page •• f II
tagged loc.tions so that [he Polic< Departme.'lt can focus its ongoing surveillance
effortS.
If Cowto1 .pproves a permanent program, follow'.ng Me recommended cbange. from the
L-u! p.-ogram whkh will result in • "",all incre ... in the anti-gnffiti budget. All rost5 are
011 an aonuol b.sis.
PcnonneI/Overtime
• graffiti nm<>val
hot line eoo<dio.to<
volunteer COOid'inator
juvenile diversion o. T.
M.ueriaWSuppoo
paint, paillt remover, hand
tools, safety gear
...IaJ>ts
OUt.reach ID'3te...o1als
• removal kI<s
&;uipmcntNdlli:k
paint spc:ayera.. pressure
:washer" water t~ nc.
veJ..ide m£ntenana
Trial PrQg1JWl
$25,000 (Publk Wocks)
Pcrm;unt Pr~Jam
(mcludes salary' IlL benefits)
$45,>49 (Public Wocks)
22,000 (Public W o<k.» }
23 ,000 (Community Service»
2,000 (poI;ce)
41,265 (Publ" Works)
lS,OOQ (pubfic Works)
~O,OOO (Public Works)
10,000 (pu!>lic Woth)
3,000 (Community Services)
12,000 (Public Works)
~
2,000 (polie<)
21,500 (Public woeksl
o
13,000 {Public Wo<~
3.soo (Public Wocks)
(}
ToulCost $125,000
-MK(Public Works)
S13 1,223
The permanen.t progr.un combin", the hotline and vc>lunteer coo<din<nor functicns into one
. posicion in the Public Wo<ks DepruneD!, thereby reducing the total staffing from 2 3/4 to
2 positions. k also eliminates the use of sealants and instead includes more paint for covering
overlarge surfaces, m.king gr.mti touch up easier. In addition, the program limits the use
of recycled paint to Meas not visihle to the public.
In q,mmary~ staff believes that speedy r~1X>fiSe to incidents and: aggressiv~ enforcement bas
oontain«I the graffiti p.-oblem in Palo Alto. This 00es no< mean that graffiti has gone. way.
bu. rather that the p<ob!em has become m;mageable. In order to continue to convey the
message of City intolerance to graffiti it is recommended that the p<ogram be made
permanent. Experience in other jurisdictions has sho,,'lJ that reducing Of elhr...inating anti--
CMR;U7:9S Pac-e lO of 11
-".: ... -"
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•
• . cnffiti efforts has resulted in • cocres;.onding ina ..... in incidents. Staffing. long-term
program. with p"..rinanent positions p<ovides greater' accountability, consistency and
.... liability in perfonnlng anti-gnffiti t.,\s.
AI TfJ!NATIVES
Altun.tiv .. to miling the pcogram perm.ne!lt include:
I. Continuing to use temporary employees to staff the program
2. Contracting out graffiti related se.rvke<.
FISCAl, IMPACT
The permmenunti-gaffiti pcogr-.m will have an llIl!lual cost of $13 1,218 including S8g ,8 H
foe personnel/overtime. $35,000 fo:: "",,,rials and supplies ""d $4.414 for vehicle
mainter.mce, This is .pproDm>tely $6,000 roo« than thetr'.al program. However, the tou!
Cost of the program should oppropri.tely be financed 80 percent from the General Fund
{$ 104,982} and 20 percent from the Ekctlic Utility Fund ($26,246), based on the Ioc..oon of
graffiti removals over the last year.
, £:SYIKOl'."MENTAL ASSfSSMENT
This program is ei<eriipt from the c.Iiforni. Env'.ronmental Quality Act (CEQA)
STEPS FOr tOWING APPROYAl.
Tbelssue of mal<ing the program permaneDt will be forwarded to the Fmance Comm..'nee
. il$part of the.operating bUdget issues session on April 18. t99j.
AUACHMW!'SIFXlUBITS
December 14, 1994 San J.ose Merrury News article
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WEDNESDAY
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Peninsula
iitw!Iiu"Se[slool-.-l Pain ~J!\l"(v5 IDils ·l~ lilies ll1l~
----M;m M~Mrm1l1afD Uirn'~P;rtl ~!D-" FW'!Bla IJ'AI~
IEO"~-Ci\'.!;m 1:.1rliIs .... !Io~"~_h'_
'CITY SGErl ES \
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EdccationaI fxcel1ence, '.
historic preseP,'ation and "
other ne \1"-5 from W0!g'1y.out
the Perur..suh':! • ' Chasing.'tags'
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P~A efforts wipe outgraffi!i
• Quick action:
Clty, voJui'1t..eers_
stri'.re to mse ~'
tv vandals as
.... , I, ib' q'..!iOOy as POSSl :e.
li't !i()LJ,Y';" EE;",u:a ...... ...,.-:!&.!! .. -
!I: .=1.~tllrll """ <ll.:ll: hJ~
.'\.j~ .... nJ wet"!! SjlOlttt:.'i.,n( .... ~gril.,.
~Ilt ;a lc:othsome pl:o.gw! tila.!
!'i;l.d tlehlle:ro t",~ c!ty: ,va,'!:!i.
n. fP<"'J-~ allIl 1'!="U"~
5<~.-e af <.atLUal:r; Wen' «v""!W~'T. ~~ SoP'S. si'!iel'l'i:ik>,
Q"e.~-n.e,jl,-otlIe.!llSl!"!:neiI.
":!: 1Ie,&i!~ 'IIrI'.il"""~ b!'theeJ
. Bl!': :$U""'~'''' ll:1!5 cr.al""d..
&b XIlS!, ttl<! "t!:JeI>cb.7 ,va."flti
'l"lg~:OIl'" .u t."~ SUTCm Park
IO!WlOOrhood.~" II: Last mo.:u;h.
iii 19S:!.1Ie ... e:'\t ill"", E:l Cami.
~~~~~~~
C5eing !he !ilWfn:l Vlstl:w... ht fIC QI)WV Ft lid _ then.) Bl!t
~tNO!!"d<lf~:hclldit,.~
eli! eJs:J'f1l7.1I.t ml'o1 ~r'! .... .J"l
fII) tleW tagS.
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bWlet. GI"Iffitl ;Sl'I'tgc,~ l101:try:l -,,-Bar l"ab AUli" Gnff:ti J(1In
~'!P.Ient Ptojt"ilII!. Si!\!!R15 = ...
~~Ii)&PCpu!&f~
Ra!;e E$:iar. !SO<)vf!, alCldi'la(Ot
at Il"~ ;r~~:>:lt:.ne ~ ?:alo Ana,
~~!!pS tra.:;' ;;rl ~'<!s ~:ed ~
,::~ ;ramI! r{lrTi:J'Ia! 0f1 a ;naQ.
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Zl'1!!:3 an..r.:l , .. roere me C~
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Two-9t'a~ pian
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MlID""~~.'JI; ?mgrur. 'llrlQI'k:!; ::WQ
ways. F"==, ~'t:Jet: Dotifmo
~'pie an all tr 're;lOn :>e"
,..~. if c'., az. !!tty ;mmerq.
bot ~ <:D<ln:fi.."IlIJllr R...e ~
dispOltChel ~(lm~~M %l:I d~iIIl il
wiUw:t. 4S :b~11ll5 (Il" ~:r.
if me graffiti II: Ilb&ao.l). If it'5
EIP priv~ :;1""' .... _"-=1 ....-iOodl'!:!' (llv
!:rnl!\mt lmIP"..F.J, S\W-I 119 ;:he
Sanu: aan Valley Ware/" IJLf.
tria, sfle 1ICU..'Li!! !!l.! ~''''Ia:r III"
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