School Vandalism And Break-Ins
U.S. Department of JusticeOffice of Community Oriented Policing ServicesProblem-Oriented Guides for PoliceProblem-Specific Guides SeriesNo. 35School Vandalismand Break-Insby Kelly Dedel Johnsonwww.cops.usdoj.gov
Center for Problem-Oriented PolicingGot a Problem? We’ve got answers!www.PopCenter.orgLog onto the Center for Problem-Oriented Policing websiteat www.popcenter.org for a wealth of information to helpyou deal more effectively with crime and disorder in yourcommunity, including: Web-enhanced versions of all currently available Guides Interactive training exercises Online access to research and police practices Online problem analysis moduleDesigned for police and those who work with them toaddress community problems, www.popcenter.org is a greatresource in problem-oriented policing.
Problem-Oriented Guides for PoliceProblem-Specific Guides SeriesGuide No. 35School Vandalism andBreak-InsKelly Dedel JohnsonThis project was supported by cooperative agreement#2003CKWX0087 by the Office of Community Oriented PolicingServices, U.S. Department of Justice. The opinions contained hereinare those of the author(s) and do not necessarily represent theofficial position of the U.S. Department of Justice. References tospecific companies, products, or services should not beconsidered an endorsement of the product by the author or theU.S. Department of Justice. Rather, the references areillustrations to supplement discussion of the issues.www.cops.usdoj.govISBN: 1-932582-51-7August 2005
About the Problem-Specific Guides SeriesAbout the Problem-Specific Guides SeriesThe Problem-Specific Guides summarize knowledge abouthow police can reduce the harm caused by specific crimeand disorder problems. They are guides to prevention andto improving the overall response to incidents, not toinvestigating offenses or handling specific incidents. Theguides are written for police-of whatever rank orassignment-who must address the specific problem theguides cover. The guides will be most useful to officerswho: Understand basic problem-oriented policing principlesand methods. The guides are not primers in problemoriented policing. They deal only briefly with the initialdecision to focus on a particular problem, methods toanalyze the problem, and means to assess the results ofa problem-oriented policing project. They are designedto help police decide how best to analyze and address aproblem they have already identified. (A companionseries of Problem-Solving Tools guides has been producedto aid in various aspects of problem analysis andassessment.) Can look at a problem in depth. Depending on thecomplexity of the problem, you should be prepared tospend perhaps weeks, or even months, analyzing andresponding to it. Carefully studying a problem beforeresponding helps you design the right strategy, one thatis most likely to work in your community. You shouldnot blindly adopt the responses others have used; youmust decide whether they are appropriate to your localsituation. What is true in one place may not be trueelsewhere; what works in one place may not workeverywhere.i
iiSchool Vandalism and Break-Ins Are willing to consider new ways of doing policebusiness. The guides describe responses that otherpolice departments have used or that researchers havetested. While not all of these responses will beappropriate to your particular problem, they should helpgive a broader view of the kinds of things you could do.You may think you cannot implement some of theseresponses in your jurisdiction, but perhaps you can. Inmany places, when police have discovered a moreeffective response, they have succeeded in having lawsand policies changed, improving the response to theproblem. Understand the value and the limits of researchknowledge. For some types of problems, a lot of usefulresearch is available to the police; for other problems,little is available. Accordingly, some guides in this seriessummarize existing research whereas other guidesillustrate the need for more research on that particularproblem. Regardless, research has not provideddefinitive answers to all the questions you might haveabout the problem. The research may help get youstarted in designing your own responses, but it cannottell you exactly what to do. This will depend greatly onthe particular nature of your local problem. In theinterest of keeping the guides readable, not every pieceof relevant research has been cited, nor has every pointbeen attributed to its sources. To have done so wouldhave overwhelmed and distracted the reader. Thereferences listed at the end of each guide are thosedrawn on most heavily; they are not a completebibliography of research on the subject.
About the Problem-Specific Guides Series Are willing to work with others to find effectivesolutions to the problem. The police alone cannotimplement many of the responses discussed in theguides. They must frequently implement them inpartnership with other responsible private and publicentities including other government agencies, nongovernmental organizations, private businesses, publicutilities, community groups, and individual citizens. Aneffective problem-solver must know how to forgegenuine partnerships with others and be prepared toinvest considerable effort in making these partnershipswork. Each guide identifies particular entities in thecommunity with whom police might work to improvethe overall response to that problem. Thorough analysisof problems often reveals that entities other than thepolice are in a stronger position to address problems andthat police ought to shift some greater responsibility tothem to do so.The COPS Office defines community policing as "apolicing philosophy that promotes and supportsorganizational strategies to address the causes and reducethe fear of crime and social disorder through problemsolving tactics and police-community partnerships." Theseguides emphasize problem-solving and police-communitypartnerships in the context of addressing specific publicsafety problems. For the most part, the organizationalstrategies that can facilitate problem-solving and policecommunity partnerships vary considerably and discussionof them is beyond the scope of these guides.These guides have drawn on research findings and policepractices in the United States, the United Kingdom,Canada, Australia, New Zealand, the Netherlands, andScandinavia. Even though laws, customs and policepractices vary from country to country, it is apparent thatiii
ivSchool Vandalism and Break-Insthe police everywhere experience common problems. In aworld that is becoming increasingly interconnected, it isimportant that police be aware of research and successfulpractices beyond the borders of their own countries.The COPS Office and the authors encourage you toprovide feedback on this guide and to report on your ownagency's experiences dealing with a similar problem. Youragency may have effectively addressed a problem usingresponses not considered in these guides and yourexperiences and knowledge could benefit others. Thisinformation will be used to update the guides. If you wishto provide feedback and share your experiences it shouldbe sent via e-mail to cops pubs@usdoj.gov.For more information about problem-oriented policing,visit the Center for Problem-Oriented Policing online atwww.popcenter.org. This website offers free online accessto: the Problem-Specific Guides series, the companion Response Guides and Problem-Solving Toolsseries, instructional information about problem-orientedpolicing and related topics, an interactive training exercise, and online access to important police research and practices.
AcknowledgmentsAcknowledgmentsThe Problem-Oriented Guides for Police are very much acollaborative effort. While each guide has a primaryauthor, other project team members, COPS Office staffand anonymous peer reviewers contributed to each guideby proposing text, recommending research and offeringsuggestions on matters of format and style.The principal project team developing the guide seriescomprised Herman Goldstein, professor emeritus,University of Wisconsin Law School; Ronald V. Clarke,professor of criminal justice, Rutgers University; John E.Eck, professor of criminal justice, University ofCincinnati; Michael S. Scott, clinical assistant professor,University of Wisconsin Law School; Rana Sampson,police consultant, San Diego; and Deborah Lamm Weisel,director of police research, North Carolina StateUniversity.Cynthia Pappas oversaw the project for the COPS Office.Suzanne Fregly edited the guide. Research for the guideswas conducted at the Criminal Justice Library at RutgersUniversity under the direction of Phyllis Schultze.The project team also wishes to acknowledge the membersof the San Diego, National City and Savannah policedepartments who provided feedback on the guides’ formatand style in the early stages of the project, as well as theline police officers, police executives and researchers whopeer reveiwed each guide.v
ContentsContentsAbout the Problem-Specific Guides Series . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . iAcknowledements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . vThe Problem of School Vandalism and Break-Ins . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1Related Problems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1Factors Contributing to School Vandalism and Break-Ins . . . . . . . . . . . . . . . . . . . . . 5Offender Characteristics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5Motivations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7Times . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8Targets . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8Understanding Your Local Problem . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13Asking the Right Questions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13Incidents . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14Targets . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14Offenders . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15Times . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15Community Characteristics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16Current Responses . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16Measuring Your Effectiveness . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17Responses to the Problem of School Vandalism and Break-Ins . . . . . . . . . . . . . . . . . . . . 19General Considerations for an Effective Response Strategy . . . . . . . . . . . . . . . . . . . 19Specific Responses to School Vandalism and Break-Ins . . . . . . . . . . . . . . . . . . . . . . 22Changes to the Physical Environment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22Offender-Focused Responses . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27School Management Practices . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30Community-Focused Responses . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32Responses With Limited Effectiveness . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34Appendix: Summary of Responses to School Vandalism and Break-Ins . . . . . . . . . . . . . . 35Endnotes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43vii
viiiSchool Vandalism and Break-InsReferences . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 47About the Author . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 55Recommended Readings . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 57Other Problem-Oriented Guides for Police . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 61
The Problem of School Vandalism and Break-InsThe Problem of School Vandalism andBreak-InsThis guide addresses school vandalism and break-ins,describing the problem and reviewing the risk factors. Italso discusses the associated problems of school burglariesand arson. The guide then identifies a series of questionsto help you analyze your local problem. Finally, it reviewsresponses to the problem, and what is known about themfrom evaluative research and police practice.The term school vandalism refers to willful or maliciousdamage to school grounds and buildings or furnishingsand equipment. Specific examples include glass breakage,graffiti, and general property destruction. The term schoolbreak-in refers to an unauthorized entry into a schoolbuilding when the school is closed (e.g., after hours, onweekends, on school holidays).Related ProblemsSchool vandalism and break-ins are similar to vandalismand break-ins elsewhere, and some of the responsesdiscussed here may be effective in other settings. However,schools are unique environments; the factors underlyingschool vandalism and break-ins differ from thoseunderlying similar acts elsewhere, and therefore must beanalyzed separately. Related problems not addressed in thisguide include: vandalism in non-school settings; graffiti (see Guide No. 9 in this series); arson; school theft by students (e.g., of student backpacks andwallets);1
2School Vandalism and Break-Ins school theft by staff (e.g., of equipment); burglary of retail establishments (see Guide No. 15 inthis series); and burglary of single-family houses (see Guide No. 18 inthis series).School break-ins typically fall into one of three categories: Nuisance break-ins, in which youth break into a schoolbuilding, seemingly as an end in itself. They cause littleserious damage and usually take nothing of value. Professional break-ins, in which offenders use a high levelof skill to enter the school, break into storage roomscontaining expensive equipment, and remove bulkyitems from the scene. They commit little incidentaldamage and may receive a lot of money for the stolengoods. Malicious break-ins entail significant damage to theschool's interior and may include arson. Offenderssometimes destroy rather than steal items of value.1While school vandalism and break-ins generally comprisemany often-trivial incidents, in the aggregate, they pose aserious problem for schools and communities, and thepolice and fire departments charged with protecting them.Many school fires originate as arson or during an act ofvandalism.2 Though less frequent than other types ofschool vandalism, arson has significant potential to harmstudents and staff. In the United Kingdom in 2000,approximately one-third of school arson fires occurredduring school hours, when students were present, asignificant proportional increase since 1990.3Over the past two decades, concerns about schoolviolence, weapons, drugs, and gangs have eclipsed concern
The Problem of School Vandalism and Break-Insand discussion about school vandalism, its causes, andpossible responses. However, even as concerns aboutstudent and staff safety from violence have become schooladministrators' top priority, vandalism and break-inscontinue to occur regularly and to affect a significantproportion of U.S. schools. From 1996 to 1997, theincidence of murder, suicide, rape, assault with a weapon,and robbery at schools was very low.4 In contrast, overone-third of the nation's 84,000 public schools reported atleast one incident of vandalism, totaling 99,000 separateincidents.5David CorbettGraffiti tagging and other forms of defacement often markschool buildings and grounds.These statistics likely fail to reveal the magnitude of theproblem. While the U.S. Department of Education, majoreducation associations, and national organizations regularlycompile data on school-related violence, weapons, andgang activity, they do not do so regarding schoolvandalism and break-ins. One reason for this may be thatschools define vandalism very differently—some includeboth intentional and accidental damage, some report onlythose incidents that result in an insurance claim, and someinclude only those incidents for which insurance does not3
4School Vandalism and Break-Inscover the costs.6 School administrators may hesitate toreport all cases of vandalism, break-ins, or arson becausethey view some as trivial, or because they fear it willreflect poorly on their management skills.7 Partiallybecause of the failure to report, few perpetrators areapprehended, and even fewer are prosecuted.8The lack of consistency in reporting school vandalism andbreak-ins means that cost estimates are similarly imprecise.Vandalism costs are usually the result of numerous smallincidents, rather than more-serious incidents. Variousestimates reveal that the costs of school vandalism areboth high and increasing.9 In 1970, costs of schoolvandalism in the United States were estimated at 200million, climbing to an estimated 600 million in 1990.10Not only does school vandalism have fiscal consequencesassociated with repairing or replacing damaged or stolenproperty and paying higher insurance premiums if schoolsare not self-insured, but it also takes its toll in terms ofaspects such as difficulties in finding temporaryaccommodations and negative effects on student, staff,and community morale.Not all incidents of vandalism and break-ins have thesame effect on the school environment. Again, two usefuldimensions for understanding the problem's impact are themonetary cost (where the repair charges are high), and thesocial cost (where the event has a significant negativeimpact on student, staff, and community morale). Eventswith high monetary and social costs typically occur lessfrequently than those with low monetary and social costs.11
The Problem of School Vandalism and Break-InsHigh—Social Cost—LowHigh—MoMonetary—LowHigh—netary CCostost—LowType II—Low Social/High Monetaryigh Social/High MonetaryTypeType I—HI—HighSocial/HighMonetaryputerestruction ofedia centeDr, com Destructionof mmediacenter,computerlablabDrdsestruction ofchool reco Destructionof sschoolrecordsVandalism resulting iinn school closure Manybrokenwindows Monetary TypeMany brokenwindowsCherrybomb(s)dropped in toilet(s) Cherrybomb(s)droppedin toilet(s) Vandalism to vendingmachines Vandalism to vending machines Type III—HIII—HighSocial/LowMonetaryTypeigh Social/Low MonetaryHate--motivamotivatedHateted ggraffitiraffiti Gang-r-relatedGangelated ggraffitiraffiti Killing ofof cclassroomanimalsKillinglassroom animals Type IV—LowIV—Low SocSocial/LowMonetaryTypeial/Low MonetaryTurfed schoolschool grounds*grounds*Turfed Tagger** oror conventconventionalgraffitiTagger**ional graffiti One brokenbroken wwindowOneindow Adapted from Vestermark and Blauvelt (1978)*Refers to damage to school grounds caused by vehicles being driven across lawns and fieldsleaving deep tread marks.**Refers to high volume, non-gang graffiti, complex works of street art, and more isolated orspontaneous acts of graffiti.Factors Contributing to School Vandalism and Break-InsUnderstanding the factors that contribute to your problem willhelp you frame your own
The term school vandalism refers to willful or malicious damage to school grounds and buildings or furnishings and equipment. Specific examples include glass breakage, graffiti, and general property destruction. The term school break-in refers to an unauthorized entry into a school building when the school is closed (e.g., after hours, on
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