Addressing crime and disorder in public places through ... · in public places through planning and...

CIRIA C710 London 2011

Addressing crime and disorder in public places through

planning and designEdited by

L Clarke and A Gilbertson, CIRIA

Classic House, 174–180 Old Street, London EC1V 9BPTel: 020 7549 3300 Fax: 020 7253 0523Email: [email protected] Website: www.ciria.org

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Addressing crime and disorder in public places through planning and design

Summary

Dealing with crime (including terrorism) and disorder in public places is high on the public’s agenda. However, consideration of the complex issues involved may only start when construction is complete and operation starts. At that point, many issues will be considered by operators and facility managers/maintainers. If these issues are considered in the early design stage they can be incorporated into the design.

This guide considers how the issues may be considered at the planning and design stages to assist a successful outcome in operation. The guide also provides easily accessed information about parties to be consulted and notes the complexity and interplay of the issues. Detailed information is provided about the issues and case study examples are included to demonstrate decision making in action.


Clarke, L, Gilbertson, A (eds)

CIRIA

CIRA C710 CIRIA 2011 RP937 ISBN: 978-0-86017-712-8

British Library Cataloguing in Publication Data

A catalogue record is available for this book from the British Library

Keywords

Planning, design, crime and disorder, public places, design process, accessibility, street communities, operational issues, layout, wayfinding and signage, graffiti, Façade, lighting, CCTV and street furniture and planting

Reader interest

Design of public spaces, management and operation of public spaces, crime and disorder management and spatial design.

Classification

AVAILABILITY Unrestricted

CONTENT Planning and design guidance

STATUS Committee-guided

USER Built environment specialists, project promoters, clients, developers, project managers, architects, designers, planners, operators, facility managers, maintainers and other readers

Published by CIRIA, Classic house, 174–180 Old Street, London, EC1V 9BP

This publication is designed to provide accurate and authoritative information on the subject matter covered. It is sold and/or distributed with the understanding that neither the authors nor the publisher is thereby engaged in rendering a specific legal or any other professional service. While every effort has been made to ensure the accuracy and completeness of the publication, no warranty or fitness is provided or implied, and the authors and publisher shall have neither liability nor responsibility to any person or entity with respect to any loss or damage arising from its use.

All rights reserved. No part of this publication may be reproduced or transmitted in any form or by any means, including photocopying and recording, without the written permission of the copyright holder, application for which should be addressed to the publisher. Such written permission must also be obtained before any part of this publication is stored in a retrieval system of any nature.

If you would like to reproduce any of the figures, text or technical information from this or any other CIRIA publication for use in other documents or publications, please contact the Publishing Department for more details on copyright terms and charges

at: [email protected] Tel: 020 7549 3300.

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CIRIA C710

Acknowledgements

EditorsLouise Clarke

Louise Clarke is a researcher with CIRIA and edited this report using material provided by members of the project steering group. Originally from an urban design background, Louise has focused on the sustainable design of public spaces. At CIRIA Louise has worked projects across a range of sustainable issues including sustainable water management, green infrastructure and sustainable procurement. She has a keen interest in the design of public places including on how to incorporate safety measures into the design.

Alan Gilbertson

Alan worked as a designer for Atkins until 2002, since when he has been a consultant to CIRIA. His experience includes multi-discipline working and since the CDM Regulations came into force he has developed an interest in health and safety issues. His work for CIRIA has covered a range of construction topics and has involved people from all sectors of the industry, working together.

Project steering groupFollowing CIRIA’s usual practice, the research project was carried out under contract to CIRIA by Mott MacDonald, and guided by the CIRIA project steering group comprising:

Michael Woods (chair) Rail Safety and Standards Board (RSSB)Luis Belmonte Royal Institute of British Architects (RIBA)Chris Bunyan British Transport Police (BTP)Louise Clarke CIRIAAlan Gilbertson CIRIASteve Harre-Young Loughborough UniversityAlan Hayes AmeyColin Haylock Ryder ArchitectureDavid Leech HaskolJennie Lowe Transport Research Laboratory (TRL)Derek McGovern TfL/LULAdrian Murphy ConsultantTim Pascoe Griffin Research and ConsultancyMartin Skiggs TfL/LULJohn Strutton TfL/LULJerry Woods The Security InstituteMichael Woods Rail Safety and Standards Board (RSSB)

Contributors (main guide)CIRIA thanks the following for their contributions to the guidance text: Luis Belmonte Royal Institute of British Architects (RIBA)Lee Bosher Loughborough UniversityChris Bunyan British Transport Police (BTP)Paul Forman Haskoll Architects & DesignersAlan Gilbertson CIRIAAlan Hayes AmeySteve Harre-Young Loughborough University

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Steve Harrison Transport Research Laboratory (TRL)Colin Haylock Ryder ArchitectureDavid Leech Haskoll Architects & DesignersDerek McGovern LULAdrian Murphy ConsultantTim Pascoe Griffin Research and ConsultancyMartin Skiggs LULJohn Strutton TfLJerry Woods Bristol UniversityMichael Woods Rail Safety and Standards Board (RSSB)

Particular mention should be made of the text contributions from Martin Skiggs, based on his experience at LUL, and the editorial assistance provided by Michael Woods.

Contributors (case studies)CIRIA thanks the following for their contributions to the case studies:

Michael Barnes Birmingham Retail Crime OrganisationLee Bosher Loughborough UniversityAlison Brown ICEAlan Hayes AmeyDerek McGovern TfL/LULTim Pascoe Griffin Research and ConsultancyDavid Ward Lend Lease Group

CIRIA managerCIRIA’s research manager for the project was Alan Gilbertson.

Project fundersThe project was funded by CIRIA Core members, and by special contributions from the Institution of Civil Engineers Research and Development Enabling Fund, the Rail Safety and Standards Board (RSSB), the British Council of Shopping Centres (BCSC) Education Trust and Transport for London (TfL).

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Acronyms and abbreviations

ACPO Association of Chief Police Officers

AEG Anschutz Entertainment Group

AGS Anti-Graffiti Strategy

AGU Anti-Graffiti Unit

ALO Architectural liaison officer

ANPR Automatic number plate reader

BSIA The British Security Industry Association

BSI British Standards Institution.

BTP British Transport Police

CBRN Chemical, biological, radiological and nuclear

CCTV Closed circuit television

CDRPs Crime and Disorder Reduction Partnerships

CIBSE Chartered Institution of Building Services Engineers

CIS Crime Impact Statement

CLG Department of Communities and Local Government

CNI Critical national infrastructure

CPDA Crime prevention design adviser

CPNI Centre for the Protection of National Infrastructure

CPTED Crime prevention through environmental design

CT Counter terrorist

CTMs Counter terrorism measures

CTSA Counter terrorism security advisors

DCLG Department for Communities and Local Government

DfT Department for Transport

DRP Disaster recovery plan

HOSDB The Home Office Scientific Development Branch

IED Improvised explosive device

ICE Institution of Civil Engineers

ILP Institute of lighting professionals

LPAs Local planning authorities

MDL Meridian Delta Ltd

NaCTSO National Counter Terrorism Security Office

ODPM Office of the Deputy Prime Minister

PA Public Address

PAS Planning advisory service

PBIED Person borne improvised explosive device

PIA Personal injury accidents

RSES Register of Security Engineers and Specialists

RSSB Rail Safety and Standards Board

SIA Security Industry Authority

SITO Security Industry Training Organisation

TRANSEC Transport Security Directorate

VBIED Vehicle borne improvised explosive device

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Contents

Summary ii

Acknowledgements iii

Acronyms and abbreviations v

Figures viii

Tables ix

PART 1 Overview 1

1 About this guidance 3

1.1 Scope 31.2 How to use this guidance 3

2 Understanding the complexity and interplay of the issues and the design response 4

2.1 Crime and disorder issues 42.2 Planning and design response – context and topics 42.3 Interplay of issues 62.4 The effect of human behaviour 72.5 The “user population” 82.6 Key issues for planners and designers 8

3 The planning and design process – and who to consult 9

3.1 The planning and design process 93.2 Urban design – context 93.3 Planning approval and statutory requirements 93.4 Advice and consultation 103.5 Crime and Disorder Reduction Partnerships (CDRPs) 123.6 Design and access statements/Crime Impact Statements (CISs) 133.7 Designing out crime and Secured by design 143.8 “Crowded places” 14

PART 2 Topic guidance 15

4 Accessibility 17

4.1 Introduction 174.2 Car parking issues 174.3 Pedestrian routes in the public realm 194.4 Access to a public facility 204.5 Circulation within a public space 214.6 Emergency evacuation 224.7 Inclusive design 22

5 Street communities 24

5.1 An introduction to street communities 245.2 Rough sleepers 245.3 Youths 255.4 Alcohol 255.5 Pubs and clubs 26

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6 Counter-terrorism 27

6.1 Counter-terrorism 276.2 The threat 276.3 Principles, approaches and measures 286.4 Matters for consideration 296.5 Planning and counter-terrorism 29

7 Operational issues 31

7.1 Involving the operational team 317.2 Operational issues 317.3 Security 317.4 Fire controls and evacuation 357.5 Contingency planning/disaster recovery/business continuity 357.6 Housekeeping 367.7 Creating an environment that can be maintained 36

8 Layout 38

8.1 Influencingfactors 388.2 Space 388.3 Place 388.4 Security 408.5 Operational controls 408.6 Maintenance 408.7 Planning ahead 40

9 Wayfindingandsignage 42

9.1 Introduction 429.2 Wayfinding 429.3 Signage 42

10 Graffiti 44

10.1 Thegraffitiissue 4410.2 Reducingtheriskofgraffiti 4410.3 Selection of materials for buildings 4510.4 Anti-graffiticoatings 4510.5 Design elements 45

11 Façades and interfaces 47

11.1 Types of façade 4711.2 Open fronted buildings 4911.3 Surfacefinishes 4911.4 Accommodation of equipment and its wiring 50

12 Paved surfaces 51

12.1 The importance of surface selection 5112.2 Factors affecting surface selection 5112.3 Reducing the risk of slipping and tripping 5212.4 Maintenance 52

13 Lighting 53

13.1 The importance of lighting 5313.2 Lighting systems – issues to consider 5413.3 Whole-life 55

14 CCTV 56

14.1 Overview 5614.2 Particular issues 57

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15 Street furniture and planting 59

15.1 Introduction 5915.2 General points 5915.3 Planting 5915.4 Devices to protect from vehicle intrusion 5915.5 Other street features 60

PART 3 Case studies 61

Case study 1 Greenwich Peninsula: delivering a safe and secure new part of London 62

Case study 2 Euston Station 64

Case study 3 Britannia Mills 65

Case study 4 Hulme Park 66

Case study 5 Birmingham Heartlands Hospital 67

Case study 6 Emirates Stadium 68

Case study 7 Marcham Youth Shelter 69

Casestudy8 TransformingBirminghamthroughtheAnti-GraffitiStrategy 70

Casestudy9 SheffieldGraffitiCharter 72

Case study 10 A decommissioned electrical sub-station 73

Case study 11 West Street, Glasgow 74

Case study 12 Woodside Viaduct 75

References 76

Statutes 81

Acts 81British Standards 81

Useful websites 82

Figures

Figure 2.1 Demonstrating the planning and design response context 4

Figure 2.2 People appreciate a high-quality environment that is well- cared for and clean 8

Figure 3.1 The aim is to create places that are safe, attractive and enjoyable 10

Figure 4.1 Dark alley 18

Figure 4.2 Poorly lit car park with overgrown hedges that can be hidden behind. Imagine leaving the surgery (left) late in the evening in December 18

Figure 4.3 Better lit car park. Note that this well maintained car park has better lighting, with sensible landscaping and plenty of natural surveillance 19

Figure 4.4 Hainault Underground station with “green-on-green” highlighting/manifestation on the columns. Note the tactile paving behind the nosing stones 20

Figure 4.5 The new entrance to St Pancras International Station with bollards, planters, a glazedscreenatlowlevel,welldesignedstreetlightingandwithflataccess 21

Figure 5.1 Rough sleepers need some form of shelter to survive on the street 25

Figure 5.2 Over consumption of alcohol can lead to personal harm or injury 26

Figure 6.1 Installing a static barrier system can protect against terrorist attack 28

Figure 7.1 Basic entry control 32

Figure 7.2 Graph showing the relative costs of security measures for different types of facility 32

Figure 7.3 Bollards are used as a protection measure in front of this public building 33

Figure 7.4 Vehicle barrier with integral pedestrian control. Note this barrier could be rammed and would not stop a moving vehicle 34

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Figure 7.5 Bollards help protect this public building 34

Figure 7.6 Good housekeeping is important – regular litter picks will prevent a build-up of rubbish 36

Figure 8.1 Adequate space can help with movement of people and crowds 38

Figure 8.2 Green walls help to create a sense of place and are an attractive feature 39

Figure10.1 Thisunattendedpropertywasatargetforgraffiti 44

Figure10.2 Designelementscanbemadeacceptableforgraffiti 46

Figure 10.3 The wall has become a site for “tagging” 46

Figure 11.1 Design elements including glass on ledges can prevent pigeon infestation and damage to buildings 48

Figure 11.3 PAS 68 Bollards in front of a major station 50

Figure 12.1 Floor surface selection needs to be carefully considered before construction 51

Figure 12.2 On outside surfaces such as pavements, it is important that they are regularly checked because paving slabs can become lose and cause trips or falls 52

Figure13.1 Effectivestationlightingcanhelpreducecrimeandincreasepassengerconfidence 53

Figure 13.2 A clear shadow free area under good lighting 55

Figure 14.1 CCTV at a shopping centre 56

Figure 14.2 CCTV can provide security and help to prevent crime 57

Figure 15.1 The “Bull” outside the Bullring 60

Tables

Table 2.1 Matrix of issues against planning and design response topics 7

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CIRIA C710

PART 1 Overview

1 About this guidance

2 Understanding the complexity and interplay of the issues and the design response

3 The planning and design process – and who to consult

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CIRIA C710

1 About this guidance

1.1 Scope

The main aim of this guide is to provide advice about the design and planning issues that arise from the area of “crime and disorder”. It is primarily aimed at planners, architects and other designers responsible for planning and designing the external built environment.

1.2 How to use this guidance

As Chapter 2 explains, the issues involved in this subject are many, complex and inter-related.

This guide is divided into three parts:

Part 1: explains how the issues may be addressed in a comprehensive manner and explores their complexity. The information given will enable all stakeholders to gain an understanding of the subject and of the issues that need to be addressed at an early stage in a project.

Part 2: gives more information about particular topics, exploring the issues in greater depth and providing advice on where to go for more detailed information.

Part 3: demonstrates, through case studies, examples of the issues and the approach taken on particular projects.

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2 Understanding the complexity and interplay of the issues and the design response

2.1 Crime and disorder issues

There are several issues that need to be addressed:

XX human perceptions: how people perceive their personal safety and security, and that of others

XX security from theft: protection of people from being robbed in one way or another

XX security from personal harm: protection from risk of being harmed in small-scale violence

XX security from terrorism: protection of people from risk of being harmed in major violence

XX security from gangs/mobs: protection from risk of public disorder

XX crowd movement: the need to cater for safe gatherings and movements of large numbers of people (ie mass transit passengers, events, fire, evacuations etc)

XX vandalism and graffiti: destructive and defacing activity

XX physical damage: to buildings and other elements of the built environment.

2.2 Planning and design response – context and topics

Different elements and factors need considering in the design of safe, secure and pleasant environments. There are many complex issues and a range of stakeholders who need consulting to ensure all these factors are considered at the design stage.

There is also a context for each project that should be taken into account. Figure 2.1 highlights how the contextual factors interconnect.

Figure 2.1 Demonstrating the planning and design response context (courtesy Alan Hayes)

Local area social and user characteristics

Stakeholder and resource engagement

Localarealayoutinfluences

Physical design features

Operational management regime

Addressing crime and

disorder through planning and

design

Fiscal and political environment

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CIRIA C710

Within this context are many practical matters that need to be considered: these topics are outlined as follows. More detailed information is provided in Part 3 of this guide. The order of the topics that are discussed is intended to work from the general to the specific.

Accessibility

Although not a crime and disorder issue most of the topics that are discussed will need to consider the implications of the decisions made for them to affect accessibility.

“Street communities”

“Street communities” is jargon for types of people who cannot easily be excluded from public spaces but whose behaviour can be perceived by the general public to affect their security. The term includes vagrants and groups of youths. It is inherent that in the design of public spaces there is a need to consider and even cater for street communities.

Counter terrorism

Each situation will present different concerns and challenges but consideration of terrorism issues will affect many aspects of the design process including selection of façade materials and the provision of vehicle barriers.

Operational issues

The intended approach to site management (encompassing the approach to patrolling, visibility, response, police liaison, help desk, control room and other support facilities) is an integral part of the design and should not be left until the design is completed as it will affect the decisions made and the effectiveness of the management.

Layout

The layout, ie how everything fits together, needs to be planned well as it is normally difficult to change it later. The requirements may not be immediately apparent, and only when the different issues have been addressed will all the influences start to be identified.

The issue of natural surveillance (ie the oversight of a public area by people in nearby buildings, which significantly improves the chance of crime being witnessed by other people) is particularly significant in design as it reduces crime and the fear of crime.

Compromises will need to be made, but if they are made consciously then there will be fewer surprises and counter-measures can be taken. Layout planning should always provide flexibility for the future as far as is practical.

Wayfinding and signage

Although signage can be complex with different signs competing for the same space, there are ways to provide good, visible information without a confusing clutter of signs. All signage should be part of a consistent strategy for an area providing clarity for everyone, particularly disabled people and casual visitors.

Graffiti

Graffiti is a major operational issue that is affected both by the selection of façade and wall surfaces and by layout.

Façades and interfaces

The selection of façade materials and glazing materials is extremely complex and requires that the design scenarios are developed to a point where the performance specifications can be prepared, to assist decision making. Apart from the physical requirements the provision of adequate oversight of spaces from nearby buildings is important.

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The design of a modern façade should take account of both initial and potential later impacts from the use of façades to accommodate lighting, CCTV, signage etc. Apart from the methods of mounting, there will also be requirements for the accommodation of power and control cabling.

As well as public space/property interfaces, there may be a requirement to provide (or provide for) barriers and gates. Policy about the degree of openness of all (or parts) of the space may affect day-to-day site management, special events or police requirements in planning for crowd control. In addition to permanent barriers and gates, consideration may be given to the provision of gates to close off particular lanes or entrances, or sockets to help the erection of security fencing to manage particular events.

Walking surfaces

Paving is a major spend item both at first-build and during maintenance. It also has a major effect on many issues including slips, trips and falls, so it cannot be selected only on aesthetic and cost grounds.

Steps and slopes need to be carefully thought through because they create trip hazards and present particular risks during movement of crowds.

Lighting

The use of effective but economic, sustainable lighting is important for all issues and appropriate levels of lighting should be planned into the design.

CCTV

In the UK CCTV is now an important aspect of site management and police activity. It is a fast developing area both in terms of technology, cost and operational application.

Street furniture

Street furniture should be consistently and carefully selected and located, and not just placed as an afterthought. As well as meeting needs it can create problems such as creating hazards for visually impaired people and obstructing free movement generally.

The use of planting influences many of the issues and also aspects of operation. It should be carefully designed from the start and the necessary infrastructure provided. Creative use of planting can have surprisingly beneficial effects, provided that the need for and cost of maintenance is minimised.

The incorporation of features such as artwork or advertising should be controlled as part of the planning and design process and their potential effect on each of the issues needs to be thought through to ensure that the apparent benefits are not outweighed by inadvertently created problems such as disruption to crowd movements.

2.3 Interplay of issues

Likewise there are several topics to be addressed in preparing a planning and design response for a project. Table 2.1 shows how each aspect of the planning and design response has to take account of these issues, each is also affected by other aspects of the planning and design response. The planning and design process is inevitably complex and requires that all aspects are considered “as a whole”, ie that a comprehensive approach is taken.

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CIRIA C710

Table 2.1 Matrix of issues against planning and design response topics

Issues

Planning and design response topics H

uman

pe

rcep

tion

Secu

rity,

thef

t

Secu

rity,

pe

rson

al

safe

ty

Secu

rity,

te

rror

ism

Secu

rity,

m

obs

Crow

d m

ovem

ent

Vand

alis

m

andgraffiti

Phys

ical

da

mag

e

Mai

nten

ance

Accessibility Yes Yes Yes Yes Yes Yes

Street communities Yes Yes Yes Yes

Counter terrorism Yes Yes Yes Yes

Operational issues Yes Yes Yes Yes Yes Yes Yes Yes Yes

Layout Yes Yes Yes Yes Yes Yes Yes Yes

Wayfindingandsignage Yes Yes Yes Yes Yes Yes

Graffiti Yes Yes Yes Yes

Façade and interfaces Yes Yes Yes Yes Yes Yes Yes Yes

Walking surfaces Yes Yes Yes Yes

Lighting Yes Yes Yes Yes Yes Yes Yes

CCTV Yes Yes Yes Yes Yes Yes Yes Yes Yes

Street furniture and planting Yes Yes Yes Yes Yes Yes

2.4 The effect of human behaviour

There are many aspects of human behaviour that affect the subject of crime and disorder. In this section, some observed patterns of human behaviour are discussed. This guidance is based on the knowledge and experience of the project steering group.

Issues that have been noted include:

XX people appreciate and have a greater respect for a high-quality environment that gives them the right signals such as being:

XZ aesthetically pleasingXZ well-cared for and clean, with rubbish regularly removedXZ well-lit at nightXZ enhanced by well-maintained natural features such as grass and treesXZ not “tagged” (ie a graffiti writers’ signature) or covered in graffitiXZ an environment where others are well-behaved and not threatening

XX behaviour is to some extent influenced by whether a space is “public”, “private” or “owned” and by how the space is perceived. Behaviour in spaces that are private/owned is generally better, particularly if there is natural surveillance

XX deterioration in the quality of an environment will give the impression that a place has been neglected and where anti-social behaviour, casual vandalism or graffiti is acceptable

XX as a general rule, all types of potential offenders are less confident when they think they are being watched by other people (and to some extent, by CCTV). Similarly the general public feel safer when they believe that others are watching what is happening (ie providing “oversight”)

XX some groups of young people will congregate in an area where they can socialise, preferably out of the rain and with minimal oversight

XX vagrants will seek warmth and flat sleeping surfaces out of the rain

XX commuters and tourists will remain in pleasant surroundings with “grazing” facilities, improving the amount of natural surveillance.

The provision of natural surveillance by others is a particularly important issue and one that in some areas (such as car-parks and toilet facilities, and the routes to and from them) provides a particular challenge to planners and designers.

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Figure 2.2 People appreciate a high-quality environment that is well- cared for and clean (courtesy Tim Pascoe)

2.5 The “user population”

The types of users who need to be considered for a particular public place are difficult to define or restrict. Different groups will be involved at different times and the mix may change with time. So, usually all types of possible users need to be considered. This will include families, children, the elderly, disabled people and also the “less desirable” categories. The needs and activities of all of these groups need to be considered where appropriate. An assessment has to be made of the mix likely to be present at the particular site, but unless there is full control of entry all types of “users” will be there to some degree.

There may be opportunities to supplement the mix of users by attracting other users, for example by incorporating entertainment venues, restaurants or nightclubs. While this will increase the footfall and provide more natural surveillance, there may be disadvantages that need to be considered, for example, facilities that might be in use when the main uses are closed down (the “night-time economy”) will need to be carefully located, probably near a main access or egress point.

There may also be an opportunity to incorporate a resident population, who will provide an element of oversight 24/7. The user population may change over time as new communities move into the area. The site will need to adapt to these changes, so the design should consider the potential future needs.

2.6 Key issues for planners and designers

To make valid, robust decisions, all of the interactions have to be considered at an early stage, or decisions will be made “by default”. Guidance by Rowe and Ancliffe (2008) notes that public spaces attracting large crowds require careful design and planning for the operation stages to reduce crime and advises early-stage intervention.

When all of these complex issues and their relationships are addressed, a safer, more ordered environment should be achieved.

Key messages:

XX crime and disorder issues need to be addressed from the start of a project

XX an holistic approach is required because the issues are interwoven and complex, as indicated by Figures 2.1 and 2.2

XX to make valid, robust decisions, interactions have to be considered at an early stage, or decisions will be made “by default”

XX generic approaches are not possible. There will be features at each site that make it unique, so thedesignneedstobesitespecific.Inrespondingto the issues raised, the response should be proportional to the situation at the site under consideration

XX it is important that the planning and design of future operation and maintenance activity is embedded in the overall planning and design process.

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