The purpose of this thesis is to explain how the change of the zero tolerance policy in Stockholm against graffiti has been affected by the different formulations of graffiti as a problem. The purpose is fulfilled by applying a dynamic frameanalysis on the processes of creating and changing the policy. The analysis begins in the 1980s and continues until present time. By using this kind of process study the thesis shows that it was the actions made by the supporters of the zero tolerance-policy which started the changing process. It also shows that the process has not yet ended and the policy is likely to be changed again within the next few years.