SR-701-011Santa Monica, California
February 8, 2000
To: Mayor and City Council
From: City Staff
Subject: Report on the Santa Monica Police Department's Traffic Enforcement
Programs and Recommendation to Initiate an Automated Red-Light
Enforcement Program.
Introduction
This report provides the City Council with information on the deployment of officers
assigned to motorcycle patrol, including a historical perspective, current staffing, and a
comparison with other cities. The report also provides information on the
Department's traffic enforcement program, historical data on traffic collisions and traffic
citations, and future staffing plans. Finally, it recommends initiation of a pilot
automated red-light enforcement program and a related staffing addition.
Backqround
The number of officers assigned to traffic-specific duties and motorcycle patrol has
varied widely over the past 50 years as indicated below:
1951: There were 14 motor officers deployed.
1975: There were two motor officers in service. The unit was disbanded the
same year.
1975 - 1985: There were no motorcycle officers and no designated traffic unit.
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• 1985: As a result of a state grant, motors were reactivated. There
were 6 officers and 1 sergeant.
1992: The Department was reorganized and the following
developments occurred:
• A Traffic Division was established within the newly created Office of
Special Enforcement. The Motorcycle Enforcement Section was
established as a part of the division. There were 6 motorcycle officers
and 1 sergeant.
• A full-time commercial enforcement officer was assigned, relieving
motor officers of commercial enforcement responsibility so they could
concentrate solely on traffic enforcement and high-accident areas.
• Community Service Officers (CSOs) were given extensive responsibility
with respect to traffic collision investigations freeing sworn officers for
priority assignments. Both officers and CSOs are now capable of
conducting and documenting collision investigations.
• The Major Accident Response Team (MART) was formed as a critical
response team for serious and fatal collisions. There are 5 officers, 1
sergeant and 1 lieutenant assigned to investigate these incidents as a
collateral duty, that is, existing staff receives specialized training and
responds when an incident occurs.
1995: A police officer was added to the Traffic Section to work
full-time as a traffic collision investigator.
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• 1999: There are now 1 lieutenant, 1 motorcycle sergeant, 6
motorcycle officers, 1 commercial enforcement officer, and 1 traffic collision
investigator assigned to the Traffic Division, in addition to personnel
assigned to the Division's Parking Control and Crossing Guard Sections.
A collateral-duty, supplemental traffic enforcement team was formed and
deployed to increase the Department's emphasis on pedestrian and
motorist safety. This team consists of 4 sergeants and 3 officers, with prior
motorcycle enforcement experience, who are regularly assigned to other
units, but who have been trained and equipped to provide supplemental
traffic enforcement services on a part-time basis.
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A Comaarison With Other Cities
The staffing of Police Department's Motorcycle Section was compared with the staffing
in fifteen other cities including Huntington Beach, Glendale, Inglewood, Whittier,
Torrance, Pasadena, EI Monte, Alhambra, Lancaster, Garden Grove, West Hollywood,
Beverly Hills, Los Angeles, Culver City, and Palm Springs. These cities were selected
for comparative purposes based upon per capita pedestrian fatality rates for 1997, the
latest year for which state-collected collision data is available. Included are six cities
which Santa Monica regularly uses for comparison purposes. All are fully developed
cities, and all but one, Palm Springs, are part of major metropolitan areas having
significant traffic volumes. Compared to Santa Monica, seven of the fifteen cities
showed lower pedestrian fatality rates, seven cities had higher rates, and Alhambra's
was identical.
In order to create a basis for comparison, staffing levels were indexed according to the
number of square miles patrolled. Santa Monica's staffing level is .84 motorcycle
officers per square mile, the fifth highest of the 16 cities. Palm Springs was the lowest
at .07 motorcycle officers per square mile and West Hollywood, which contracts for
service with the Los Angeles County Sheriff's Department, was the highest at 3.16
motorcycle officers per square mile. The comparison indicated that motorcycle section
staffing levels in the sample cities are not significantly correlated with square miles
patrolled, residential population, or the number of pedestrian fatalities.
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The Santa Monica Police Department is fairly unique in that its core motorcycle staff is
dedicated solely to traffic enforcement. In most of the jurisdictions contacted, the
officers were also responsible for handling traffic collision reports/investigations and
other duties currently handled in Santa Monica by Community Service Officers.
Enforcement in Santa Monica
Over the past decade, the average number of officers assigned to the Motorcycle
Enforcement Section ranged from as few as 4.4 officers to as many as 6.9. 1992
reflected the lowest average number of officers assigned with 4.4; 1994 had the highest
average with 6.9 officers. The average for 1998 was 5.6 and 5.5 for 1999. These
figures include the sergeant, but do not include those officers assigned collision
investigation or commercial enforcement responsibilities. When the collateral-duty
motorcycle officers are deployed, they provide additional enforcement coverage.
The Motorcycle Enforcement Section provides enforcement coverage seven days per
week. The coverage hours on weekdays are 5:30 a.m. - 7 p.m.; weekend coverage is
9 a.m. - 7 p.m. This coverage remains in effect through the summer and fall.
Participation in the Pacific Coast Highway Corridor Grant with the California Highway
Patrol provides additional weekend enforcement hours. Based upon a recent review
of the peak activity periods on the highway, additional enforcement hours will be
provided between 10 a.m. and 8 p.m. on Saturdays and Sundays.
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To provide high-visibility enforcement within existing staffing allocations, 250 additional
traffic enforcement hours per month are provided by collateral motorcycle patrol officers.
The collateral duty enforcement team supplements the full-time Motorcycle
Enforcement Section by emphasizing those violations which have a direct correlation to
enhanced pedestrian safety. This supplemental enforcement is provided weekly with
the goal of reducing the incidents of collisions involving pedestrians. Enforcement
efforts are directed toward those areas having a high incidence of pedestrian-related
collisions or which are potentially problematic. During the first quarter of FY 1999/00,
the collateral duty Supplemental Traffic Enforcement Program (STEP) generated a total
of 413 citations, of which approximately 63% were for hazardous violations.
In three of the four fatal auto-pedestrian collisions which occurred in Santa Monica in
1996, the investigators concluded, based upon evidence and witness statements, that
pedestrians were at fault or contributed to the collision (as a result of red-light or
jaywalking violations). The fourth was a hit and run with excessive speed as a likely
contributing factor. In the only pedestrian fatality of 1997, an intoxicated pedestrian
(.22% blood-alcohol content) ran along the side of a City bus trying to catch it as it
pulled away. The pedestrian slipped and slid under the bus. Of the nine traffic-related
fatalities (includes traffic collisions of all types) which occurred in 1998, four involved
pedestrians who were found to be at fault or whose actions were determined to be
significant causal factors in the resulting collisions. In 1999, there were three traffic
fatalities. In all three instances, pedestrians were involved. In two of the three
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incidents, the pedestrian was determined to be at fault; in the remaining incident, the
pedestrian's actions significantly contributed to the collision. In our efforts to prevent
auto-pedestrian collisions, it is important to remember pedestrian education and rules
enforcement are equally as important as vehicular enforcement in the prevention of
such collisions.
The Police Department interfaces with the City's Traffic and Engineering Divisions
regarding speed surveys, signage needs, traffic collision information, and other
operational information. Staff interacts with CalTrans on traffic matters affecting the
several State Routes which traverse the City. They network with other law
enforcement agencies which serve as resources for directed enforcement needs. The
Department is represented at the Traffic Committee Meetings sponsored by the Peace
Officers' Association of Los Angeles County, the Santa Monica Chamber of Commerce,
and the Pacific Coast Highway Task Force headed by Assembly Member Sheila Kuehl.
As a result of this networking, the Santa Monica Police Department received $20,000 in
grant funding from the California Office of Traffic Safety (OTS), via the California
Highway Patrol (CHP), to supplement enforcement efforts on Pacific Coast Highway
with the goal of decreasing traffic collisions by 15%. During the first quarter of
program operation, 524 citations have been issued and 46 vehicles were impounded as
a result of drivers' license violations.
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Additionally, a minimum of $240,000 of OTS grant funding has been approved for the
Santa Monica Police Department to support a Motorist Awareness Program targeting
unlicensed drivers or those who are driving on suspended or revoked licenses. Once
final details have been negotiated, staff will return to council for acceptance of the grant
and approval of its terms.
The Department has been identified as eligible to receive $4,000 in grant funding from
the California Office of Traffic Safety, via the Department of Alcohol Beverage Control
(ABC), to facilitate the implementation of a traffic safety education program geared
toward high school aged youth. The program, entitled "Every 15 Minutes," emphasizes
the consequences of irresponsible decision making while stressing traffic safety.
Program implementation will occur in the final quarter of FY 1999/00.
Police Department personnel are also working closely with other City departments to
ensure pedestrian safety is promoted through a variety of education means. This has
included active participation on both the "Slow Down Santa Monica" and the "Let's
Watch Out for Each Other" traffic safety campaigns, as well as distribution of pedestrian
and motorist safety information at the PCH Traffic Safety Expo, held in September.
Measurinq Success
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The Traffic Section uses cumulative enforcement hours, traffic safety educational hours,
and traffic collision data as performance measures. Because enforcement efforts are
targeted to high-collision locations, as well as high-risk intersections and thoroughfares,
it is possible to track program emphasis and devote resources more effectively. The
Division=s performance target for FY 1999/00 is the dedication of 13,065 hours to
enforcement efforts and 210 hours to the provision of traffic-safety education.
Together these activities will require the equivalent of 9.7 FTE of motorcycle
enforcement officer time, as explained below. This contrasts with 5,814 hours of
enforcement (the equivalent of 4.2 FTE of officer time) provided in FY 1998/99.
The enforcement and education target hours presume that, of the 2,080 hours
budgeted for each permanently assigned Traffic Division motorcycle enforcement
officer, the officer is, on average, available for duty 81.4% of the time, or 1,693 hours
per year due to the taking of various types of leave. An additional 9.8%, or 204 hours
per year, is used for court appearances and 5.7%, or 119 hours is used for other
miscellaneous activities, including vehicle repair, maintenance, and service. This
leaves a balance of 1,370 hours per officer per year for enforcement and education
activity. It is expected that each officer will dedicate 28 hours to traffic safety
education and the other 1,342 hours to enforcement activities. The Supplemental
Traffic Enforcement Program's (STEP) officers will provide 3,000 of the target
enforcement hours in FY 1999/00.
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The Transportation Management Division estimates that daily traffic volume has
increased by an average of 2% per year since 1987. Nevertheless, between 1985
and 1998, the number of collisions resulting in injury has declined by almost 46%, from
730 to 395. In 1985, 88% of pedestrian-related collisions involved an injury, while in
1998, only 61 % resulted in injury. The total number of fatal traffic collisions (collisions
of all types) has ranged from as many as 15 in 1988 to as few as two in 1997. There
were seven traffic- related fatalities in 1998 and three in 1999. The number of
pedestrian fatalities ranged from as many as five in 1994 to as few as one in 1997;
there were two such fatalities in 1998 and three in 1999. Total traffic accidents have
declined 36.5% and automobile vs. pedestrian collisions have increased 8.9% since
1985. A comparison of 1998 with 1999 automobile vs. pedestrian collision figures,
shows a 20% decrease (from 126 to 101) through December 1999. Although overall
traffic volume has increased steadily, we have witnessed a steady decrease in the
number of traffic collisions.
Traffic citation data was not maintained by the Santa Monica Police Department prior to
1994. In the five years for which data is available, the total number of citations issued
ranged from 14,407 in 1994 to 19,913 in 1997; there were 15,741 traffic citations issued
in 1998. In 1999, the Police Department issued 18,549 traffic citations. Traffic
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citations for hazardous moving violations ranged from 9,200 in 1994 to 15,868 in 1997;
there were 12,483 traffic cites issued for hazardous moving violations in 1998.
Experience shows that there is not a direct and proportional numerical or percentage
correlation between citations issued and traffic accidents occurring on a citywide basis.
A desirable result would be a negative correlation (i.e., as the number of citations
issued increased, the number of traffic accidents decreased). However, comparing
citation and collision data between 1994 and 1997 (the low and high citation years) fails
to produce a statistically significant result. From 1994 to 1997, traffic citations in
general increased 38.2% and citations for hazardous moving violations increased
72.5%. During the same period, traffic collisions declined 1.6% and pedestrian
accidents fell 7.2%.
Future Staffinq Plans
In the first quarter of FY1999/00, the Traffic Section trained and equipped, for traffic
enforcement duty, two officers assigned to currently budgeted motorcycle enforcement
officer positions. During the second quarter of FY1999/00, two police officers who are
to be transferred to the Traffic Section and the Traffic Division lieutenant attended
motorcycle training. One additional officer, who is also being transferred to the Traffic
Section, is slated to receive motorcycle enforcement officer training during the third
quarter. Upon completion of all mandated training, the Traffic Section will have ten
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motorcycle officers, one motorcycle sergeant, and the Traffic Division lieutenant
available for traffic enforcement duties. The Commercial Enforcement Officer and
the Traffic Collision Investigator will perform traffic enforcement duties on an
as-available basis. The full contingent of eleven (ten officers and one sergeant)
regularly assigned motorcycle enforcement officers will be deployed when the
Department reaches full staffing and all new police officer trainees have completed
academy training. This should occur by June of 2000.
Automated Red-Liqht Photo Enforcement Proqrams
Red-light violations contribute substantially to the one million motor vehicle collisions
that occur nationally each year. Research supports the theory that red-light violations
are among the most frequent causes of traffic collisions in metropolitan areas.
Motorists and pedestrians are more likely to be injured in collisions involving red-light
violations than in other types of collisions.
Automated red-light enforcement programs have proven effective in accident reduction.
A national public opinion survey on the subject of automated red-light enforcement
revealed a 61 % favorable response. The majority of the public can readily identify with
the dangers inherent in red-light violations. Where photo enforcement detection
systems are in use, there have been significant and measurable results in terms of
increased motorist awareness and reductions in the number of red-light violations at
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targeted intersections. When the system is in place, heightened public awareness
results in increased compliance with intersection controls, even at neighboring
unmonitored intersections. In Santa Monica, red-light violations accounted for 9% of
all traffic citations written in 1997 and 8% of those written in 1998. Of the 18,549
traffic citations written in 1999, 8.4% were issued for red-light violations. A comparison
of traffic citations written in 1998 and 1999 shows a 19.5% increase in the number of
red-light violations (1,311 in 1998 and 1,566 in 1999). Of all traffic collisions which
occurred in both 1997 and 1998, 7% were caused by red-light violations. Of the 1,573
traffic collisions reported through October 1999, approximately 7% were caused by
red-light violations; data for the remaining two months of 1999 was not available.
The use of automated enforcement technology in the enforcement of red-light violations
was authorized under California law effective January 1996. Currently, the Cities of
Beverly Hills, Culver City, EI Cajon, Irvine, Los Angeles, Oxnard, Poway, San Francisco,
Santa Rosa, West Hollywood, and the Los Angeles Metropolitan Transit Authority
(LAMTA) use a system of photo enforcement.
With an increasing number of municipalities expressing interest in automated red-light
enforcement, the number of companies providing these services has increased.
Several packaging and financing options are available. The program's cost is
recovered through the revenue generated from fines paid by red-light violators. Cities
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receive approximately 89% of the fines for all traffic violations and a percentage of the
fines paid by those who attend traffic school. The fine for a red-light violation is $271.
With Council's conceptual approval, City staff would competitively select a vendor and
implement a 3-year pilot program to assess the effectiveness of the photo enforcement
technology in Santa Monica. A 3-year commitment is required to assess appropriate
locations, install equipment, and recoup the vendor's initial costs. As mandated by
law, a public awareness campaign would be organized and carried out before
enforcement would begin. The pilot program would consist of camera installations at
three selected intersections. Every 6 months, the system would be assessed and
program adjustments or expansion could be effected.
Based on the experience of the cities now using red-light enforcement, implementation
of the program will require assignment of a trained police officer with traffic enforcement
experience to review all citations generated by the automated system and make court
appearances. This officer will serve as liaison to the firm providing the automated
system and will work with that firm's representatives to make any necessary program
adjustments. These duties will necessitate 0.5 additional FTE police officer position
within the Traffic Section. The remaining 0.5 FTE will be dedicated to supplementing
the accident investigation function which handles some 1,800 collisions annually.
Budqet/Financial Impact
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Traffic Enforcement Program:
The traffic enforcement program is to be staffed from existing budgeted resources.
However, to purchase four (4) additional fully-equipped police motorcycles, the budget
changes listed at Attachment I are needed to purchase and outfit the additional
motorcycles and to equip the officers assigned to this program.
Automated Red-Light Enforcement Program:
There are a variety of financing arrangements available for the automated red-light
enforcement system. Each will result in a net increase in traffic citation revenue to the
City, since the number of citations and the revenue associated with them will increase
by more than the cost to acquire and install the hardware and run the program. Details
of the financing for this program will be communicated to Council when an award of the
contract is made. However, providing 1.0 FTE additional permanent police officer
position to the Police Traffic Section (0.5 FTE for day-to-day operation of the automated
red-light enforcement program and 0.5 FTE for traffic accident investigation duty) will
require the budget changes set forth in Attachment II.
Recommendations
It is recommended that the City Council:
1. Approve the acquisition of additional motorcycles and the related equipment necessary to
outfit new Motorcycle Enforcement Officers;
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2. Conceptually approve an automated red-light enforcement program to complement the
Police Department's enhanced traffic and pedestrian safety efforts;
3. Approve the above described budget changes which are related to both the Police
Department's enhanced traffic safety efforts and the automated red-light enforcement
program.
Prepared by: James T. Butts, Jr., Chief of Police
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ATTACHMENT I
1. Add $132,144 to General Fund/Fleet Vehicle Replacement Program Account
#C01016700.589000;
2. Add $99,108 to Vehicle Management Fund/Fleet Vehicle Replacement Program Account
#C54016700.589000;
3. Add $3,000 to Vehicle Management Fund/Fleet Management Division Account
#5446L522920 to cover maintenance costs for the new motorcycles.
4. Add $3,000 to General Fund Non-Departmental Account #01274.523000 to reimburse the
Vehicle Management Fund for maintenance costs for the new motorcycles;
5. Add $99,108 to Vehicle Maintenance/Vehicle Management Fund Revenue Account
#54461.405760 (Vehicle Purchase/Replacement);
6. Add $33,036 to Vehicle Management Fund Revenue Account $54461.402660 (Vehicle
Future Replacement);
7. Add $3,000 to Vehicle Management Fund Revenue Account #54461.405750 (Vehicle
Maintenance);
8. Add $6,840 to Police Department General Fund Account #01306.544170 to provide funding
for additional Motorcycle Enforcement Officer helmets with radio interface connections;
and
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9. Add $21,320 to Police Department General Fund Account #01306.588040 to provide
funding for the additional radio equipment which will be needed by the Traffic Division's
new Motorcycle Enforcement Officers.
ATTACHMENT II
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1. Add $34,587 to Account #01306.511000 (Permanent Employees Salaries);
2. Add $5,060 to Account #01273.511780 (Retirement);
3. Add $562 to Account #01274.511710 (Medicare);
4. Add $3,200 to Account #01274.511740 (Health/Dental Insurance);
5. Add $339 to Account #01274.511970 (Other Fringe Benefits);
6. Add $240 to Account #01306.511920 (Uniform Allowance);
7. Add $1,500 to Account 01306.588090 (Furniture and Furnishings) to provide office
equipment for the new police officer;
8. Add the following amounts to the following accounts to provide a computer for the new
police officer:
$2,400 to Account #C01000300.589000 (Computer Purchase and Future
Replacement);
$1,800 to Account #C55000300.589000 (Computer Purchase);
$1,800 to Account #55223.405940 (Computer Purchase Revenue); and
$600 to Account #55223.402660 (Computer Future Replacement Revenue).
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