Title
Recommendation to Implement an Automated Red Light Enforcement Pilot Program at the Two Intersections of Park Street and Otis Drive and Webster Street and Atlantic Avenue. (Police 10031100)
Body
To: Honorable Mayor and Members of the City Council
From: Jennifer Ott, City Manager
EXECUTIVE SUMMARY
The City of Alameda (City) Police Department (APD) received a referral from the City Council on November 6, 2024 to investigate the feasibility of implementing an automated red light camera enforcement program within the City. Based on research regarding regional agency experience with automated enforcement, industry contacts, potential vendors, and a review of other research, a summary of staff conclusions regarding a new potential red light system is provided below:
• The implementation of these systems is governed by Sections 21455.5, 21455.6, and 21455.7 of the California Vehicle Code (CVC).
• The CVC dictates that APD must manage automated enforcement.
• Each location identified for automated enforcement must be approved by the City Council and have an identifiable safety need.
• These programs have the potential to be revenue-neutral, depending on the number of violations and fine payment compliance.
• Each violation must be reviewed and approved by an APD staff member.
• The majority of automated red light enforcement cameras are also capable of automated speed enforcement, should that become legislatively approved in California in the future.
• Due to the nature of automated red light enforcement, all videos of vehicles, including the faces of occupants, must be recorded and retained until the violation is adjudicated in court.
Given these factors, staff recommends implementing an automated red light enforcement pilot program at the two intersections of Park St./Otis Dr. and Webster St./Atlantic Ave. based on red light violations/collisions, level of bicycle and pedestrian infrastructure and geographic equity. This program will require additional budget from the General Fund for part-time staff with all or most costs anticipated to be recovered through fine revenues.
BACKGROUND
APD’s only method of enforcing red light violations is traditional traffic enforcement. This requires a police officer to monitor the intersection, observe the violation, conduct a vehicle stop on the violator’s vehicle, and issue a citation for the violation. In 2024, APD issued approximately 112 citations for red light violations. Red light violations constitute a relatively small percentage of the thousands of citations issued by APD in 2024. This is likely a result of the enforcement style required to focus on red light violations. Red light enforcement typically involves long periods of parking near and observing an intersection, as opposed to actively patrolling and observing violations while driving (speeding, seat belt, and cell phone violations are much more commonly observed while in motion).
There were 26 collisions in the City in 2024, where the primary collision factor was listed as a red-light violation. The total number of reported vehicle collisions in the City for 2024 was 794. While red-light violations comprise 3% of the total reported vehicle collisions, approximately 50% of red-light collisions involved an injury of some kind, which is a higher ratio than most other collision types. The most commonly observed primary collision factors in collisions in the City are speeding, pedestrian right-of-way violations, and unsafe turning movements.
During the creation of the City’s Vision Zero Action Plan, the collision data was analyzed from 2009-2018. Traffic sign and signal violations were identified as causing the following percentages of collisions during that period (Note: This data also includes collisions resulting from failure to stop at a stop sign, as the data was not parsed to individual violation types).
|
Collision Type |
% of Total Collisions |
% of Injury Collisions |
% of Fatal/Serious Injury Collisions |
|
Pedestrian-involved |
3% |
3% |
3% |
|
Motorcycle-involved |
2% |
5% |
1% |
|
Motor vehicle-only |
11% |
11% |
0% |
|
Bicyclists involved |
11% |
11% |
6% |
Automated red light camera enforcement was not recommended during the implementation of the Vision Zero Action plan because other collision causes are more common when looking at all collisions and fatal/injury collisions.
An examination of published research on automated red light camera enforcement indicated that installing these systems reduces the frequency and severity of red-light-related collisions (Retting RA, Kyrychenko SY, 2002, attached as Exhibit 1). The listed results from this research were as follows:
• Overall reduction in collisions at signalized intersections: 7%
• Overall reduction in injury collisions at signalized intersections: 29%
• Overall reduction in collisions most associated with red light violations: 32%
• Overall reduction in injury collisions most associated with red light violations: 68%
DISCUSSION
While red light violations do not appear to be the highest frequency primary collision factor for the City, they accounted for more than 10% of the injury collisions for bicyclists and motorists during the analysis done for the Vision Zero Action Plan. Reducing red light violations in the City through automated enforcement could help reduce the frequency and severity of those collisions.
These programs are typically implemented through a contractor, as the technical expertise to design, install, maintain, and implement automated enforcement systems is beyond the expertise of current staff at APD. Estimated costs for these systems to monitor traffic in all four directions are approximately $240,000 per intersection per year for equipment, processing, citation delivery, court reporting, and software. Typically, these costs can be offset with revenue generated from citations being issued through automated enforcement. In speaking with potential vendors and other agencies operating automated enforcement programs, each camera must issue 2-3 citations daily to remain cost neutral. Some potential vendors provide programs where cost neutrality can be guaranteed through cost reductions to match revenue generated in the event of a shortfall. Based on the number of vehicles traveling each day through the recommended intersections of Park St./Otis Dr. and Webster St./Atlantic Ave., staff is confident that at least 3 citations will be issued daily for cost neutrality of the software and equipment.
The other significant ongoing cost associated with running an automated enforcement program is the staff time to administer the program. The automated enforcement contractor will prepare all recorded violations for review, but a staff member at APD is required to review each violation prior to it being sent to the court for enforcement and fine payment. Using the previous estimate of three citations per camera (assuming two cameras per intersection), that is a minimum of 180 violations per month, per intersection, that must be reviewed individually to ensure cost neutrality for equipment. At an estimated two minutes per violation, this requires 900 hours of staff time each month. The recommended staffing model is one full-time staff member per five intersections (which can vary depending on the number of violations produced per camera). Staff recommendation for the pilot program is utilizing part-time staff for two intersections.
The staff member reviewing the automated enforcement violations does not have to be a sworn staff member. Currently, APD does not have a staff member to dedicate to this new program. This program is recommended as a 5-year pilot program, based on current contractual requirements of existing vendors for red-light automated enforcement systems. For the pilot program, staff recommends hiring part-time staff to review violations for two intersections. Any additional intersections would require hiring a full-time position. The Administrative Technician II role fits with the scope of responsibility for reviewing automated enforcement violations and the fully burdened cost is $128,511. One Administrative Technician II new hire would be needed for every five intersections monitored. APD currently has the supervisory bandwidth to monitor part-time positions and the corresponding two-intersection program or one additional Administrative Technician II for a corresponding five-intersection program. Growing the automated enforcement program beyond five intersections would require the addition of another police sergeant to supervise the more extensive program and additional Administrative Technician employees. The fully burdened cost of a police sergeant is $278,583. The City General Fund would be required to cover these staff costs unless fine revenue from the automated enforcement cameras exceeded the equipment costs described above.
Once the program is in place and if revenues are consistent and sufficient to justify full-time staffing costs then staff may return to City Council in a future budget cycle to request transitioning the part-time staff costs to a full-time Administrative Technician II along with a recommendation to expand to a five-intersection system. Staff recognizes that utilizing part-time staff brings challenges with turnover and hiring so a full-time position is ideal if the revenues can support it.
Another potential cost involves integrating automated enforcement equipment with the existing traffic signal infrastructure. In consulting with the City’s Public Works and Transportation Planning Departments, most of the signal cabinets and controllers at major intersections have been updated and will not need any work to be compatible with automated enforcement. The two intersections identified for the pilot program have existing signal equipment compatible with automated enforcement. There is a potential that signal pole infrastructure could need replacing or retrofitting to handle the weight of additional equipment, with cost estimates in the $15,000 range per intersection that needs replacement. This cost will be refined through the planning process. Signage is required for all automated enforcement intersections, costing approximately $1,000 per intersection.
Revenue generated above equipment and ongoing operational costs could offset staff and other expenses, but that is driven by the frequency of violations, traffic density, intersection selection, and other factors. The larger and busier the intersections in the City typically have the highest number of red-light collisions and violations. Currently, five of the higher collision/violation intersections have been identified as:
• Harbor Bay Parkway at Ron Cowan Parkway
• Park St. and Otis Dr.
• Park St. and Blanding Ave.
• Park St. and Clement Ave.
• Webster St. and Atlantic Ave.
Staff recommendation is to start with two intersections, as a pilot program, at Park St./Otis Dr. and Webster St./Atlantic Ave. These intersections were identified based on their higher bicycle and pedestrian traffic as well as providing geographic equity. They both are main roads with high traffic volume, and have no right turn on red signage to protect bicyclists/pedestrians or for limited visibility. The annual cost for installation and ongoing management of two intersections is $47,500 for part-time APD staff and $480,000 for the software system for a total of $527,500 plus installation costs that are yet to be determined. This would require funding from the General Fund and if directed by City Council, would be included in the Fiscal Year 2025-27 budget for final approval. All or most of the costs are anticipated to be cost recovered through fine revenues.
Additionally, automated speed enforcement has been implemented as a pilot program in several jurisdictions in California. The equipment used for automated red-light enforcement can also conduct automated speed enforcement. If automated speed enforcement becomes approved for implementation in all municipalities in California in the future, the existing automated red-light cameras will have the technical compatibility to be used to conduct speed enforcement. However, intersections where red-light camera enforcement provides the most significant benefit are not necessarily the same as areas where speeding is most prevalent. Speeds are typically reduced in signalized intersections by the nature of traffic stopping for lights to cycle. Any use of existing red-light cameras for automated speed enforcement would be reviewed by staff with a recommendation to City Council for approval.
Due to the nature of automated red-light enforcement, the enforcement cameras are constantly recording high-definition footage. This footage is then used to capture, document, and charge the red-light violations. This footage must be retained until the traffic court system adjudicates the violation. The cameras will capture footage of the front and back of vehicles, their license plates, and the occupants of the vehicles. APD can control access to this footage through automated enforcement software and would design a policy to limit access and appropriate sharing. Footage is typically retained for six months or until the citations are adjudicated, whichever is later (per 21455.5(f)(3) CVC).
ALTERNATIVES
• Direct staff to create and implement a pilot automated red light enforcement program. This would involve sourcing a vendor to provide automated red-light enforcement at the two recommended locations at Park St./Otis Dr. and Webster St./Atlantic Ave. as well as hiring part-time staff, and creating a policy to govern the program. Staff would return to City Council for approval of a vendor contract, policy adoption and would include budget for staff, equipment and vendor contract in the Fiscal Year 2025-27 budget.
• Direct staff to wait until speed enforcement legislation is finalized and implement a comprehensive automated enforcement program at that time
• Do not implement any automated enforcement at this time.
FINANCIAL IMPACT
Based on the staff recommended two intersection pilot program, the total cost for the automated red light program staffing, equipment and contractual services is $527,500. The cost for signage at each intersection is $1,000, and signal poles may need to be replaced (cost estimate $15,000 each) depending on age and ability to bear the weight of additional equipment. All or most of this cost is anticipated to be offset by fine revenues. If City Council directs implementation of an automated red light enforcement program, this expense and revenue estimates would be included in the Fiscal Year 2025-27 budget for City Council approval.
MUNICIPAL CODE/POLICY DOCUMENT CROSS REFERENCE
There is currently no policy for automated red-light enforcement. If City Council directs staff to design and implement an automated enforcement program, a policy will be drafted and brought before City Council for review. This program supports the City Strategic Plan Priority to Enhance Community Safety and Services.
ENVIRONMENTAL REVIEW
This action does not constitute a “project” as defined in California Environmental Quality Act (CEQA) Guidelines Section 15378, and therefore, no further CEQA analysis is required.
CLIMATE IMPACT
There are no identifiable climate impacts or climate action opportunities associated with the subject of this report.
RECOMMENDATION
Implement an automated red light enforcement pilot program at the two intersections of Park St./Otis Dr. and Webster St./Atlantic Ave.
Respectfully submitted,
Nishant Joshi, Chief of Police
By,
Brian Foster, Police Lieutenant
Financial Impact section reviewed,
Margaret O’Brien, Finance Director
Exhibit:
1. Automated Red Light Enforcement Study