Title
Recommendation to Authorize the Alameda Police Department to Pursue Grant Funding Sources for the Purchase and Implementation of Automated License Plate Recognition Equipment. (Police)
Body
To: Honorable Mayor and Members of the City Council
From: John A. Russo, City Manager
Re: Authorize the Alameda Police Department to Pursue Grant Funding Sources for the Purchase and Implementation of Automated License Plate Recognition Equipment
BACKGROUND
Law enforcement officers are often searching for vehicles that have been reported stolen, are suspected of being involved in criminal or terrorist activities, are owned by persons who are wanted by authorities, have failed to pay parking violations or maintain current vehicle license registration or insurance, or any of a number of other legitimate reasons. Victims and witnesses are frequently able to provide police with a description of a suspect's vehicle including, in some cases, a full or partial reading of their license plate number. Depending on the seriousness of the incident, officers may receive a list of vehicles of interest at the beginning of their shift, or receive radio alerts throughout the day, providing vehicle descriptions and plate numbers including stolen vehicles, vehicles registered or associated with wanted individuals or persons of interest, vehicles attached to an AMBER or missing persons alert, and "be on the lookout" or "BOLO" alerts. These lists may be sizable and can present challenges for the patrol officer.
In response to the above, law enforcement agencies throughout the nation are increasingly adopting Automated License Plate Recognition (ALPR) technologies to enhance their enforcement and investigative capabilities, expand their collection of relevant data, and expedite the tedious and time consuming process of manually comparing vehicle license plates with lists of stolen, wanted, and other vehicles of interest.
The Alameda Police Department is considering acquiring this technology and if authorized by Council will pursue grant funding.
DISCUSSION
ALPR systems (either vehicle mounted or fixed to a specific location) generally consist of a high speed camera with an infrared ("IR") filter or two cameras-one high resolution digital camera and one IR camera-to capture images of license plates. They also include a processor and application capable of performing sophisticated optical character recognition (OCR) to transform the image of the plate into alphanumeric characters, as well as associated software to compare the transformed license plate characters to databases of license plates of interest to law enforcement. Finally, the systems include a user interface to display the images captured, and to alert operators when a plate matching an agency's "hot list" is observed.
ALPR systems can register up to 1,800 plates per minute at speeds up to 120-160 miles per hour. Systems range in cost from $10,000 - $25,000, depending on the manufacturer and the specific configuration specified, and agencies have often been able to fund acquisition through federal grant funding sources.
COMPONENTS OF THE SYSTEM
Cameras
Camera hardware is significant to the front-end component of any ALPR system. Since the initial captured image forms a critically important part of the ALPR system and will often determine the overall performance, ALPR systems typically use still or video cameras specialized for the task.
User Interface
In vehicle-mounted ALPR systems, captured images are displayed on a user interface-either a dedicated computer for the ALPR system, or use of the in-field computer already installed in the police vehicle-so the officer can be alerted when a vehicle on one of the hot lists has been observed in the vicinity of the officer. The user interface allows the officer to compare the ALPR OCR interpretation of the license plate number to ensure the accuracy of the "read," and to see the larger, contextual image to help the officer in identifying which specific vehicle has the plate of interest. In addition, the user interface also typically enables the officer to manually enter plates on vehicles of interest, manage hot list information, deal with alert queues, and run reports.
Software
As vehicles pass through the field of view of the ALPR camera a picture is taken of license plate and the vehicle. A series of algorithms are performed on the image to isolate the plate and render the alphanumeric characters into an electronically readable format. The sophistication and complexity of each of these algorithms determines the accuracy of the system.
Hot lists
Once the OCR read is obtained, the information is then compared against a database of vehicles of interest, typically known as a "hot list." The purpose of these lists is to alert the officer that a vehicle displaying a license plate number that is included on a hot list has been identified by the ALPR camera.
ALPR Data
Collectively referred to as ALPR data, the images and the metadata associated with the images are the primary forms of information collected by an ALPR system. The ALPR data may be stored in the individual ALPR units until it is either transferred to another server or discarded. Data files compiled in ALPR systems typically contain the following information:
· Black and white plate image
· Contextual color image
· Electronically readable format of plate alphanumeric characters (optical character recognition (OCR)) of license plate numbers
· Location and GPS coordinates
· Time and date of image capture
· Camera identification (mobile cameras may capture officer and vehicle/unit number)
INTERNAL POLICY CONSIDERATIONS
In order to be effective, ALPR technology must be properly implemented and integrated into the daily operations of law enforcement agencies. Developing and enforcing policies defining the strategic objectives of an agency's program, training requirements, deployment options, operating procedures, hot list management, proper use and maintenance of the technology, and data collection, retention, sharing, and access enables law enforcement to effectively manage ALPR.
Agency policies typically:
1. Define the ALPR system and its data as "for official use only"
2. Restrict and audit queries of the ALPR dataset, and
3. Require that all operators of the equipment receive proper training before use
TRAINING
It is essential that all law enforcement personnel be properly trained on the ALPR to ensure its effective use. Essential components of that training include:
1. Ensuring that appropriate hot list information is as current and accurate as possible, and
2. Providing clear directions that when the ALPR unit matches an observed vehicle's license plate with a record in the hot list and alerts the officer (also known as a "hit"), that the officer must verify:
a. the ALPR "read" was accurate (i.e., that the ALPR OCR software has properly interpreted the license plate number),
b. the issuing State matches the plate on record, and
c. the circumstance that triggered the alert is still current, e.g., that the vehicle is still wanted or stolen.
3. Reminding officers to be aware that the driver may not be the registered owner, even if the record in the hot list was created based on the status of the registered owner (e.g., the owner has an outstanding warrant for arrest, or their driving privileges are suspended or revoked).
4. Finally, depending on the nature of the alert (e.g., a "hit" on the Terrorist Watch List), directions to notify another agency (e.g., the Terrorist Screening Center) and hold the person, surreptitiously watch but not contact the person, or simply document the contact and forward the information to others.
OTHER CONSIDERATIONS
ALPR technology is a significant tool in the arsenal of law enforcement and public safety agencies. It automates a tedious, distracting, and manual process that officers regularly complete in their daily operations, and vastly improves their efficiency and effectiveness in identifying vehicles of interest among the hundreds or thousands they observe in routine patrol. Moreover, it generates a record of vehicle sightings, complete with time, date, and geographic location information for each observation. This data can substantially enhance the investigative capacity of law enforcement, and greatly contribute to intelligence collection and analysis functions.
Realizing the value that ALPR promises, however, can only be achieved through proper planning, implementation, training, deployment, use, and management of the technology and the information it provides. Like all tools and technologies available to law enforcement, ALPR must also be carefully managed. Should direction be given to acquire this technology, the Alameda Police Department will clearly articulate its strategic goals and tactical objectives for the technology. Thorough and ongoing training will be required to ensure that the technology performs effectively, and that users are well versed in the operational policies and procedures defined and enforced by the Alameda Police Department.
Furthermore, policies will have to be developed and strictly enforced to ensure the quality of the data, the security of the system, compliance with applicable laws and regulations, and the privacy of information gathered. Building robust auditing requirements into our policies will help enforce proper use of the system, and reassure the community that their privacy interests are being recognized and respected.
COST
The Alameda Police Department is in the process of field testing a two camera, vehicle mounted ALPR system that was provided and installed by Lehr Auto/Pursuit North, a company that the department works with for emergency vehicle equipment installation. The approximate cost for this system would be $16,000 (installed). They also offer a four camera system, which would provide greater (360 degree coverage) for approximately $22,000. Fixed mount camera systems start at about $7,500 plus the cost of installation. Additionally, the service contract (which includes access to a national ALPR database) costs $625 per camera annually.
In order to avoid the annual service contract described above and access an even larger database, the Alameda Police Department would likely enter into an agreement with the Northern California Regional Intelligence Center (NCRIC). The NCRIC is a multi-jurisdictional public safety program created to assist local, state, federal, and tribal public safety agencies with the collection, analysis, and dissemination of criminal threat information.
The NCRIC utilizes ALPR technology, and supporting software, to gather and analyze ALPR data to enable the rapid identification and location of vehicles of legitimate interest to law enforcement. To address privacy concerns, the information is only retained for a fixed period (currently 12 months), and is only accessible by law enforcement officers with a legitimate law enforcement purpose. Additionally, NCRIC ALPR units may be used to collect data that is within public view, but may not be used for the sole purpose of monitoring individual activities which are protected by the First Amendment to the United States Constitution.
FINANCIAL IMPACT
The purchase of ALPR technology was not included in the FY13-14 and 14-15 budget. Police Department personnel plan to apply for a Department of Homeland Security grant through the Bay Area Urban Area Security Initiative (Bay Area UASI) in November 2013. The Bay Area UASI is a regional program that provides financial assistance to improve the Bay Area's capacity to prevent, protect against, respond to, and recover from terrorist incidents or related catastrophic events. Projects facilitated by the program enhance regional capability through regional collaboration and efficient allocation of funds available. Due to the proximity of the Oakland International Airport, as well as Coast Guard Island and other potential regional targets, the use of ALPR technology by the Alameda Police Department could have a positive impact on investigations resulting from the aforementioned types of incidents or events. Should the Bay Area UASI grant application fail to be approved, alternative funding sources will need to be identified if direction is given by council to proceed with the purchase of ALPR technology.
MUNICIPAL CODE/POLICY DOCUMENT CROSS REFERENCE
N/A
ENVIRONMENTAL REVIEW
This action is not a project for the purposes of the California Environmental Quality Act (CEQA) under CEQA Guidelines section 15061(b)(3) as there is no possibility that this action may have a significant effect on the environment.
RECOMMENDATION
Authorize the Alameda Police Department to Pursue Grant Funding Sources for the Purchase and Implementation of Automated License Plate Recognition Equipment
Respectfully submitted,
Paul Rolleri, Interim Chief of Police
Approved as to funds and account,
Fred Marsh, Finance Director